[Federal Register Volume 75, Number 180 (Friday, September 17, 2010)]
[Notices]
[Pages 57045-57048]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-23252]
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DEPARTMENT OF HEALTH AND HUMAN SERVICES
Centers for Medicare and Medicaid Services
Food and Drug Administration
[Docket No. FDA-2010-N-0308]
Parallel Review of Medical Products
AGENCIES: Centers for Medicare and Medicaid Services; Food and Drug
Administration, HHS.
ACTION: Notice; request for comments.
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SUMMARY: The Food and Drug Administration (FDA) and the Centers for
Medicare and Medicaid Services (CMS) are considering establishing a
process for overlapping evaluations of premarket, FDA-regulated medical
products when the product sponsor and both agencies agree to such
parallel review. This process will serve the public interest by
reducing the time between FDA marketing approval or clearance decisions
and CMS national coverage determinations (NCDs). The agencies are
establishing a docket to receive information and comment from the
public on what products would be appropriate for parallel review by the
two agencies, what procedures should be developed, how a parallel
review process should be implemented, and other issues related to the
effective operation of the process. The agencies are also announcing
their intent to create a pilot program for parallel review of medical
devices. The pilot program will begin after both agencies have reviewed
the public comments on this notice. A memorandum of understanding (MOU)
concerning the exchange of data and information has been completed
between the two agencies. See http://www.fda.gov/AboutFDA/PartnershipsCollaborations/MemorandaofUnderstandingMOUs/DomesticMOUs/ucm217585.htm.
DATES: Submit either electronic or written comments by December 16,
2010.
ADDRESSES: Submit electronic comments to http://www.regulations.gov.
Submit written comments to the Division of Dockets Management (HFA-
305), Food and Drug Administration, 5630 Fishers Lane, rm. 1061,
Rockville, MD 20852.
FOR FURTHER INFORMATION CONTACT:
General questions about parallel review: Peter Beckerman, Office of
Policy, Food and Drug Administration, 10903 New Hampshire Ave., Silver
Spring, MD 20993-0002, 301-796-4830, e-mail:
[email protected], or Tamara Syrek Jensen, Centers for
Medicare and Medicaid Services, 7500 Security Blvd., Baltimore, MD
21244, e-mail: [email protected].
For device sponsors interested in requesting voluntary parallel
review: Markham C. Luke, Center for Devices and Radiological Health,
Food and Drug Administration, 10903 New Hampshire Ave., Silver Spring,
MD 20993-0002, 301-796-5550, e-mail: [email protected].
SUPPLEMENTARY INFORMATION:
I. Background
FDA and CMS share a common interest in improving the health of
patients through the availability of safe, effective, and affordable
medical products and fostering medical product innovations.
The mission of the FDA is to protect and promote the public health.
It accomplishes this task, in part, by the following:
Assuring the safety, efficacy, and quality of human drugs,
biological products, and medical devices;
Fostering innovations to make medical products safer and
more effective; and
Helping health care providers and the public get the
accurate, science-based information they need to use medical products
to improve public health.
The mission of CMS is to ensure effective, up-to-date Medicare
coverage and to promote the continual improvement of the quality care
for its beneficiaries. CMS accomplishes this mission by continuing to
transform and modernize America's health care system, in part, by the
following:
Fostering accurate and predictable payments,
Ensuring high-value health care,
Promoting understanding of CMS programs among
beneficiaries, the health care community, and the public.
Through coordinated decisions regarding medical products, FDA and
CMS can affect public health in critical ways: FDA in determining the
safety and effectiveness of those products and CMS in providing
beneficial coverage and appropriate payment for covered items and
services involving those products. Both agencies believe they should
address the growing need to improve public health by speeding consumer
access to and spurring the development of new, affordable, reliable,
safer, and more effective medical products and services. FDA and
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CMS are working together to identify areas in which they can
collaborate to achieve these goals and parallel review provides one
such opportunity.
A. Innovative Medical Products are Difficult to Develop
The recent boom in new basic science discoveries has generated hope
for the development of new treatments and diagnostics for serious
illnesses. However, there is concern as to whether there are adequate
resources available for bringing the most innovative medical devices to
market. The number of new drug and biologic applications submitted to
FDA has been declining for several years for reasons not wholly clear.
