Expansion of Induction of Buprenorphine via Telemedicine Encounter, 12890-12906 [2023-04217]
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Federal Register / Vol. 88, No. 40 / Wednesday, March 1, 2023 / Proposed Rules
applicable) the Department of Veterans
Affairs internal prescription database
data. If the practitioner fails to obtain
the PDMP (or, if employed by the
Department of Veterans Affairs,
Department of Veterans Affairs internal
prescription database) data as described
in paragraph (e)(1) of this section, the
dates and times that the practitioner
attempted to gain access, the reason
why the practitioner was unable to gain
access, and any follow-up attempts
made to gain access to the system.
(3) Upon completing the review
described in paragraph (e)(1) of this
section, the practitioner may issue
prescriptions authorizing the dispensing
of no more than a 30-day supply across
all such prescriptions, unless otherwise
exempted from the 30-day supply
limitation.
(f) If the prescribing practitioner does
not conduct a medical evaluation
meeting the requirements of clause
(d)(1), (2), or (3) of this section within
a period of 30 calendar days of first
issuing the prescription, the practitioner
may not issue any subsequent
telemedicine prescriptions to that
patient until such a medical evaluation
has been conducted. This restriction
shall not apply to a practitioner who has
a telemedicine relationship established
during the COVID–19 public health
emergency with the patient, as defined
in § 1300.04(o), or to a practitioner
employed by the Department of
Veterans Affairs when prescribing to a
patient of the Department of Veterans
Affairs health system who has received
an in-person medical evaluation from a
practitioner who, at the time of the
examination, was employed by the
Department of Veterans Affairs.
(g) Except as provided in this section,
telemedicine prescriptions must be
consistent with all other requirements of
this part.
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Signing Authority
This document of the Drug
Enforcement Administration was signed
on February 24, 2023, by Administrator
Anne Milgram. That document with the
original signature and date is
maintained by DEA. For administrative
purposes only, and in compliance with
requirements of the Office of the Federal
Register, the undersigned DEA Federal
Register Liaison Officer has been
authorized to sign and submit the
document in electronic format for
publication, as an official document of
DEA. This administrative process in no
way alters the legal effect of this
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document upon publication in the
Federal Register.
Scott Brinks,
Federal Register Liaison Officer, Drug
Enforcement Administration.
[FR Doc. 2023–04248 Filed 2–27–23; 2:30 pm]
BILLING CODE 4410–09–P
DEPARTMENT OF JUSTICE
Drug Enforcement Administration
21 CFR Parts 1300, 1304, 1306
[Docket No. DEA–948]
RIN 1117–AB78
Expansion of Induction of
Buprenorphine via Telemedicine
Encounter
Drug Enforcement
Administration.
ACTION: Notice of proposed rulemaking.
AGENCY:
The Drug Enforcement
Administration (DEA) is amending its
regulations, in concert with the
Department of Health and Human
Services (HHS), to expand the
circumstances under which individual
practitioners are authorized to prescribe
schedule III–V narcotic drugs or
combinations of such drugs that have
been approved for use in continuous
medical treatment (also referred to as
maintenance) or withdrawal
management treatment (also referred to
as detoxification)—via a telemedicine
encounter, including an audio-only
telemedicine encounter.
DATES: Electronic comments must be
submitted, and written comments must
be postmarked, on or before March 31,
2023. Commenters should be aware that
the electronic Federal Docket
Management System will not accept
comments after 11:59 p.m. Eastern Time
on the last day of the comment period.
All comments concerning collections
of information under the Paperwork
Reduction Act must be submitted to the
Office of Management and Budget on or
before March 31, 2023.
ADDRESSES: To ensure proper handling
of comments, please reference ‘‘Docket
No. DEA–948’’ on all correspondence,
including any attachments.
Electronic Comments: The Drug
Enforcement Administration encourages
that all comments be submitted through
the Federal eRulemaking Portal, which
provides the ability to type short
comments directly into the comment
field on the web page or to attach a file
for lengthier comments. Please go to
https://www.regulations.gov/ and follow
SUMMARY:
PO 00000
Frm 00021
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the online instructions at that site for
submitting comments. Upon completion
of your submission, you will receive a
Comment Tracking Number for your
comment. Please be aware that
submitted comments are not
instantaneously available for public
view on Regulations.gov. If you have
received a Comment Tracking Number,
your comment has been successfully
submitted and there is no need to
resubmit the same comment.
Paper Comments: Paper comments
that duplicate an electronic submission
are not necessary and are discouraged.
Should you wish to mail a paper
comment in lieu of an electronic
comment, it should be sent via regular
or express mail to: Drug Enforcement
Administration, Attention: DEA Federal
Register Representative/DPW, 8701
Morrissette Drive, Springfield, Virginia
22152.
Paperwork Reduction Act Comments:
All comments concerning collections of
information under the Paperwork
Reduction Act must be submitted to the
Office of Information and Regulatory
Affairs, Office of Management and
Budget, Attention: Desk Officer for DOJ,
Washington, DC 20503. Please state that
your comment refers to RIN 1117–
AB78/Docket No. DEA–948.
FOR FURTHER INFORMATION CONTACT:
Scott A. Brinks, Diversion Control
Division, Drug Enforcement
Administration; Mailing Address: 8701
Morrissette Drive, Springfield, Virginia
22152, Telephone: (571) 776–3882.
SUPPLEMENTARY INFORMATION:
Posting of Public Comments
Please note that all comments
received, including attachments and
other supporting materials, are
considered part of the public record.
They will be made available by DEA for
public inspection online at https://
www.regulations.gov/. The Freedom of
Information Act applies to all comments
received. Confidential information or
personal identifying information, such
as account numbers or Social Security
numbers, or names of other individuals,
should not be included. Submissions
will not be edited to remove any
identifying or contact information.
Comments with confidential
information, which should not be made
available for public inspection, should
be submitted as written/paper
submissions. Two written/paper copies
should be submitted. One copy will
include the confidential information
with a heading or cover sheet that states
‘‘CONTAINS CONFIDENTIAL
INFORMATION.’’ DEA will review this
copy, including the claimed
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confidential information, in its
consideration of comments. The second
copy should have the claimed
confidential information redacted/
blacked out. DEA will make this copy
available for public inspection online at
https://www.regulations.gov/. Other
information, such as name and contact
information, that should not be made
available, may be included on the cover
sheet but not in the body of the
comment, and must be clearly identified
as ‘‘confidential.’’ Any information
clearly identified as ‘‘confidential’’ will
not be disclosed.
I. Legal Authority and Background
An estimated 107,477 fatal drug
poisonings occurred between September
1, 2021 and August 31, 2022, the
majority of which involved illegal
synthetic drugs. DEA is doing
everything in its power to safely expand
access to treatment to prevent further
drug poisoning deaths.
DEA implements and enforces the
Comprehensive Drug Abuse Prevention
and Control Act of 1970, often referred
to as the Controlled Substances Act
(CSA) and the Controlled Substances
Import and Export Act, (21 U.S.C. 801–
971), as amended. DEA publishes the
implementing regulations for these
statutes in 21 CFR parts 1300 to end.
These regulations are designed to ensure
a sufficient supply of controlled
substances for medical, scientific, and
other legitimate purposes, and to deter
the diversion of controlled substances
for illicit purposes.
As mandated by the CSA, DEA
establishes and maintains a closed
system of control for manufacturing,
distribution, and dispensing of
controlled substances, and requires any
person who manufactures, distributes,
dispenses, imports, exports, or conducts
research or chemical analysis with
controlled substances to register with
DEA, unless they meet an exemption,
pursuant to 21 U.S.C. 822. ‘‘Dispense’’
in the context of this rulemaking means
to deliver a controlled substance to an
ultimate user, which includes the
prescribing of a controlled substance.1
The CSA further authorizes the
Administrator to promulgate regulations
necessary and appropriate to execute
the functions of subchapter I (Control
and Enforcement) and subchapter II
(Import and Export) of the CSA.2
The Ryan Haight Online Pharmacy
Consumer Protection Act of 2008 (The
Ryan Haight Act) 3 amended the CSA
U.S.C. 802(10).
U.S.C. 871(b), 958(f).
3 Public Law 110–425 (2008). Because the Ryan
Haight Act amended the CSA, references in this
document will generally be to the CSA.
by, among other things, adding several
new provisions to prevent the illegal
distribution and dispensing of
controlled substances by means of the
internet. While the Ryan Haight Act
amended the CSA to generally require
that the dispensing of controlled
substances by means of the internet be
predicated on a valid prescription
involving at least one in-person medical
evaluation, it also established seven
distinct categories of telemedicine
pursuant to which a practitioner may
prescribe controlled substances for a
patient despite never having evaluated
that patient in person, provided that,
among other things, such practice is in
accordance with applicable Federal and
State laws.4 Notably, the Ryan Haight
Act does not limit a practitioner’s ability
to prescribe controlled substances for a
patient after there has been an in-person
medical evaluation. In other words, the
Ryan Haight Act applies only when a
prescribing practitioner wishes to
prescribe controlled substances via the
practice of telemedicine and has not
otherwise conducted an in-person
medical evaluation prior to the issuance
of the prescription. Furthermore, as
described below, the Ryan Haight Act
and DEA’s implementing regulations do
not apply to other forms of
telemedicine, telehealth, or
telepsychiatry that are not otherwise
defined in the CSA.
The Ryan Haight Act is intended to
address the grave threat to public health
and safety caused by practitioners who
prescribed controlled substances via the
internet without establishing a valid
practitioner-patient relationship through
fundamental steps such as performing
an in-person medical evaluation of a
patient. Prior to the enactment of the
Ryan Haight Act, the internet was being
exploited to facilitate the unlawful
distribution of legally manufactured
controlled substances through rogue
websites.5 These rogue websites
facilitated the misuse of prescribed
controlled substances, such as
hydrocodone and oxycodone by
adolescents and others, and thereby
increased the number of drug
poisonings and other harmful
consequences caused by the misuse of
these substances.6
As indicated above, the Ryan Haight
Act generally requires an in-person
medical evaluation prior to the
prescription of controlled substances.
Section 829(e), however, also provides
an exception to this in-person medical
1 21
2 21
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4 21
U.S.C. 802(54)(A)–(G).
REP. 110–869(I), 11, 2008 U.S.C.C.A.N.
2130, 2131.
6 Id.
evaluation requirement where the
practitioner is ‘‘engaged in the practice
of telemedicine’’ 7 within the meaning
of the Ryan Haight Act (21 U.S.C.
802(54)). Consistent with the Ryan
Haight Act’s purpose of preventing
diversion of controlled substances by
means of the internet, the Act’s
definition of ‘‘the practice of
telemedicine’’ does not encompass all
forms of telemedicine. Rather, as set
forth in 21 U.S.C. 802(54), the Ryan
Haight Act’s definition of the ‘‘practice
of telemedicine’’ includes seven distinct
categories of telemedicine that Congress
determined were appropriate to allow
for the prescribing of controlled
substances despite the practitioner
never having evaluated the patient in
person.
The CSA and DEA’s regulations only
define the ‘‘practice of telemedicine’’ for
the purpose of establishing obligations
under the CSA and DEA regulations.
DEA is not attempting to define what
constitutes appropriate telemedicine in
other contexts. Thus, the proposed rule
would not determine when substances
that are not controlled may be
appropriately prescribed via
telemedicine or the nature of
appropriate remote medical treatment
more generally. Moreover, this proposed
rule would not create any additional
regulatory requirements for other
categories of telemedicine authorized by
the CSA under 21 U.S.C. 802(54).
Rather, it would create additional
circumstances under which the use of
telemedicine to prescribe controlled
substances is authorized by the CSA.
For example, to fall under the last
category of telemedicine, the practice is
‘‘conducted under any other
circumstances that the Attorney General
and the Secretary have jointly, by
regulation, determined to be consistent
with effective controls against diversion
and otherwise consistent with the
public health and safety.’’ 8
As described below, in other
circumstances encompassed by the
Ryan Haight Act’s definition of the
‘‘practice of telemedicine,’’ the Act
contemplates that the practitioner will
be permitted to prescribe controlled
substances by means of the internet
despite not having conducted an inperson medical evaluation, provided
certain safeguards are in place to ensure
that the practitioner who is engaged in
the practice of telemedicine is able to
conduct or participate in a bona fide
medical evaluation of the patient at the
remote location and is otherwise
prescribing for a legitimate medical
5 H.R.
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7 Id.
8 Id.
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802(54)(G).
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purpose while acting in the usual course
of professional practice.
To fall within this definition of the
‘‘practice of telemedicine,’’ the practice
also must be ‘‘in accordance with
applicable Federal and State laws’’ and
use ‘‘a telecommunications system
referred to in [42 U.S.C. 1395m(m)].’’ 9
Title 42 U.S.C. 1395m(m) references, but
does not define, such
telecommunications systems. The
Centers for Medicare & Medicaid
Services (CMS), however, have
promulgated regulations implementing
those provisions, and those regulations
do define ‘‘interactive
telecommunications system.’’ 10 In
particular, 42 CFR 410.78(a)(3) defines
an interactive telecommunications
system as, in pertinent part, multimedia
communications equipment that
includes, at a minimum, audio and
video equipment permitting two-way,
real-time interactive communication
between the patient and practitioner.
The same provision also provides that
for treatment of a mental health disorder
to a patient in their home, interactive
telecommunications may include twoway, real-time audio-only
communication technology if the
practitioner is technically capable to use
an interactive telecommunications
system, but the patient is not capable of,
or does not consent to, the use of video
technology.
CMS recently revised 42 CFR
410.78(a)(3), to which the definition of
‘‘practice of telemedicine’’ refers, in a
final rule published on November 19,
2021 (HHS CMS Rule).11 Previously, 42
CFR 410.78(a)(3) had limited an
‘‘interactive telecommunications
system’’ to ‘‘multimedia
communications equipment that
includes, at a minimum, audio and
video equipment permitting two-way,
real-time interactive communication
between the patient and distant site
physician or practitioner.’’ Revised 42
CFR 410.78(a)(3) retains this
requirement of both audio and video
real-time communication between the
patient and the distant practitioner in
most circumstances: as the HHS CMS
rule revising 42 CFR 410.78(a)(3) stated,
‘‘[T]wo-way, audio/video
communications technology is the
9 Id.
802(54).
CFR 410.78(a)(3).
11 Medicare Program; Calendar Year 2022
Payment Policies Under the Physician Fee Schedule
and Other Changes to Part B Payment Policies;
Medicare Shared Savings Program Requirements;
Provider Enrollment Regulation Updates; and
Provider and Supplier Prepayment and PostPayment Medical Review Requirements (HHS CMS
Rule), 86 FR 64996, 65666 (Nov. 19, 2021).
10 42
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appropriate, general standard for
telehealth services . . . .’’ 12
CMS’s revised definition of
‘‘interactive telecommunications
systems,’’ however, now also includes
two-way, real-time audio-only
communication technology under
certain limited circumstances;
limitations that are designed to maintain
audio-video equipment as the general
standard and only authorize audio-only
equipment when both necessary and
appropriate. First, to allow the use of
audio-only equipment, the medical
services at issue must be ‘‘furnished for
purposes of diagnosis, evaluation, or
treatment of a mental health disorder.’’
CMS recognized that, for many mental
health services, visualization between
the patient and clinician may be less
critical to provision of the service:
‘‘[M]ental health services are different
from other services because they
principally involve verbal exchanges
between patient and practitioner.’’ 13
CMS also responded to comments
requesting that audio-only technology
be permitted for a broader scope of
Medicare telehealth services. CMS
distinguished ‘‘services furnished for
purposes of diagnosis, evaluation, or
treatment of a mental health disorder,’’
from other services and specified that
the scope of the audio-only policy is
limited to mental health disorders.14
CMS also acknowledged that ‘‘[T]here
may be particular instances where
visual cues may help a practitioner’s
ability to assess and treat patients with
mental health disorders, especially
where opioids or mental health
medications are involved . . . .’’ 15
Second, to allow the use of audio-only
equipment, the mental health services
must be provided ‘‘to a patient in their
home.’’ CMS reasoned that other sites at
which a patient generally receives
telehealth services are ‘‘medical settings
that are far more likely to have access
to reliable broadband internet service.
When a patient is located at one of these
. . . sites, access to care is far less likely
to be limited by access to broadband
that facilitates a video connection. In
contrast, access to broadband, devices,
and user expertise is less likely to be
available at a patient’s home.’’ 16 CMS,
however, adopted a flexible
understanding of ‘‘home:’’ ‘‘[O]ur
definition of home can include
temporary lodging such as hotels and
homeless shelters as well as locations a
short distance from the [patient’s]
at 65060.
13 Id. at 65061.
14 Id.
15 Id.
16 Id. at 65060.
Frm 00023
17 Id.
at 65059.
at 65062.
19 Id. at 65060.
20 The CSA’s definition of ‘‘practice of
telemedicine’’ requires that it be ‘‘in accordance
with applicable Federal and State laws.’’ 21 U.S.C.
802(54).
18 Id.
12 Id.
PO 00000
home’’ (if the patient, ‘‘for privacy or
other personal reasons, chooses to travel
a short distance away from the exact
home location during a telehealth
service . . . .’’).17
Third, to allow the use of audio-only
equipment, the distant site physician or
practitioner must be ‘‘technically
capable’’ of meeting the usual two-way,
audio-video interactive communication
standard. And, relatedly, the patient
must ‘‘not [be] capable of, or . . . not
consent to, the use of video
technology.’’ In other words, ‘‘because it
is generally appropriate to require the
use of two-way, real-time audio/video
communications technology,’’ 18 the
distant practitioner engaging in
telehealth must make the option of
audio-video communication available to
the patient. The audio-only option may
only be used if the patient ‘‘is unable to
use, does not wish to use, or does not
have access to two-way, audio/video
technology.’’ 19
As stated in proposed 21 CFR
1306.34(a)(2), DEA is proposing to
promulgate regulations that would
require practitioners to otherwise
comply with relevant State and Federal
law.20 In those States where state law
prohibits the prescription of a
controlled substance based solely on an
audio-only evaluation, the proposed
regulation would not authorize the
audio-only prescription of
buprenorphine for opioid-use disorder
(OUD). Thus, this proposed
rulemaking’s authorization of audioonly OUD prescribing would only apply
in those States where such prescriptions
are consistent with State law—it would
authorize OUD buprenorphine
prescribing based on an audio-video
interaction in those states if doing so
was otherwise consistent with State and
Federal law.
DEA has consulted with
representatives of the Secretary of
Health and Human Services (HHS)
regarding the substantive changes to the
definition of ‘‘interactive
telecommunications systems’’ in the
HHS CMS Rule. Subsequent to the
promulgation of the HHS CMS Rule,
DEA is proposing to promulgate these
specific conditions under which
practitioners would be authorized to
engage in the practice of telemedicine.
The proposed changes to DEA’s
regulations herein, in conjunction with
the changes already implemented in the
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HHS CMS Rule, are consistent ‘‘with
effective controls against diversion and
otherwise consistent with the public
health and safety’’ pursuant to 21 U.S.C.
802(54)(G). HHS was consulted in the
creation of these regulatory provisions
and concurs with this proposed
rulemaking. HHS also has advised DEA
that no additional rulemaking by HHS is
necessary as it pertains to the
promulgations of these provisions
pursuant to 21 U.S.C. 802(54)(G).
II. Background
Buprenorphine Used in Treating Opioid
Use Disorder
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DEA is proposing to promulgate
regulations which would expand the
circumstances under which
practitioners are authorized to prescribe
any schedule III, IV, or V narcotic drug
approved by the Food and Drug
Administration (FDA) specifically for
use in the maintenance or detoxification
treatment of OUD via a telemedicine
encounter, including an audio-only
telemedicine encounter that meets the
standard of 42 CFR 410.78(a)(3),
provided certain requirements and
conditions are met. The only schedule
III–V narcotic drug that is currently
approved by the FDA for such treatment
is buprenorphine.21 Thus, DEA is
proposing to expand the situations in
which practitioners are authorized to
prescribe buprenorphine via
telemedicine for maintenance or
detoxification treatment under limited
circumstances to expand access to
treatment for OUD while maintaining
effective controls against diversion.
Buprenorphine comes in two
formulations, a sole agent or combined
with naloxone, both of which are very
effective medications for the treatment
of OUD.22 Commonly prescribed
formulations of buprenorphine are
indicated by the FDA for the treatment
of OUD.23 DEA classifies buprenorphine
as a schedule III narcotic controlled
substance as it has a currently accepted
medical use in treatment, and has less
of a potential for misuse than the other
controlled substances in schedules I and
II, and its misuse may lead to moderate
to low physical dependence or high
21 Buprenorphine is a partial mixed opioid
agonist that comes in tablets, sublingual, as well as
injectable formulations. It produces effects such as
euphoria or respiratory depression at low to
moderate doses. With buprenorphine, however,
these effects are weaker than full opioid agonists
such as methadone and heroin.
22 Treatment Improvement Protocol 63 for
guidance on medication for OUD. Medications for
Opioid Use Disorder, Treatment Improvement
Protocol 63, SAMHSA (2021).
23 Id.
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psychological dependence.24 Studies
have shown that buprenorphine helps to
lower physical dependency on other
opioids and reduces withdrawal
symptoms, drug cravings, and morbidity
and mortality for patients with OUD
while also providing lower euphoric
effects compared to other opioids.25
Moreover, buprenorphine is a partial
opioid receptor agonist, it has less of an
effect on respiratory depression, has a
lower risk of overdose, and produces
lower euphoric effects than full agonist
opioids.26 Similar to other opioids,
some patients and individuals who
misuse buprenorphine may experience
withdrawal upon stopping the
medication. Thus, buprenorphine is an
effective medication for treating OUD,
especially when used as part of a
complete treatment plan, but
buprenorphine may also be dangerous
when not used as prescribed.
Combination products containing
buprenorphine and naloxone can
potentially deter misuse for certain
individuals. For example, Suboxone®
combines buprenorphine with
naloxone, an opioid antagonist which is
largely inactive when the product is
administered sublingually as indicated,
which is intended to discourage use by
injection or insufflation. Specifically,
when Suboxone®, or a generic form of
buprenorphine/naloxone combination
product, is injected or insufflated,
naloxone may cause uncomfortable side
effects, including precipitated opioid
withdrawal, which may deter certain
forms of diversion. The issuance of
Suboxone® by practitioners may be
considered preferable to injectable drugs
used to treat OUD, such as long-acting
naltrexone or long-acting
buprenorphine, as such treatment for
OUD must be administered by a health
care professional. Moreover, this
formulation may be preferred by
practitioners as patients must not be
physically dependent on opioids before
beginning oral or injected naltrexone,
which requires a period of several days
of abstinence. Inducing buprenorphine
requires a shorter period of abstinence
24 21 U.S.C. 812(b)(3)(A)–(C); 21 CFR
1308.13(e)(2)(i).
25 Buprenorphine, Substance Abuse and Mental
Health Services Administration, (April 19, 2022),
https://www.samhsa.gov/medication-assistedtreatment/medications-counseling-relatedconditions/buprenorphine; see Medications for
Opioid Use Disorder Save Lives, National
Academies of Sciences, Engineering, and Medicine.