Inefficiencies and rising costs appear to account for only part of the
reluctance to embark on new medical product development. The limited
predictability of market access may also hinder investment in the
development of innovative therapies and diagnostics. Reducing the time
between marketing approval or clearance and obtaining third party
payment (``approval-to-payment'' time) can produce savings for sponsors
and improve public health through overlapping medical review of data/
evidence leading to more timely patient access to those new products.
Currently, medical product development and coverage and payment of
new therapies and diagnostics generally occur in a serial manner.
First, a new medical product is submitted to FDA, which determines
whether it meets applicable safety and effectiveness standards for
commercial marketing. Next, the company seeks coverage from the payer
who in turn determines the payment rate for the product.
Timely access to innovative medical technologies has been
identified as a significant issue in the delivery of high quality
health care. Manufacturers of innovative medical products have said
that after undergoing the FDA approval process the availability of
their products to consumers is often slow because, in order to obtain
coverage and payment from third-party payers, the manufacturers must go
through a second review process by such payers. This is in part because
the materials submitted by manufacturers for FDA review are, for
various reasons, not generally made available to third-party payers
prior to FDA approval or clearance. In addition, the materials
submitted by manufacturers to FDA may not adequately address the issues
of importance to payers, such as community or home based use outside of
clinical trial protocols, generalizability of the results to target
populations that may have not been studied, and the incremental
clinical utility of these products compared to currently available
technologies.
Although CMS is only one of many third-party payers and provides
insurance benefits to select populations, the agency plays a leading
role in healthcare through its coverage and payment decisions. Because
many third-party payers tend to follow CMS' lead, a positive national
coverage or payment decision by CMS often promotes rapid adoption of a
new therapy by the medical community. However, a positive coverage
decision after a long time lag following FDA approval or clearance can
delay consumer access to new medical products.
B. Differences in FDA and CMS Review
FDA premarket review and CMS national coverage determinations
differ significantly. Each process operates under different statutory
standards and each asks different questions to meet its respective
mandates. The FDA premarket review generally assesses the safety and
effectiveness of these medical products. Even within FDA's review
processes, there are differences in types of evaluation depending upon
the application under consideration (for example, premarket approval
applications (PMAs) must meet standards different from premarket
notifications (510(k)s)).
CMS serves a different function by providing health insurance to
protect the nation's aged and disabled persons from the substantial
burdens of illness. Under section 1862(a)(1) of the Social Security Act
(the Act), CMS makes determinations regarding the coverage of specific
items and services. In short, CMS must make multiple decisions: It must
decide what items and services it can and should pay for; how it should
accomplish the payment; and how much to pay.
CMS' evaluation of medical products depends on the type of request.
For most NCDs, CMS evaluates whether a medical product or service is
reasonable and necessary to diagnose or treat an illness or injury
affecting the Medicare population. This evaluation includes review of
appropriate outcomes data, such as whether the product provides
improved, equivalent, or complementary health outcomes in the Medicare
population as compared to alternative treatments or diagnostics already
covered by the program. CMS may also evaluate medical product
indications that have not been approved or cleared by FDA, so-called
unapproved or off-label uses.
C. Parallel Review--Opportunity To Speed Patient Access To Beneficial
Medical Products
Under current practice, CMS does not routinely undertake an NCD
unless it receives a complete formal external request. At times, CMS
may also internally generate a request. Because local fiscal
intermediaries, carriers, or Medicare Administrative Contractors are
able to make decisions within their own jurisdictions, Medicare
coverage and payment can occur in the absence of a NCD, such as from
the initial market availability of a new technology.
CMS usually begins its national coverage decision making process
for FDA-regulated medical products after they have been approved or
cleared by FDA. Because FDA does not approve or clear all the marketing
applications it reviews, such serial processing ensures that CMS does
not expend its limited resources assessing medical products that never
reach the U.S. market. In addition, the CMS NCD process is subject to
strict statutory time limits (9 to 12 months from the opening to
publication of the final decision) that cannot be extended if a
manufacturer should encounter an unexpected delay in obtaining FDA
approval or clearance. However, this serial review process has been
subject to criticism because it potentially causes delay in consumer
access to beneficial medical products. Overlapping evaluations by FDA
and CMS for innovative products could speed consumer access to those
new products by reducing the time span between marketing approval or
clearance decisions and national coverage/payment determinations.