(2019) https://nap.nationalacademies.org/catalog/
25310/medications-for-opioid-use-disorder-savelives.
26 A Dahan et al., Buprenorphine induces ceiling
in respiratory depression but not in analgesia,
(March 07, 2006) https://pubmed.ncbi.nlm.nih.gov/
16547090/.
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before induction to avoid precipitated
withdrawal.
The Unprecedented Trafficking of
Fentanyl and the Drug Poisoning Crisis
The diversion and misuse of opioids
lead to drug poisonings and deaths that
can be mitigated by increased access to
treatment for OUD. More than one
million people in the United States have
died from drug poisonings between
1999 and 2021.27 The rate of drug
poisoning deaths involving synthetic
opioids (including fentanyl) has
substantially increased since 2013 to
2021. More recently, as stated above, an
estimated 107,477 drug poisoning
deaths occurred between September 1,
2021 and August 31, 2022.28
Approximately 70% of these drug
poisoning deaths involved fentanyl and
other synthetic opioids.29
The availability of fentanyl
throughout the United States has
reached unprecedented heights. In 2022,
DEA seized more than 50 million fake
pills and 10,000 pounds of fentanyl
powder equating to approximately 379
million deadly doses of fentanyl.30
These seizures have occurred in every
State in the country. This is enough
fentanyl to supply a potentially lethal
dose to every member of the U.S.
population.
Access to buprenorphine decreases
the risk of drug poisoning.31 Moreover,
increasing access to buprenorphine after
a drug poisoning has also been
associated with a reduced risk of
death.32 Thus, DEA believes increasing
patient access to MOUD is necessary to
both prevent and ameliorate the
27 Drug Overdose Deaths, Center for Disease
Control, National Center for Injury Prevention and
Control (Accessed on July 08, 2022), https://
www.cdc.gov/drugoverdose/deaths/.
28 Centers for Disease Control and Prevention,
National Center for Health Statistics, National Vital
Statistics, Provisional Drug Overdose Death Counts,
12 Month-ending Provisional Number of Drug
Overdose Deaths by Drug or Drug Class, https://
www.cdc.gov/nchs/nvss/vsrr/drug-overdosedata.htm. (Accessed January 17, 2023) (Sum of
Predicted Value for the Number of Drug Overdose
Deaths).
29 Id.
30 Drug Enforcement Administration Announces
the Seizure of Over 379 million Deadly Doses of
Fentanyl in 2022, (January 04, 2023) https://
www.dea.gov/press-releases/2023/01/04/drugenforcement-administration-announces-seizureover-379-million-deadly.
31 Dadiomov, et al., Buprenorphine and naloxone
access in pharmacies within high overdose areas of
Los Angeles during the COVID–19 pandemic, Harm
Reduction Journal. (June 29, 2022) https://
harmreductionjournal.biomedcentral.com/articles/
10.1186/s12954-022-00651-3.
32 Larochelle, et al., Medication for Opioid Use
Disorder After Nonfatal Opioid Overdose and
Association With Mortality, Annals of Internal
Medicine, (August 07, 2018) https://
www.acpjournals.org/doi/10.7326/M17-3107.
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catastrophic drug poisonings that are
occurring as a result of fentanyl.
Importantly, a recent study found that
the percentage of opioid overdose
deaths involving buprenorphine did not
increase in the months after prescribing
flexibilities, including the remote
induction and prescribing of
buprenorphine for OUD treatment via
telemedicine, were put in place during
the COVID–19 pandemic.33
Diversion Risk of Buprenorphine
Buprenorphine is a critical tool in
efforts to stem the drug poisoning crisis
that is occurring across the country.
Still, buprenorphine, when used
improperly, may lead to misuse and
death.34 Self-medication for the
management of symptoms may also be
a motivation for non-prescribed misuse
of buprenorphine.35 Moreover, issues
with availability, accessibility, and
acceptability of formal buprenorphine
treatment may also contribute to nonprescribed buprenorphine misuse.36
Diversion of buprenorphine and other
prescription opioids remains an issue
across the country: in the past two
years, DEA has seen Federal
investigations of buprenorphine
diversion across the country.37 Thus
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33 Tanz,
et al. Trends and characteristics of
buprenorphine-involved overdose deaths prior to
and during the COVID–19 pandemic, JAMA.
(January 20, 2023) https://jamanetwork.com/
journals/jamanetworkopen/fullarticle/2800689.
34 See ex. TDH Finds Some Overdose Deaths
Associated With Buprenorphine. Tennessee
Department of Health, (January 08, 2018) https://
www.tn.gov/health/news/2018/1/8/tdh-finds-someoverdose-deaths-associated-withbuprenorphine.html; Bishop, S.D., BuprenorphineRelated Deaths in North Carolina from 2010 to
2018. (September, 2021) pubmed.ncbi.nlm.nih.gov/
34145443/. See
35 See Cicero et al. Understanding the use of
diverted buprenorphine, Drug and Alcohol
Dependence, (December 01, 2018) https://
www.sciencedirect.com/science/article/pii/
S0376871618307245; McDonald et al., Assessing
Motivations for Nonprescribed Buprenorphine Use
Among Rural Appalachian Substance Users,
Journal of Addiction Medicine, (August 31, 2022)
https://pubmed.ncbi.nlm.nih.gov/36044288/;
Silverstein et al., On my own terms: Motivations for
self-treating opioid-use disorder with nonprescribed buprenorphine, Drug and Alcohol
Dependence, (May 01, 2020) https://
pubmed.ncbi.nlm.nih.gov/32203863/; Butler et al.,
How Motivations for Using Buprenorphine
Products Differ From Using Opioid Analgesics:
Evidence from an Observational Study of internet
Discussions Among Recreational Users, JMIR public
health and surveillance, (March 25, 2020) https://
pubmed.ncbi.nlm.nih.gov/32209533/.
36 Silverstein et al., On my own terms:
Motivations for self-treating opioid-use disorder
with non-prescribed buprenorphine, Drug and
Alcohol Dependence, (May 01, 2020) https://
pubmed.ncbi.nlm.nih.gov/32203863/; McLean et
al., The international journal on drug policy, (July
20, 2019) https://pubmed.ncbi.nlm.nih.gov/
31330267/.
37 See, e.g., United States v. Kesari (S.D. W.Va.
2021) (Charleston doctor convicted of selling
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safeguards are necessary to mitigate the
risk of diversion.38
Purpose and Need for Rulemaking
DEA is proposing to promulgate
regulations which would increase
patient access to buprenorphine
treatment for OUD with the goal of
providing effective controls against
diversion. Thus, DEA is proposing to
promulgate regulations that would
expand the circumstances under which
registered practitioners would be
authorized to prescribe buprenorphine
for OUD via telemedicine, including an
audio-only telemedicine encounter
meeting the requirements of 42 CFR
410.78(a)(3), and inform these
practitioners of their related obligations.
DEA is also proposing to promulgate
regulations that are necessary to
mitigate the risk of diversion associated
with this authorization.
Unmet Need To Facilitate Patient
Access to Treatment for Opioid Use
Disorder
The majority of individuals suffering
with OUD unfortunately do not receive
treatment with FDA-approved
medications.39 DEA is proposing to
buprenorphine prescriptions for cash); United
States v. Summers (E.D. Pa. 2018) (Philadelphia
doctor operating ‘‘National Association for
Substance Abuse Prevention & Treatment’’ pleaded
guilty to selling buprenorphine prescriptions to
drug dealers); United States v. SelfRefind (E.D. Ky.
2014) (largest buprenorphine clinic in the U.S. paid
$15 million to resolve civil allegations regarding
urine-testing scams, around the same time
Kentucky suspended its director’s authorization to
prescribe buprenorphine drugs due to reckless
overprescribing).
38 See Mance E Buttram et al., Increasing rates of
buprenorphine diversion in the United States, 2002
to 2019 (July, 31 2021) https://
pubmed.ncbi.nlm.nih.gov/34302707/. See Monico,
L.B. et. al., Exploring nonprescribed use of
buprenorphine in the criminal justice system
through qualitative interviews among individuals
recently released from incarceration. (April, 2021),
https://pubmed.ncbi.nlm.gov/33612198 (Inmates
and correctional officers have diverted
buprenorphine, particularly in sublingual strip
form, among inmates through illicit channels
within correctional facilities as buprenorphine
strips can easily be hidden and consumed without
detection). See Richert, T. et. al., Illicit use of
methadone and buprenorphine among adolescents
and young adults in Sweden. (October 18, 2013),
https://www.ncbi.nlm.nih.gov/pmc/articles/
PMC3853648/. Lofwall MR, Walsh SL. A review of
buprenorphine diversion and misuse: the current
evidence base and experiences from around the
world. J Addict Med. (September 01, 2015) https://
www.ncbi.nlm.nih.gov/pmc/articles/PMC4177012/.
(showing that individuals may use diverted
buprenorphine for the purposes of mitigating
withdrawal symptoms in between use of illicit
opioids).
39 Only one in Four People Needing Treatment for
Opioid Use Disorder Received Medication,
Columbia University School of Public Health,
(March 23, 2022), https://
www.publichealth.columbia.edu/public-healthnow/news/only-one-four-people-needing-treatmentopioid-use-disorder-received-medication.
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promulgate regulations that would
address the unmet need to increase
patient access to treatment for OUD.
This rulemaking would enable those
patients who, prior to being able to
access treatment under the
circumstances newly authorized, did
not wish to, or did not possess the
means to, be inducted for the treatment
of OUD.
Until recently, there was a nationwide
shortage of practitioners authorized to
dispense buprenorphine.40 Expanding
the circumstances under which
practitioners are authorized to prescribe
via telemedicine encounters, including
audio-only encounters, would increase
access to treatment for those individuals
with OUD who may not want to seek
treatment, or are unable to seek
treatment, due to various economic,
geographical, sociological, and logistical
reasons.
Many patients may lack the financial
means to obtain in-person treatment
traditionally or through audio-video
telemedicine encounters. Patients who
are unhoused, unemployed, or facing
other challenges may find it prohibitive
to afford devices capable of audio-video
telemedicine encounters or consistent
access to wireless internet and/or data
plans adequate to support bandwidth
demands of telemedicine encounters.41
Many individuals have unstable access,
or experience interruptions in access, to
this technology.42 Additionally, many
rural and frontier communities do not
have access to reliable broadband or
wireless networks or an unwillingness
to engage in telemedicine encounters
directly.43
Expanding a registered practitioners’
authority to prescribe buprenorphine for
the treatment for OUD via telemedicine,
including an audio-only telemedicine
encounter meeting the standards of 42
CFR 410.78(a)(3), would expand access
to much needed medical treatment.44
40 Conway, Kevin P et al. Rural and urban
differences in undersupply of buprenorphine
provider availability in the United States, 2018,
Addiction science & clinical practice (January 31,
2022), https://www.ncbi.nlm.nih.gov/pmc/articles/
PMC8802270/.
41 DeLaCruz et al., Telemental Health for the
Homeless Population: Lessons Learned when
Leveraging Care, (December, 08 2022) https://
www.ncbi.nlm.nih.gov/pmc/articles/PMC9734763/.
42 Id.
43 Id.
44 Under the Americans with Disabilities Act
(ADA) and section 504 of the Rehabilitation Act,
practitioners are generally obligated to ensure
effective communication and provide patients with
disabilities with equal access to services. See, e.g.,
28 CFR 35.130(a); 28 CFR 35.130(b)(1); 28 CFR
35.160; 28 CFR 36.202(b); 28 CFR 36.303(c); 45 CFR
84.4; 45 CFR 84.52. While audio-only telemedicine
may be appropriate for some patients, it may not
satisfy practitioners’ ADA and section 504
obligations in all cases, particularly when patients
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Recent studies have revealed that, in
some populations, upward of 94 percent
of the unhoused community had a cell
phone, while a limited amount owned
or had access to computers, tablets, or
internet access.45 Not only would this
rulemaking make it easier for patients to
obtain treatment, many practitioners
have shown a willingness to treat
patients using an audio-only
telecommunications system. An online
survey showed that practitioners who
engaged in the practice of telemedicine
and prescribed buprenorphine
considered telephonic means to be
‘‘more accessible.’’ 46
Increased Access Must Be Consistent
With Effective Controls Against
Diversion and Public Health and Safety
In concert with the goal of expanding
patient access to MOUD,47 however,
DEA must address diversion risks
associated with the expanding access to
narcotics over the phone. As established
above, the diversion of buprenorphine is
dangerous and may lead to misuse and
sometimes fatal drug poisonings.
Additionally, DEA must draft
regulations which are consistent with
public health and safety. Thus, DEA is
proposing to promulgate regulations to
require a thorough review of
Prescription Drug Monitoring Program
(PDMP) data prior to prescribing, a
medical evaluation of the patient
meeting certain conditions within 30
days, as well as comprehensive
recordkeeping requirements.
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Prescription Drug Monitoring Program
Review
DEA is promulgating regulations that
would require a practitioner to review
and consider PDMP data prior to
prescribing buprenorphine under the
authority the regulations would grant.48
This review would allow the
practitioner to make informed clinical
decisions and identify and counsel the
are deaf or have hearing loss. See The Department
of Justice, Civil Rights Division, The Americans
With Disabilities Act and the Opioid Crisis:
Combating Discrimination Against People in
Treatment or Recovery (April 05, 2022) https://
www.ada.gov/opioid_guidance.pdf.
45 Molfenter T, Roget N, Chaple M, et al. Use of
Telehealth in Substance Use Disorder Services
During and After COVID–19: Online Survey Study.
JMIR Ment Health. (February 08, 2021) https://
www.ncbi.nlm.nih.gov/pmc/articles/PMC7895293/.
46 Id.
47 DEA references ‘‘Medication Assisted
Treatment’’ (MAT) in its regulations in 21 CFR
1301.28. For the purposes of this rulemaking, all
references to MAT refer to the dispensing or
prescribing of Schedule III, IV, or V narcotic
controlled drugs or combinations of narcotic
controlled drugs that have been approved by FDA
specifically for use in maintenance or detoxification
treatment.
48 Proposed 21 CFR 1306.34(b)(2).
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patient regarding higher risks (such as
co-prescribed benzodiazepines), identify
patients who may have obtained a
buprenorphine or another recent
prescription from another source
(thereby preventing diversion), monitor
for practitioners deliberately
misprescribing buprenorphine, and
prevent the diversion of such drugs
through practitioners’ lack of awareness
that the patient on the other end of the
line does not have an actual medical
need or requires a more careful
examination.49
Without requiring practitioners to
review and consider PDMP data,
different practitioners could prescribe
multiple 30-day supplies, or subsequent
30-day supplies indefinitely, to patients
without realizing that they are doing so.
Some studies have concluded that state
rules requiring review of the PDMP are
among the most effective interventions
for preventing opioid drug poisonings
and are correlated with a reduction in
the proportion of patients that engage in
drug seeking behavior.50 Thus, DEA
believes it is necessary to require the
review and consideration of PDMP data
prior to prescribing buprenorphine so as
to require due diligence on the part of
the practitioner in order to effectively
identify patients who have received
prior prescriptions for buprenorphine or
other prescriptions that might
negatively interact with buprenorphine.
DEA believes a PDMP review
requirement for prescribers, prior to
writing a prescription, would balance
the states’ interest in regulating the
practice of medicine with the
overarching interest in mitigating the
high risk of diversion for prescriptions
which do not require face-to-face
interaction with the prescribing
physician—a balance in line with the
text of 21 U.S.C. 802(54).
Requirement of Medical Evaluation in
Person or in Presence of Another DEA
Registrant Within 30 Days
DEA is proposing to promulgate
regulations which would require the
patient receiving buprenorphine under
the expanded authority of these
regulations to receive a medical
evaluation meeting certain requirements
within 30 days of being prescribed
buprenorphine for the induction of OUD
treatment in order to obtain an
49 Id. Under the proposed rule, a practitioner
employed by or contracting with the Department of
Veterans Affairs (VA) also would be required to
review the VA internal prescription database.
50 See Tamara M Haegerich et al., Evidence for
state, community and systems-level prevention
strategies to address the opioid crisis, (Sep 19,
2019), https://pubmed.ncbi.nlm.nih.gov/31585357/.
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12895
additional supply of buprenorphine.51
In particular, under the proposed
regulations, within 30 days, the patient
would have to either be examined in
person by the prescribing practitioner or
practice, or the prescribing practitioner
would have to examine the patient
remotely while the patient is in the
physical presence of another DEAregistered practitioner participating in
an audio-video telemedicine encounter
with the prescribing practitioner.
Alternatively, the requirement of a
medical evaluation is satisfied when the
prescribing practitioner receives a
qualifying telemedicine referral for
medically-assisted treatment for opioid
use disorder from a DEA-registered
practitioner prior to issuing a
prescription for controlled substances.
Under this scenario, the patient has
already received an in-person medical
evaluation from the referring
practitioner, and thus the prescribing
practitioner is authorized to prescribe
beyond the 30 day limit.
This requirement is necessary because
the CSA generally requires each
prescription for a schedule II through V
controlled substance to be predicated
upon at least one in-person medical
evaluation. Although the proposed
regulations would create an exception to
this requirement, they must still
maintain the CSA standard that
prescriptions be tied to a medical
evaluation in the physical presence of a
DEA-registered practitioner. Without
this provision, practitioners could
theoretically prescribe buprenorphine
without ever conducting a thorough
medical evaluation of the patient.
Moreover, requiring these medical
evaluations subsequent to telemedicine
encounters facilitates common practices
by which some practitioners treat OUD.
The required medical evaluation can
enhance treatment by enabling the
practitioner to conduct tests which
make sure that buprenorphine is safe
and appropriate for the patient.52 These
include, but are not limited to, drug and
toxicology screenings, liver enzyme
tests, screenings for infectious diseases
such as hepatitis, etc.53 Additionally,
practitioners are able to assess
conditions which may or may not be
available in audio-only or even audiovideo telemedicine encounters, such as
signs of opioid intoxication or
withdrawal, physical signs of opioid
use, as well as the medical
51 Proposed
21 CFR 1306.34(b)(4).
Quick Start Guide, SAMHSA
https://www.samhsa.gov/sites/default/files/quickstart-guide.pdf.
53 Id.
52 Buprenorphine
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consequences of opioid use.54 Thus, this
required medical evaluation can result
in enhanced treatment in some
circumstances.
For these reasons, and to comply with
congressional directives in the Ryan
Haight Act, DEA is proposing to require
a medical evaluation meeting these
standards in order to prescribe a supply
in excess of 30 days to assist DEA in the
investigation and prosecution of
malicious practitioners to ensure the
public health and safety of patients and
to help maintain effective controls
against diversion.
Recordkeeping
Comprehensive recordkeeping is
necessary to provide sufficient
documentation of the details of the
audio-only telemedicine encounter and
ensure practitioners’ compliance with
the provisions listed herein. Thus, DEA
is requiring practitioners to keep
comprehensive records establishing the
nature of the encounter, the patient’s
proffered reason for the audio-only
encounter (if the patient requests the
telemedicine encounter be audio-only
rather than audio-video), and all efforts
to comply with PDMP checks.55
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Prescribing Buprenorphine for the
Induction of Medication for the
Treatment of Opioid Use Disorder
DEA recognizes that the induction of
buprenorphine via a telemedicine
encounter should not constitute the
entirety of a treatment protocol for OUD
for many patients. As explained by
SAMHSA, the use of buprenorphine
should be part of a ‘‘comprehensive
management program that includes
other treatment plans such as
psychosocial support.’’ 56 Thus, this
rulemaking would be limited to the
prescribing of buprenorphine simply for
the treatment for OUD for patients via
telemedicine encounters described in
this rulemaking, and does not seek to
circumvent or replace the
individualized treatment protocols
present in the usual course of treating
an individual with OUD.57
54 Medications for Opioid Use Disorder,
Treatment Improvement Protocol 63, SAMHSA
(2021) https://store.samhsa.gov/sites/default/files/
SAMHSA_Digital_Download/PEP21-02-01-002.pdf.
55 Proposed 21 CFR 1306.34(7)(i)–(iv).
56 Buprenorphine Quick Start Guide, SAMHSA
https://www.samhsa.gov/sites/default/files/quickstart-guide.pdf.
57 Registrants may refer to Treatment
Improvement Protocol 63 for guidance on
medication for OUD. Medications for Opioid Use
Disorder, Treatment Improvement Protocol 63,
SAMHSA (2021) https://store.samhsa.gov/sites/
default/files/SAMHSA_Digital_Download/PEP2102-01-002.pdf. See also SAMHSA, Telehealth for
the Treatment of Serious Mental Illness and
Substance Use Disorders, (2021). https://
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Request for Comments
With respect to the proposed rule,
DEA invites comments concerning
whether any clarifications or other
regulatory provisions are warranted to
ensure appropriate access to care,
consistent with effective controls
against diversion and otherwise
consistent with the public health and
safety. DEA invites comments on the
proposed practitioner recordkeeping
obligations. DEA also seeks comments
about additional safeguards or
flexibilities that should be considered
with respect to this rule. Moreover, DEA
invites comments on whether the Notice
of Proposed Rulemaking, entitled
‘‘Telemedicine prescribing of controlled
substances when the practitioner and
the patient have not had a prior inperson medical evaluation’’ (RIN 1117–
AB40), published elsewhere in this
issue of the Federal Register, should be
combined with this rulemaking when
publishing the Final Rule as both
documents refer to prescribing via
telemedicine pursuant to 21 U.S.C.
802(54)(G).
This rule is designed to ensure that
patients do not experience lapses in
care. It is also deigned to ensure
continuity of care under the current
telehealth flexibilities in place as a
result of the COVID–19 public health
emergency. The COVID–19 public
health emergency is set to expire on
May 11, 2023. DEA and HHS have
provided for a notice-and-comment
period of 30 days so that they have an
opportunity to fully review and respond
to any submissions.
III. Section-by-Section Discussion of
Proposed Rule
§ 1300.04 Definitions Relating to the
Dispensing of Controlled Substances by
Means of the Internet
DEA is proposing to amend 21 CFR
1300.04 to add definitions of
‘‘prescription drug monitoring program’’
and ‘‘telemedicine encounter.’’ These
terms play significant roles in the
proposed regulations. Thus, to avoid
any ambiguity about the meaning of
those regulations, the proposed rule
would specifically define those terms.
Under the proposed rule, the term
PDMP would mean a state controlled
substance monitoring program,
including a program supported by the
Secretary of HHS under section 399O of
the Public Health Service Act, as
amended (42 U.S.C. 280g–3). The term
‘‘telemedicine encounter’’ would mean
a communication between a practitioner
store.samhsa.gov/sites/default/files/SAMHSA_
Digital_Download/PEP21-06-02-001.pdf.
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and a patient using an interactive
telecommunications system referred to
in 42 CFR 410.78(a)(3), while the
practitioner is engaged in the practice of
medicine in accordance with applicable
Federal and State laws.