From time to time CMS finds that developers of new technology fail
to recognize the differences between the regulatory requirements of FDA
and CMS. They may undertake clinical studies that are designed to
address FDA questions but do not adequately address CMS questions
concerning the impact of the technology on Medicare beneficiary health
outcomes. This omission can slow the developer's quest for Medicare
coverage. We believe that a parallel review process can furnish an
opportunity to educate developers regarding clinical study designs that
are more likely to simultaneously address both FDA and CMS questions.
To potentially accelerate consumer access to new, particularly
innovative, safe and effective medical products, FDA and CMS intend to
establish a process for parallel review. Parallel review could also
create incentives for venture capitalists and companies to increase
their investment in innovative
[[Page 57047]]
medical products by reducing the time to return on investment for those
products eligible for parallel review.
The agencies envision parallel review as a collaborative effort in
which CMS will begin its NCD-related review process to determine
whether the product is reasonable and necessary for the Medicare
population while FDA is completing its premarket review. However,
before developing and implementing such a process, the agencies believe
that important issues must be resolved. For example, to avoid CMS
reaching a coverage determination deadline before FDA has completed its
review process and to minimize the possibility that CMS will begin its
coverage process for a product that is subsequently not approved or
cleared by FDA, the CMS process and FDA process should be carefully
staged. FDA and CMS also seek comment on whether they should establish
a voluntary process to allow companies to meet with both agencies to
develop clinical trial protocols that would meet each agency's
respective statutory standard rather than potentially conducting
separate clinical studies.
This notice provides the first opportunity for the public to
comment on these issues. The public will have a second opportunity to
provide input should the agencies subsequently issue, as they currently
intend, a joint draft guidance or other appropriate documents,
describing the proposed process. The agencies envision that the
decision to undertake the parallel review process with respect to a
specific product will be at the request of the manufacturer and with
the agreement of both agencies, thus making the process voluntary for
all parties involved. FDA would make its approval or clearance
determination first because CMS would not ordinarily provide coverage
to a product not approved or cleared by FDA for marketing in the United
States. In addition, CMS has statutory requirements (for example, CMS
must issue a proposed coverage decision memorandum for comment) that
make it impossible for the issuance of an NCD simultaneous with an FDA
approval or clearance.
Parallel review would be a variation of the usual serial review
process. Sponsors would be able to request use of this process in
seeking an NCD. The regulatory standards and evidentiary standards used
by FDA and CMS for decision-making would not change; under any review
scenario, each agency would continue to make its decision under its
respective authority and with its own standards, independent of the
other. The sponsor requesting parallel review would be expected to meet
the legal requirements, including data submission requirements, for
both FDA premarket review or clearance and of an NCD request by CMS.
Once formal procedures are developed, the agencies will work on making
the data submissions efficient and nonduplicative with the intent of
making parallel review less burdensome than if the sponsor went to each
agency in serial fashion. Parallel review between the FDA and CMS would
include only CMS coverage determination reviews and not any reviews of
payment mechanisms.
By means of this notice, we are opening a public comment docket to
solicit comment from the public on the parallel review process. We are
interested in comments on all aspects of the process as we have
explained it, including what categories of products are most
appropriate for such review, the timing of parallel review, what
procedures should be developed, how such a review process should be
implemented, and what efficiencies could be achieved. After reviewing
the public comments, FDA and CMS intend to issue a joint draft guidance
describing the parallel review process and the procedures each agency
would use for its implementation.
After review of the public comments on this notice, both agencies
will consider a small number of requests from sponsors of innovative
medical devices for parallel review on a pilot basis. (No new statutory
authorities would be required to pursue such a pilot because FDA and
CMS are continuing to comply with all aspects of current law.) The
agencies will announce procedures for participating in the pilot at
that time as well as criteria for participation. For general questions
about parallel review, contact the persons listed in the ``FOR FURTHER
INFORMATION CONTACT'' section of this document. Device sponsors
interested in requesting voluntary parallel review should contact the
person noted as the contact listed in the ``FOR FURTHER INFORMATION
CONTACT'' section of this notice.
II. Comments
Interested persons may submit to the Division of Dockets Management
(see ADDRESSES) either electronic or written comments regarding this
document. It is only necessary to send one set of comments. It is no
longer necessary to send two copies of mailed comments. Identify
comments with the docket number found in brackets in the heading of
this document. Received comments may be seen in the Division of Dockets
Management between 9 a.m. and 4 p.m., Monday through Friday.
To assist interested parties, we are asking for public comment on
the following issues:
1. Should anyone other than the product sponsor be able to initiate
a request for parallel review (for example, the FDA, CMS, an interested
third party)?