§ 1304.03 Persons Required To Keep
Records and File Reports
DEA is proposing to amend 21 CFR
1304.03 by adding new paragraph (k)
requiring a practitioner to maintain
copies of all qualifying telemedicine
referrals that he or she issues.
§ 1304.04 Maintenance of Records and
Inventories
DEA is proposing to amend 21 CFR
1304.04 by adding new paragraphs
(i)(1)–(2) that would require registrants
to maintain all records required by 21
CFR 1306.34 at the registered location
that is listed on their certificate of
registration. In most cases, this will be
the practitioner’s primary registration in
the state where the practitioner is
located.
These recordkeeping requirements
will help ensure that all records
associated with the prescribing
practitioner, as well as any DEAregistered practitioners who are present
with the patient pursuant to proposed
21 CFR 1306.34(b)(5)(ii), will be stored
in a consolidated location, which will
expedite the investigatory process for
DEA.
§ 1306.04 Purpose of Issue of
Prescription
DEA is proposing to amend 21 CFR
1306.04 by adding a new paragraph (e)
to clarify when, and for what purpose,
a practitioner may issue prescriptions
pursuant to a telemedicine encounter
under the expanded authority of these
regulations. DEA proposes to authorize
practitioners to issue prescriptions
pursuant to 21 CFR 1306.34 if and only
if the prescription is ‘‘issued for
maintenance or detoxification treatment
and . . . not . . . for any other
purpose.’’ As stated above,
buprenorphine is, at present, the only
schedule III–V narcotic controlled
substance that is approved by FDA for
maintenance and detoxification
treatment. Therefore, absent FDA
approval of another schedule III–V
narcotic controlled substance for the
treatment of OUD, this provision only
authorizes prescriptions for
buprenorphine pursuant to telemedicine
encounters for maintenance or
detoxification treatment. This section
would not authorize practitioners to
issue prescriptions for other purposes,
such as for the treatment of pain, as the
overarching purpose of this rulemaking
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is to facilitate the treatment of OUD in
a safe manner.
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§ 1306.34 Requirements for Individual
Practitioners Who Conduct the
Induction of Maintenance or
Detoxification Treatment Via
Telemedicine Encounter
DEA is proposing to amend section
1306 by adding new section 1306.34.
This new section would describe the
circumstances under which registrants
are authorized to use the expanded
authority of the proposed rule to
prescribe buprenorphine pursuant to
telemedicine encounters and the
obligations of practitioners when doing
so.
DEA is proposing to add paragraph
(a), which would list the conditions
upon which a practitioner is authorized
to prescribe buprenorphine via a
telemedicine encounter under the
proposed rule. First, unless otherwise
excepted,58 registrants would be
required under paragraph (a)(1) to
obtain a DEA dispensing registration
under 21 U.S.C. 823(g), 21 CFR
1301.13(e)(1)(iv) in the state where the
practitioner is located. Next, in order to
issue prescriptions, paragraph (a)(2)
would require the practitioner to be
authorized by state law, or not
otherwise prohibited by state law, to
engage in the practice of telemedicine in
both the state where the practitioner is
located, as well as the state where the
patient is located. This requirement is
statutory, as the CSA requires that the
‘‘practice of telemedicine’’ involving
controlled substances be conducted ‘‘in
accordance with applicable Federal and
State laws’’ pursuant to 21 U.S.C.
802(54). In those states where state law
prohibits the prescription of a
controlled substance based solely on an
audio-only evaluation,59 the proposed
regulation would not authorize the
58 The proposed rule would except from this
requirement VA practitioners, those practitioners
contracting with the VA when treating a patient of
the VA healthcare system, and those practitioners
exempt from registration under section 303(f) in all
States pursuant to § 1301.23 when acting with the
scope of the employment or contract that exempted
them from the requirement of registration under
section 303(f). It would be unduly burdensome to
require registrants otherwise exempt from the
requirement of DEA registration to become
registered with DEA solely to make use of this
proposed rule’s telemedicine flexibility. The unique
needs and expertise of the VA practitioners
similarly weigh in favor of exempting them from
this requirement. Moreover, in a related context,
Congress indicated a desire, reflected in the Ryan
Haight Act, that VA practitioners and those
practitioners exempt from registration be uniquely
allowed to engage in telemedicine without being
registered in their patients’ states. See 21 U.S.C.
831(h)(1)(B).
59 Based on DEA’s review of state law, 25 states
prohibit controlled substance prescriptions based
on audio-only encounters.
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audio-only prescription of
buprenorphine for OUD. Proposed
paragraph (a)(3) would clarify that the
prescription must comply with the
provisions of the relevant CSA and DEA
regulations that govern dispensing for
maintenance and detoxification
treatment (namely, 21 CFR
1301.13(e)(1)(iv), and 21 CFR
1306.05(b)). In other words, the
practitioner would have to possess a 21
CFR 1301.13(e)(1)(iv) registration in
order to prescribe a schedule III, IV, or
V narcotic drug approved by the FDA
specifically for use in the maintenance
or detoxification treatment. Proposed
paragraph (a)(4) would codify the
requirement that a practitioner be
technically capable of using audio and
video equipment permitting two-way,
real-time interactive communication
with the patient and the time of the
telemedicine encounter. Proposed
paragraph (a)(5) would state generally
that the practitioner must comply with
all other relevant requirements listed in
this section.
Next, paragraph (b) would list all the
requirements for practitioners when
issuing prescriptions. Proposed
paragraph (b)(1) would require that all
prescriptions issued based on a
telemedicine encounter under the
authority of the rule must be issued for
a ‘‘Schedule III, IV, or V narcotic drug
approved by the Food and Drug
Administration specifically for use in
maintenance or detoxification
treatment’’ and must be issued pursuant
to 21 CFR 1306.04. This paragraph is
designed to reduce the risk that
buprenorphine will be prescribed for
reasons other than a legitimate medical
purpose. This paragraph further
specifies that such prescriptions may
only be issued pursuant to § 1306.04 for
the purpose of maintenance or
detoxification treatment—i.e., the
practitioner cannot prescribe
buprenorphine for pain or any other
purpose besides treatment of OUD.
Proposed paragraph (b)(2) would
require that practitioners review and
consider relevant PDMP data in the state
where the patient is located prior to
prescribing.60 As stated above, this
provision is an essential safeguard to
ensure practitioners are conducting
appropriate due diligence to mitigate
risks of diversion and ensure the public
health and safety of patients.
Practitioners are encouraged to review
all PDMP data accessible to them as a
predicate to prescribing buprenorphine,
60 A practitioner employed by or contracting with
the VA additionally would have review the VA
internal prescription database, subject to the same
standards that would apply to a review of PDMP
data.
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but reviewing a period of at least one
year prior to issuing a prescription
would be required under the proposed
rule. If less than one year of data is
available, practitioners must review and
consider the entire available period.
Proposed paragraph (b)(3) would
specify the procedures for practitioners
if they are unable to access PDMP data
due to the PDMP system being ‘‘nonoperational or otherwise inaccessible as
a result of a temporary technological or
electrical failure.’’ This paragraph
includes circumstances involving
temporary technological or electrical
failures involved with the practitioner’s
attempts to access the PDMP data. This
would include, but is not limited to,
circumstances where practitioners are
unable to access PDMP data because of
public infrastructure failures such as
loss of electricity and/or loss of internet
as a result of inclement weather or
natural disasters. For example, a
practitioner could be experiencing statewide outages in their internet service
but otherwise be able to conduct a
telemedicine encounter by using a
different device such as a mobile phone
or tablet that is connected to a satellite
internet provider. In such
circumstances, DEA notes that the
practitioner must otherwise be capable
of using audio and video equipment
permitting two-way, real-time
interactive communication with the
patient at the time of the telemedicine
encounter prior to prescribing but is
unable to access the PDMP system
through the device at the time. In those
exceptionally rare circumstances, DEA
would encourage practitioners to use
any means available to access PDMP
data prior to prescribing, and
practitioners must record their attempts
to access the system as described below.
Proposed paragraph (b)(3)(i) would
require, in those circumstances where
the PDMP system is non-operational,
practitioners to limit their prescriptions
to patients to no more than a 7-day
supply until they are able to access the
PDMP system again. This limit applies
until the practitioners are able to access
the PDMP system, complete their review
of the patient’s prior prescription
history, and verify the nature of
prescriptions when applicable.
Paragraph (3)(ii) would require the
practitioner to gain access to the PDMP
system and conduct appropriate reviews
within 7 days of the telemedicine
encounter, and paragraph (3)(iii) would
require recordation of the practitioner’s
attempts to access the system (described
in more detail below). The 7-day
prescription can be refilled upon
successful review of the PDMP by the
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practitioner, as long as the prescriptions
together do not exceed a 30 day supply.
If the practitioner otherwise
completes their review of the PDMP
system pursuant to paragraph (2), or is
otherwise able to comply with all
relevant requirements in paragraph (3),
proposed paragraph (4) would authorize
practitioners to prescribe ‘‘no more than
a 30-day supply across all such
prescriptions’’ until the practitioner has
conducted the required medical
evaluation. Put another way, this
provision would allow the doctor to
provide up to a thirty-day supply in any
combination of prescriptions and
prohibits the doctor from going beyond
that until the medical evaluation is
conducted. This requirement would
limit the supply of buprenorphine
prescribed pursuant to an audio-only
telemedicine encounter to a maximum
of a 30-day supply. This supply may
include dosages that are titrated up or
down depending on the patient’s
response to the medication and the
practitioner’s medical judgment,
however, it may not exceed a supply
sufficient to treat the patient for more
than 30 days.
Proposed paragraph (b)(5) would
clarify what satisfies the medical
evaluation requirement for the purposes
of (b)(4). Such a medical evaluation
would include the prescribing
practitioner conducting a medical
evaluation while the patient is in the
physical presence of the prescribing
practitioner in (b)(5)(i), or by the
alternative schemes listed in (b)(5)(ii)
and (iii). Under the alternative proposed
in (b)(5)(ii), the patient would not be in
the physical presence of the prescribing
practitioner, but the patient would have
to be in the physical presence of another
DEA-registered practitioner pursuant to
proposed (b)(5)(ii)(A)–(D). This other
non-prescribing, physically present
practitioner would have to be acting in
the usual course of professional practice
and in accordance with applicable State
law. Also, the prescribing practitioner,
the DEA-registered practitioner on site
with the patient, and the patient would
have to participate in an audio-video
conference simultaneously (i.e., these
individuals must participate in a twoway, simultaneous interactive
communication with both audio and
video for this medical evaluation even
if audio-only communication had been
authorized under the standard of 42
CFR 410.78(a)(3) for prior
communications between the
prescribing practitioner and the patient).
Thus, even though the prescribing
practitioner would not be conducting an
in-person evaluation him or herself, he
or she could rely on the in-person
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evaluation of the on-site practitioner—
and remotely observe this evaluation via
video and audio when determining
whether to continue prescribing to the
patient.
Additionally, the requirement of a
medical evaluation is satisfied when the
prescribing practitioner receives a
qualifying telemedicine referral from a
DEA registered practitioner under
(b)(5)(iii). Under this scheme, the
patient must have received a face-to-face
evaluation from a DEA registered
practitioner, referred to simply as the
referring practitioner. The referring
practitioner may then issue a written
qualifying telemedicine referral 61 to the
prescribing practitioner based on the
diagnosis, prognosis, or treatment that
was provided for the medical issue
upon which the medical evaluation was
predicated pursuant to paragraphs (A)
and (C). Moreover, under paragraph (B),
the referral practitioner must
communicate the results of the medical
evaluation which include any diagnosis,
prognosis, or treatment to the
prescribing practitioner prior to the
prescribing practitioner issuing the
prescription. If the prescribing
practitioner issues the prescription to
the patient prior to receiving the
information provided in (B), this does
not qualify as a medical evaluation for
the purposes of § 1306.34(b)(5) and the
patient must receive a medical
evaluation in the manner described in
paragraph (b)(5)(i) or (b)(5)(ii). Once a
medical evaluation meeting the
specified criteria is performed, the
proposed rule would allow a
practitioner to continue prescribing to
the patient, so long as doing so was
consistent with legitimate medical
purposes and a subsequent evaluation
was not required by law or other
provisions of this chapter.
Last, proposed paragraph (b)(6) would
create recordkeeping requirements for
practitioners who issue prescriptions in
the manner described by this section.
Paragraph (6)(i) would require records
indicating whether the telemedicine
encounter was conducted using audiovideo or audio-only technology. This
recordkeeping requirement is essential
for investigation purposes, as DEA
would have no other means of verifying
the nature of the telemedicine
encounter. Proposed paragraph (6)(ii)
would also require the practitioner to
record the patient’s reason for
61 Proposed 21 CFR 1300.04(k). Note that this
definition was proposed by DEA in a distinct Notice
of Proposed Rulemaking that also addresses
telemedicine. See RIN 1117–AB40, published
elsewhere in this issue of the Federal Register. The
public is encouraged to respond to the proposed
definition in any/both documents.
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requesting an audio-only encounter, if
the encounter was audio-only. This
provision would also assist DEA, as it
may be used as evidence to establish
whether the practitioner issued the
prescription in the usual course of
professional practice. Proposed
paragraph (6)(iii) would require
practitioners to record all attempts to
comply with paragraph (b)(2) when the
practitioner is able to access the PDMP
system. This provision is necessary as it
enables DEA to verify whether the
registrant knew or should have known
of the patient’s prior prescription
history. Proposed paragraph (6)(iv)
would require practitioners who were
unable to access their state PDMP
system to record ‘‘the dates and times
that the practitioner attempted to gain
access, the reason why the practitioner
was unable to gain access, and any
follow-up attempts made to gain access
to the system.’’ This provision is
necessary as it enables DEA to verify the
practitioner’s attempts to access the
PDMP system, the reasons for being
unable to access, and any subsequent
attempts to access the system. Proposed
paragraph (6)(v) would require, if the
patient seeks a medical evaluation
pursuant to 1306.34(b)(5)(ii), the
prescribing practitioner to record the
full name, DEA registration number,
National Provider Identifier (NPI)
number of the DEA-registered
practitioner in the physical presence of
the patient, and if issued a qualifying
telemedicine referral, the name and NPI
of the referring practitioner, a copy of
the referral and any communications
shared pursuant to § 1306.31(d)(3)(i)–
(iii). This provision is necessary as this
information is essential to future
investigations and these details of the
medical evaluation, such as the
physically present practitioner’s name,
may not otherwise be recorded by the
prescribing practitioner.
IV. Regulatory Analyses
Executive Orders 12866 (Regulatory
Planning and Review), 13563
(Improving Regulation and Regulatory
Review)
This proposed rule was developed in
accordance with the principles of
Executive Orders (E.O.) 12866 and
13563. E.O. 12866 directs agencies to
assess all costs and benefits of available
regulatory alternatives and, if regulation
is necessary, to select regulatory
approaches that maximize net benefits
(including potential economic,
environmental, public health, and safety
effects; distributive impacts; and
equity). E.O. 13563 is supplemental to
and reaffirms the principles, structures,
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and definitions governing regulatory
review established in E.O. 12866.
E.O. 12866 classifies a ‘‘significant
regulatory action,’’ requiring review by
the Office of Management and Budget
(OMB), as any regulatory action that is
likely to result in a rule that may: (1)
have an annual effect on the economy
of $100 million or more or adversely
affect in a material way the economy, a
sector of the economy, productivity,
competition, jobs, the environment,
public health or safety, or State, local,
or tribal governments or communities;
(2) create a serious inconsistency or
otherwise interfere with an action taken
or planned by another agency; (3)
materially alter the budgetary impact of
entitlements, grants, user fees, or loan
programs or the rights and obligations of
recipients thereof; or (4) raise novel
legal or policy issues arising out of legal
mandates, the President’s priorities, or
the principles set forth in the E.O. While
this proposed rule is not economically
significant, OMB has determined that
this proposed rule is a ‘‘significant
regulatory action’’ under E.O. 12866,
section 3(f). Accordingly, this proposed
rule has been submitted to OMB for
review.
Due to COVID–19 public health
emergency, DEA issued guidance which
authorized the prescribing of
buprenorphine to new and existing
patients with OUD via telemedicine,
including audio-only telemedicine (e.g.,
telephone) by otherwise authorized
practitioners without requiring such
practitioners to first conduct an
examination of the patient in person.62
To continue the flexibilities of
telemedicine, including audio-only
telemedicine, for prescribing schedule
III–V controlled substances which are
approved for maintenance treatment or
withdrawal management beyond the
public health emergency, DEA proposes
to promulgate regulations which would
balance the need to increase patient
access to legitimate medical treatment
with the goal of providing effective
controls against diversion. Thus, DEA is
proposing to expand the conditions
under which a practitioner is authorized
to prescribe buprenorphine via
telemedicine, including an audio-only
telemedicine encounter, and to describe
obligations which arise once a
practitioner prescribes to patients.
62 ‘‘Dear Registrant’’ letter to DEA Qualifying
Practitioners and DEA Qualifying Other
Practitioners, Thomas W. Prevoznik, Deputy
Assistant Administrator, Diversion Control
Division, March 31, 2020.
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Number of Telemedicine Encounters,
Providers, and Patients
The number of telemedicine
encounters, including audio-only
telemedicine, leading to buprenorphine
prescriptions under the temporary
guidance during the public health
emergency forms the basis for
estimating the number of telemedicine
encounters pursuant to this proposed
rule.
DEA estimated the number of
telemedicine encounters associated with
an initial buprenorphine prescription by
applying the data provided by the
Centers for Medicare & Medicaid (CMS)
data on Medicare Part D telemedicine
services that led to buprenorphine
prescriptions to the number of all
buprenorphine prescriptions. Based on
CMS claims data provided by the
Department of Health and Human
Services Office of Inspector General
(HHS OIG), from March 2020, the start
of the COVID–19 health emergency
shutdowns, to December 2021, 24,285
Medicare fee-for-service and managed
care telemedicine services, including
audio-only telemedicine, were
identified as being linked to
buprenorphine Part D prescriptions
fills.63 These telemedicine services were
provided by 7,733 providers to 15,521
beneficiaries.64
Based on the CMS data, the
telemedicine services and associated
buprenorphine prescriptions identified
spiked at the beginning of the public
health emergency and stayed relatively
steady in 2021. Therefore, 2021 data is
used to estimate the number of
telemedicine, including audio-only
telemedicine, encounters for this
analysis. In 2021, there were a total of
1,929,151 Part D buprenorphine
prescriptions associated with 1,332,353
beneficiaries.65 Over the same period,
there were 11,956 telemedicine
Medicare fee-for-service and managed
care telemedicine services, including
audio-only telemedicine, identified as
being linked to buprenorphine Part D
prescriptions fills.66 These telemedicine
services were provided by 4,533
providers to 8,182 patients.67 The
1,929,151 Part D buprenorphine claims
associated with 1,332,353 beneficiaries
63 HHS OIB, March 2022. HHS OIG analyzed
telemedicine billing codes and patient information
to identify telemedicine visits within a 48-hour
period prior to a buprenorphine prescription fill
associated with the same patient, and where the
prescribing provider is the same or related to the
billing or rendering provider of the telemedicine
visit.
64 Id.
65 Id.
66 Id.
67 HHS OIB, May 2022.
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12899
equates to a ratio of 1.45 claims per
beneficiary. Therefore, the 11,956
services represent an estimated 8,257
(11,956/1.45) initial prescriptions,
which equates to 0.43 percent (8,257/
1,929,151) of total Part D claims for
buprenorphine (1,929,151 total claims).
Based on IQVIA data, the total number
of new prescriptions for buprenorphine
in the U.S. in 2021 was 15,782,652.68
Applying the telemedicine share of total
Part D buprenorphine prescriptions to
the estimated number of total services
associated with a buprenorphine
prescription yields an estimated 67,458
(0.43 percent × 15,782,652) initial
prescriptions. DEA believes this is a
high estimate, as the telemedicine share
of total Part D buprenorphine
prescriptions may include telemedicine
services allowed by regulation prior to
the PHE.
Affected Persons
This proposed rule would affect
practitioners prescribing schedule III–V
controlled substances for the induction
of a maintenance treatment or
withdrawal management via
telemedicine using audio-video or
audio-only technology and the patients
they treat using this technology. Based
on the analysis above, DEA expects the
proposed rule to affect 67,458 patients,
annually. As previously discussed, in
2021, 8,182 patients received a
prescription for buprenorphine under
the Medicare Part D program, from
4,533 providers, equating to a ratio of
approximately 1.80 patients per
provider. Applying this ratio to the
number of affected patients, DEA
estimates 37,373 providers are affected
by this proposed rule.
Impact on Physicians or Practitioners
The proposed rule would permit the
use of audio-video or audio-only
telemedicine provided that the
practitioner (1) meets all requisite State
and Federal registration requirements
for both prescribing of controlled
substances and engaging in the practice
of telemedicine, (2) reviews PDMP data
regarding any controlled substance
prescriptions issued to the patient in the
previous year, (3) is limited to a 30-day
supply, across all such prescriptions,
until the practitioner conducts an inperson medical evaluation, and (4)
maintains records of all prescriptions
issued pursuant to a telemedicine
encounter, including whether the
encounter was audio-only or audiovideo, and if by audio-only, the patient’s
reason for requesting an audio-only
68 IQVIA, National Prescription Audit,
September, 2022.
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encounter. Below is the analysis of the
four requirements stated above.
1. Meet all requisite State and Federal
registration requirements: Practitioners
who would participate in audio-video or
audio-only telemedicine pursuant to
this proposed rule are assumed to
already be conducting telemedicine and
already have the necessary equipment to
conduct audio-video or audio-only
telemedicine at no or minimal
additional cost. Additionally, DEA
assumes all practitioners who would
participate in telemedicine pursuant to
this proposed rule to already meet all
requisite registration requirements, i.e.,
holding a DEA registration in the State
where the practitioner is located,
holding a DEA registration, etc.
Additionally, DEA assumes all
practitioners who would issue
prescriptions via telemedicine
encounters pursuant to this proposed
rule are authorized under DEA
regulations under 21 CFR
1301.13(e)(1)(iv) as well as the states
where the practitioner is located (unless
otherwise excepted). Therefore, the
impact of this requirement is minimal.
2. Review of PDMP data: DEA
estimates each review of the PDMP will
take 4 minutes, or 0.067 hours, by a
practitioner. Based on an estimated
loaded hourly rate of $157.87,69 the cost
of a review of the PDMP is $10.52
($157.87 × 0.067). Applying this cost to
67,458 services, the total cost of PDMP
review is $709,970 ($10.52 × 67,458),
annually. While many practitioners
already check PDMP prior to issuing a
prescription for a controlled substance
for a variety of reasons, DEA will
consider the full cost of checking PDMP,
$709,970, a cost of this proposed rule to
be conservative.