2. For which classes of products would consumers, payers, or
sponsors benefit most from parallel review? Why?
3. FDA and CMS may propose to limit the number of products
concurrently under parallel review. How should limits be placed on the
number and/or type of products concurrently under parallel review?
Should CMS be permitted to review indications for which the sponsor is
not seeking FDA clearance or approval under parallel review?
4. Are there disadvantages to parallel review?
5. Are there any barriers (for example, regulatory, legal,
scientific) to parallel review and if so, how might they be overcome?
6. Should a voluntary process be put in place to encourage the
conduct of clinical trials that are appropriately designed to support
both FDA approval/clearance and CMS national coverage decisions? If so,
what process should be established?
7. What criteria should the FDA and CMS use to decide whether to
grant a request for parallel review?
8. At what point during FDA premarket review for prescription
drugs, biologics, and medical devices, should parallel review begin in
order to reduce the time between FDA marketing approval or clearance
decisions and CMS national coverage decisions while avoiding the risk
that CMS would initiate an NCD for a product whose premarket
application the FDA subsequently does not approve or clear?
9. How should parallel review be implemented? Should the agencies
use means in addition to a guidance document, such as designating
agency liaisons, to educate sponsors about parallel review?
10. When, if at all, should the agencies offer joint meetings to
interested sponsors during parallel review? Before parallel review
begins? Before a premarket application is submitted to the FDA?
11. Should FDA and CMS have access to the same data and information
about the product during parallel review? (Note: Both agencies will
protect the confidentiality of proprietary information used in the
parallel review process, as they currently do under their
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respective approval/clearance and coverage processes.)
12. It is CMS' policy to inform the public when it begins an NCD
process for a particular product. However, under applicable statutes
and FDA's regulations, the existence of a premarket application is
considered confidential commercial information prior to approval or
clearance unless the sponsor has publicly acknowledged the application.
With the consent of the sponsor, should CMS make public that it has
begun the NCD process, as part of parallel review, for a product still
undergoing FDA premarket review? As a condition of the agencies'
agreement to initiate parallel review, should a sponsor have to inform
the public, or consent to the agencies informing the public, that the
product will be evaluated under parallel review? If the sponsor
declines to consent to disclosure, should it be permitted to request
parallel review anyway, which would prevent CMS from disclosing the NCD
process until after the product is approved by the FDA? How can the
transparency of CMS' NCD process be reconciled with the need to retain
confidentiality of certain commercial information?
13. At present, sponsors whose medical products will undergo both
FDA premarket review and CMS national coverage review submit separate
application packages to FDA and CMS that, in part, contain the same
data, and, in part, contain different data. Keeping in mind the limited
resources available to the agencies, what steps can the agencies take
to minimize duplication of data submissions? Would the use of
electronic submissions reduce submission burdens and facilitate data
transfers? Are there other steps the agencies can take to streamline a
parallel review process without modifying the regulatory standards and
evidentiary requirements of both agencies? Would the transparency of
CMS' NCD process subject the FDA to additional public pressure
regarding marketing authorization?
14. Should the agencies convene a joint advisory committee to
consider common issues needing public discussion and advice during the
parallel review process?
15. What other concerns or considerations should the agencies take
into account when developing a process for parallel review?
16. Once FDA and CMS have opened a parallel review should a sponsor
be able to terminate or withdraw the request for parallel review? If
this happens, should that information be made public?
17. Sponsors who submit a PMA or 510(k) to the FDA generally must
pay a user fee. One key advantage of parallel review is to streamline
the current process by allowing engagement by a sponsor with both FDA
and CMS concurrently. Earlier engagement could shorten the time between
FDA approval or clearance of the PMA or 510(k) and a coverage decision
from CMS. Parallel review could, however, entail additional costs for
the agencies (for example, if the product ultimately does not receive
FDA approval or clearance). Changes to a user fee would also require
legislative changes. Given these factors, should the current Medical
Device User Fee be restructured to support the FDA and CMS costs of
this parallel review and if so, how?
Dated: September 10, 2010.
Margaret A. Hamburg,
Commissioner of Food and Drugs.
Dated: July 29, 2010.
Donald M. Berwick,
Administrator, Centers for Medicare & Medicaid Services.
[FR Doc. 2010-23252 Filed 9-16-10; 8:45 am]
BILLING CODE 4160-01-S