3. Limited to a 30-day supply:
Currently, inducting MOUD with
schedule III–V controlled substances
requires an in-person visit or a
telemedicine encounter as defined in
§ 1300.04(i). This proposed rule would
expand the circumstances under which
individual practitioners are authorized
69 For the purpose of this analysis, the cost per
registrant is estimated by multiplying the loaded
labor rate by the estimated time to complete the
review. The loaded labor rate is based on the
estimated loaded hourly wage for 29–1229,
Physicians, all other. Bureau of Labor Statistics,
Occupational Employment and Wages, May 2021,
https://www.bls.gov/oes/current/oes291229.htm.
The average hourly wage is $111.30, with benefits
estimated at an additional 41.84 percent of the base
wage. The load factor is calculated by comparing
the benefits for private workers as a share of wages,
29.5%/70.5% = 41.84%. Bureau of Labor Statistics,
Employer Costs for Employee Compensation—
December 2021, https://www.bls.gov/news.release/
pdf/ecec.pdf. The loaded wage was therefore
$111.30 × 1.4184 = $157.87 per hour for private
physicians, all other.
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to prescribe schedule III–V controlled
substances which are approved for
maintenance treatment or withdrawal
management via a telemedicine
encounter, including an audio-only
telemedicine encounter. Therefore, this
proposed rule would enable a treatment
option that would otherwise be
unavailable. While DEA does not have
a basis to quantify the economic impact
of the 30-day supply limit, 30 days of
medication for inducting treatment is a
benefit over not receiving any
medication. Additionally, as stated
earlier, requiring an in-person visit with
the prescribing practitioner within 30
days is consistent with the usual course
of MOUD and purpose of the Ryan
Haight Act, and necessary to enforce the
CSA and its implementing regulations.
4. Maintains records of all
prescriptions issued pursuant to a
telemedicine encounter, including the
supervising physician name where
applicable under state law and DEA
number when the prescription is issued
by a physician assistant or nurse
practitioner, whether the encounter was
audio-only or audio-video and, if audioonly, the patient’s reason for requesting
an audio-only encounter: While DEA
estimates two minutes for a prescriber to
make such recording, DEA believes
prescribers are already performing many
of these tasks as usual and ordinary
practice and any additional
recordkeeping as a result of this
proposed rule is minimal. Therefore,
there is minimal additional cost
associated with this requirement.
In summary, the total cost to
practitioners is $709,970 annually,
which is the cost associated with
checking PDMP for all patients.
Impact on Patients
As discussed earlier, DEA estimates
this proposed rule will affect 67,458
patients per year. DEA anticipates that
patients will fall into one of two
categories:
(1) Patients who would otherwise not
receive treatment or prescription for
OUD absent the proposed rule change.
These patients have no other means to
receive treatment. They are unable to
visit a physician in-person or otherwise
visit a practitioner engaged in the
practice of telemedicine as defined in
§ 1300.04(i), but able to have an audiovideo or audio-only telemedicine visit
pursuant to this proposed rule.
(2) Patients who would eventually
receive treatment and prescription even
absent the proposed rule change. These
patients are able to either visit a
physician in-person or have
telemedicine visit with a practitioner
engaged in the practice of telemedicine
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as defined in § 1300.04(i); however,
such visit might have been delayed for
any variety of reason, i.e., lack of
reliable transportation, work or
caretaking commitments, long wait
times for an appointment with the
physician, etc. This proposed rule, if
implemented, would create additional
flexibilities, potentially allowing
patients to access treatment more
quickly than would be possible absent
this proposed rule.
DEA does not have a basis to estimate
how many of the estimated 67,458
patients fall into the two groups.
However, DEA anticipates a larger
impact for the first group. The impact
on the first group of patients is a result
of receiving treatment for OUD. There
would be a cost of treatment and the
benefit generated from the treatment,
which would not have been possible
without this proposed rule. The impact
on the second group would be the result
of receiving treatment sooner than they
would have without this proposed rule.
For both groups, the impact could
potentially be lifesaving. However, DEA
does not have access to data that would
permit it to estimate the number of lives
the improved access could save. There
would be a cost of treatment and the
benefit of earlier treatment, including
potential cost-offsets associated with
reduced healthcare and public safety
expenditures. According to a December
2021 research report, treatment with
buprenorphine for a stable patient
provided in a certified Opioid
Treatment Program, including
medication and twice-weekly visits
were $115 per week or $5,980 per
year.70 This is likely higher than the
cost of treating a stable patient in a
primary care setting, where patients are
more likely to see providers once per
week and where there are no associated
specialized costs. However, using the
$5,980 per year estimate serves to
establish an upper boundary for
potential costs in any cost-benefit
comparison. Estimates of the impact of
buprenorphine use in the treatment of
OUD suggest a 23.7% decrease in total
deaths, and 31.2% reduction in drug
poisonings (both fatal and nonfatal). In
total, the combined cost-savings of
buprenorphine (including both healthcare costs as well as criminal justice
costs) was estimated by one study at
$60,000 per person.71 At the costs listed
above, the savings from the treatment of
70 How much does opioid treatment cost?, NIDA.
(April 13, 2021), https://nida.nih.gov/publications/
research-reports/medications-to-treat-opioidaddiction/how-much-does-opioid-treatment-cost.
71 Fairley et al., Cost-effectiveness of Treatments
for Opioid Use Disorder. JAMA Psychiatry, (July 01,
2021).
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one person would cover the cost of
buprenorphine-assisted treatment for
ten others.
A study published in 2021 of the
societal costs for OUD found that the
‘‘[C]osts for opioid use disorder and
fatal opioid drug poisoning in 2017
were estimated to be $1.02 trillion. The
majority of the economic burden is due
to reduced quality of life from opioid
use disorder and the value of life lost
due to fatal opioid drug poisoning.’’ 72
According to the report, in 2017 total
non-fatal costs are $471 billion and total
fatal costs are $550 billion and there
were 2.1 million persons ages 12 years
and older with an OUD, and 47,000 fatal
opioid drug poisonings.73 Non-fatal
costs include costs associated with
health care, substance use disorder
treatment, criminal justice, lost
productivity, and the value of reduced
quality of life. Dividing the total nonfatal cost of $471 billion by the number
of persons ages 12 and older with an
OUD (2.1 million), the societal cost (cost
burden on society) of non-fatal OUD is
approximately $224,000 ($471 billion/
2.1 million) per person with OUD per
year. While DEA is unable to quantify
how many of the affected patients will
be successfully treated for OUD or how
many fatal opioid drug poisonings will
be avoided as a result of this proposed
rule, the potential economic benefit is
disproportionally large compared to any
cost associated with this rule. A small
reduction in OUD has the potential to
save money in excess of the total costs
of the proposed rule.
Risk of Diversion
The proposed rule will reduce the
requirements imposed on practitioners
who wish to prescribe schedule III–V
controlled substances as part of
medication treatment for OUD. DEA
understands that there is a risk of
misuse and diversion of drugs approved
for the use in maintenance treatment or
withdrawal management, which could
be increased by expanded prescribing.
While the proposed rule may increase
the risk of diversion, with the proposed
safeguards, and given the safety profile
of buprenorphine, DEA estimates this
increased risk will be minimal.
Requirements to check the PDMP prior
to issuance of a prescription, 30-day
limitations, in-person requirements for
follow-up appointments, and more
detailed requirements for recordkeeping
are expected to minimize the diversion
of buprenorphine via telemedicine,
72 Florence
et al., The economic burden of opioid
use disorder and fatal opioid overdose in the United
States, (2017).
73 Id.
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including audio-only telemedicine.
Practitioners already have the authority
to prescribe MOUD. Studies have found
that, in 2019, the percentage of
buprenorphine misuse among adults
with past-year use was 29.2%. Of those
adults who misused buprenorphine in a
previous year, 71.8%–74.7% did not
have their own prescription.74 Given the
misuse of buprenorphine is often for
self-treatment of OUD symptoms, these
numbers underscore the need for
expanded access to buprenorphine
treatment for OUD.
The growth of waivers to prescribe
buprenorphine was smallest among
prescribers working in small
nonmetropolitan counties. Prescribers
in rural counties were associated with
low buprenorphine dispensing.75 DEA
believes that by providing increased
access for rural areas, the benefits of
increasing access to MOUD outweigh
any added risk of diversion as the result
of this proposed rule.
Other Potential Costs
DEA also examined the cost of
technology, both capital investment and
operation expenses, in order to provide
telemedicine in compliance with the
proposed rule. DEA believes that the use
of telemedicine will not require any
additional capital expenditures on the
part of practitioners or patients.
Recordkeeping requirements are likely
to have a minimal impact because
current recordkeeping practices are
likely to meet the requirements imposed
by the proposed rule, and any
additional time is expected to be
minimal. Electronic medical records
may be updated in the future to reflect
the proposed rule change, such as the
inclusion of a flag for a telemedicine
visit, including an audio-only visit, but
such changes are likely to be minor and
included as part of any normal software
update.
Summary
In summary, DEA estimates this
proposed rule would affect 37,373
providers and 67,458 patients, annually.
DEA believes that the proposed rule
would increase patient access to MOUD
for two types of patients: those who
otherwise would be unable or unwilling
to seek treatment, as well as those who
would seek treatment but with some
form of delay. Increased access to
MOUD is expected to reduce the
number of opioid drug poisonings
annually, however DEA cannot quantify
74 Han, Beth et al. ‘‘Trends in and Characteristics
of Buprenorphine Misuse Among Adults in the
US.’’ JAMA Netw Open. 2021 Oct 1;
4(10):e2129409. Accessed 9/15/2022.
75 Id.
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the size or total benefits of such a
reduction. There would be a slight
increase in labor costs per practitioner,
due to increased time spent reviewing
PDMP databases. The estimated total
cost to the 37,373 providers is $709,970,
annually. DEA estimates recordkeeping
requirements are likely to have a
minimal impact because current
recordkeeping practices are likely to
meet the requirements imposed by the
proposed rule, and any additional time
is expected to be minimal. The increase
in the availability and flexibility of
treatment with schedule III–V
controlled substances may increase the
risk of diversion, however DEA believes
that any increase would be small, and
outweighed by the benefit to patients
and reduction in the societal cost of
opioid use disorder.
Executive Order 12988, Civil Justice
Reform
The proposed regulation meets the
applicable standards set forth in
sections 3(a) and 3(b)(2) of Executive
Order 12988, Civil Justice Reform, to
eliminate ambiguity, minimize
litigation, establish clear legal
standards, and reduce burden.
Executive Order 13132, Federalism
This proposed rulemaking does not
have federalism implications warranting
the application of E.O. 13132. The
proposed rule does not have substantial
direct effects on the states, on the
relationship between the national
government and the States, or the
distribution of power and
responsibilities among the various
levels of government.
Executive Order 13175, Consultation
and Coordination With Indian Tribal
Governments
This proposed rule does not have
substantial direct effects on the States,
on the relationship between the national
government and the States, or the
distribution of power and
responsibilities between the Federal
Government and Indian tribes.
Regulatory Flexibility Act
The Administrator, in accordance
with the Regulatory Flexibility Act (5
U.S.C. 601–612) (‘‘RFA’’), has reviewed
this proposed rule and by approving it
certifies that it will not have a
significant economic impact on a
substantial number of small entities.
Due to the COVID–19 public health
emergency, DEA issued guidance which
authorized prescribing of
buprenorphine to new and existing
patients with OUD via telephone by
otherwise authorized practitioners
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without requiring such practitioners to
first conduct an examination of the
patient in person.76 To continue the
flexibilities of telemedicine, including
audio-only telemedicine, for prescribing
Schedule III–V controlled substances
which are approved for maintenance
treatment or withdrawal management
beyond the public health emergency,
DEA proposed to promulgate
regulations which would balance the
need to increase patient access to
legitimate medical treatment with the
overarching goal of providing effective
controls against diversion. Thus, DEA is
proposing to expand the conditions
under which a registered practitioner is
authorized to prescribe buprenorphine
via telemedicine, including through an
audio-only telemedicine encounter, and
describe the obligations which arise
once a practitioner prescribes to
patients.
Affected Persons
This proposed rule would affect
practitioners prescribing schedule III–V
controlled substances for the induction
of maintenance treatment or withdrawal
management of patients with OUD using
telemedicine and the same patients
being treating using telemedicine. As
stated above, DEA estimates this
proposed rule would affected 37,373
practitioners and 67,458 patients,
annually. Because practitioners are
individuals and not small entities, this
analysis examines the impact of the
proposed rule on affected physicians
and small entities that employ the
affected physicians.
The proposed rule would permit the
use of audio-video or audio-only
telemedicine provided that the
practitioner (1) meets all requisite State
and Federal registration requirements
for both prescribing of controlled
substances and engaging in the practice
of telemedicine, (2) reviews PDMP data
regarding any controlled substance
prescriptions issued to the patient in the
previous year, (3) is limited to a 30-day
supply, across all such prescriptions,
until the practitioner conducts an inperson medical evaluation, and (4)
maintains records of all prescriptions
issued pursuant to a telemedicine
encounter, including the supervising
physician name and DEA registration
number, in cases where the prescription
is issued by a nurse practitioner or
physician assistant, whether the
encounter was audio-only or audiovideo and, if audio-only, the patient’s
reason for requesting an audio-only
encounter.
A significant number of physicians
and Mid-Level Practitioners work in
offices and institutions that meet the
RFA’s definition of small entities. To
estimate the number of affected entities,
DEA first determined the North
American Industry Classification
System (‘‘NAICS’’) codes that most
closely represent businesses that would
employ the physicians and MLP’s who
would deliver MOUD service via
telemedicine, including an audio-only
telemedicine encounter. Then, DEA
researched economic data for those
codes. The source of the economic data
is the Small Business Administration
(‘‘SBA’’), Office of Advocacy, and is
based on data provided by the U.S.
Census Bureau, Statistics of U.S.
Businesses (‘‘SUSB’’).77 The following
business NAICS codes are estimated to
represent businesses that employ the
affected persons, potential applicants:
• 621111—Offices of Physicians, Except
Mental Health Specialists
• 621112—Offices of Physicians,
Mental Health Specialists
• 621420—Outpatient Mental Health
and Substance Abuse Centers
• 622110—General Medical and
Surgical Hospitals
• 622210—Psychiatric and Substance
Abuse Hospitals
SUSB data contains the number of
firms by size ranges for each of the
NAICS codes. For the purposes of this
analysis, the term ‘‘firm’’ as defined in
the SUSB is used interchangeably with
‘‘entity’’ as defined in the RFA.
To estimate the number of affected
entities that are small entities, DEA
compared the SUSB data for the number
of firms in various firm size ranges with
SBA size standards for each of the
representative NAICS codes. The SBA
size standard is the firm size based on
the number of employees or annual
receipts depending on industry. The
SBA size standards for NAICS codes
621111, 621112, 621420, 622110, and
622210 are annual receipts of $14
million, $12 million, $16.5 million,
$41.5 million, and $41.5 million,
respectively.78
The firms in each size range below the
SBA size standard are small firms. The
number of firms below the SBA size
standard was added to determine the
total number of small firms in each
NAICS code. DEA estimates there are
161,286, 10,561, 6,523, 2,560, and 396
entities in the 621111, 621112, 621420,
622110, and 622210 industries,
respectively. Based on the SUSB data on
the firm sizes, DEA estimates there are
157,060, 10,392, 5,773, 1,047, and 188
small entities in the 621111, 621112,
621420, 622110, and 622210 industries,
respectively. In total, DEA estimates
there are 181,326 entities in the five
potentially affected industries, of which
174,460 (96.2 percent) are small entities.
The analysis is summarized in table 1
below.
TABLE 1—NUMBER OF AFFECTED ENTITIES AND SMALL ENTITIES
Number of
firms
ddrumheller on DSK120RN23PROD with PROPOSALS
NAICS code
621111—Offices of Physicians, excepting Mental Health Specialists ........................................
621112—Offices of Physicians, Mental Health Specialists .........................................................
621420—Outpatient Mental Health and Substance Abuse Centers ...........................................
622110—General Medical and Surgical Hospitals ......................................................................
622210—Psychiatric and Substance Abuse Hospitals ...............................................................
161,286
10,561
6,523
2,560
396
Total ......................................................................................................................................
181,326
76 ‘‘Dear Registrant’’ letter to DEA Qualifying
Practitioners and DEA Qualifying Other
Practitioners, Thomas W. Prevoznik, Deputy
Assistant Administrator, Diversion Control
Division, March 31, 2020.
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77 SUSB’s employer data contain the number of
firms, number of establishments, employment, and
annual payroll for employment size of firm
categories by location and industry. A ‘‘firm’’ is
defined as an aggregation of all establishments
owned by a parent company (within a geographic
location and/or industry) with some annual payroll.
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SBA size
standard
($)
14,000,000
12,000,000
16,500,000
41,500,000
41,500,000
Number of
small firms *
157,060
10,392
5,773
1,047
188
174,460
The data table is available at https://www.sba.gov/
sites/default/files/files/static_us_11.xls (last visited
April 25, 2022).
78 SBA. Table of Size Standards, Effective July 14,
2022. https://www.sba.gov/document/support-tablesize-standards (last visited September 28, 2022.)
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12903
TABLE 1—NUMBER OF AFFECTED ENTITIES AND SMALL ENTITIES—Continued
Number of
firms
NAICS code
SBA size
standard
($)
Percent of Total .............................................................................................................
Number of
small firms *
95.8%
* Not all decimal places shown.
From above, E.O. 12866 section, DEA
estimates there will be 67,458
telemedicine services pursuant to this
proposed rule, including audio-only
telemedicine services, rendered by
37,373 providers to 67,458 patients,
annually. Therefore, this proposed rule
is estimated to affect 37,373 individual
practitioners employed in industries
with 173,730 small businesses
potentially affected by this proposed
rule. Since some small entities will
employ more than one practitioner, the
number of affected small entities is
expected to be less than 174,460 and are
expected to be proportionally across the
five industries. DEA considers a
substantial number of small entities are
affected if more than 30 percent of small
entities in the affected industries is
affected. Therefore, at 21.4 percent of
the total small entities (37,373
providers/173,730 small entities), the
number of small entities affected by this
proposed rule is estimated to be not a
substantial number for any of the
representative industries.
The cost of the proposed rule impacts
the affected entities and small entities
on a ‘‘per person’’ basis. Rather than
estimating the number of physicians
and MLPs per firm, then the cost per
firm, then whether the cost is
significant, DEA employed a more direct
approach based on the following logic:
• In order to continue as going
concerns, the affected firms must
generate enough revenue to pay the
wages of physicians and MLPs, and
other operating expenses.
• Therefore, revenue for firms must
be greater than the wages paid to
practitioners and MLPs.
• Therefore, if the cost of the
proposed rule is not economically
significant when compared to
individual wages for practitioners and
MLPs, the cost of the proposed rule is
not economically significant when
compared to the annual revenue of the
firms.
From 2021 data provided by HHS
OIG, DEA estimates that 8,182 patients
received telemedicine services prior to
receiving a prescription for
buprenorphine. These services were
provided by 4,533 separate providers,
for approximately 1.8 patients per
provider. DEA assumed that this ratio is
the same for the general populations of
practitioners and patients, at 37,373
providers and 67,458 patients.
DEA estimates a non-loaded median
hourly wage of $111.30 79 and $56.99 80
for potentially affected physicians and
MLPs, respectively. Applying the hourly
wage rates to the estimated time to
apply, DEA estimates the labor cost per
PDMP review is $7.42 ($111.30 × 4/60)
and $3.80 ($56.99 × 4/60) per physician
and MLP, respectively. The non-loaded
wage rates are calculated to represent
the cost to the individual, whereas
previously the loaded wage rates were
calculated to represent the total cost of
employment to the entity and to the
economy. These rates are multiplied by
1.8 patients, for total labor costs of
$13.39 and $6.86, respectively.
The non-loaded unit cost of
conducting a PDMP review is compared
to the non-loaded annual wage rate for
physicians and MLPs. Based on the
Bureau of Labor Statistics’ (‘‘BLS’’)
Occupational and Employment and
Wages data, DEA estimates an average
annual wage of $231,500 for physicians,
$118,553 for MLPs.81 Unit costs of
$13.39 and $6.86 represent 0.01 percent
of those wages. Table 3 presents the
details of the calculation.
TABLE 3—COSTS AND FEES AS PERCENT OF WAGES
Mean hourly
wage
($)
ddrumheller on DSK120RN23PROD with PROPOSALS
Physicians ................................................
MLP ..........................................................
Time to review
(hours)
111.30
56.99
Cost per
patient
($)
0.06
0.06
7.42
3.80
The economic impact of additional
time spent conducting PDMP reviews
represents a small fraction (0.01
percent) of annual wages. DEA estimates
the proposed rule will not have a
significant economic impact on
individual physicians and MLPs. The
small entities that employ the
potentially affected physicians and
MLPs are expected to generate enough
revenue to pay their wages. Therefore,
DEA concludes the proposed rule will
not have a significant economic impact
on a substantial number of small
entities.
79 Bureau of Labor Statistics, Occupational and
Employment and Wages, May 2021, 29–1229
Physicians, All Others, https://www.bls.gov/oes/
current/oes291229.htm.
80 Bureau of Labor Statistics, Occupational and
Employment and Wages, May 2021, 29–1071
Physician Assistants, https://www.bls.gov/oes/
current/oes291071.htm.
Bureau of Labor Statistics, Occupational and
Employment and Wages, May 2021, 29–1171 Nurse
Practitioners, https://www.bls.gov/oes/current/
oes291171.htm.
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Unfunded Mandates Reform Act of 1995
The estimated annual impact of this
proposed rule is minimal. Thus, DEA
has determined in accordance with the
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Cost per 1.8
patients
($)
13.39
6.86
Mean annual
wage
($)
231,500
118,553
Additional
costs as
percent of
wage
0.01
0.01
Unfunded Mandates Reform Act of 1995
(‘‘UMRA’’) (2 U.S.C. 1501 et seq.) that
this action would not result in any
Federal mandate that may result in the
expenditure by State, local, and tribal
governments, in the aggregate, or by the
private sector, of $100,000,000 or more
(adjusted for inflation) in any one year.
Therefore, neither a Small Government
DEA calculated the weighted average hourly wage
based on the distribution of physician assistants
(36.2%) and nurse practitioners (63.8%).
81 Notes 80 and 81.
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Agency Plan nor any other action is
required under provisions of UMRA.
ddrumheller on DSK120RN23PROD with PROPOSALS
Paperwork Reduction Act of 1995
This proposed rule would impose a
new collection of information under the
Paperwork Reduction Act (PRA), 44
U.S.C. 3501–3521. The collections of
information contained in the proposed
rule, and identified as such, have been
submitted to OMB for review under
section 3507(d). DEA has identified the
following collection(s) of information
related to this proposed rule. An agency
may not conduct or sponsor, and a
person is not required to respond to a
collection of information unless it
displays a valid OMB control number.
Copies of existing information
collections approved by OMB may be
obtained at https://www.reginfo.gov/
public/do/PRAMain.
A. Collections of Information Associated
With the Notice of Proposed
Rulemaking
Title: Dispensing Records of DEA
Registered Practitioners.
OMB Control Number: 1117–NEW.
Form Number: N/A.
DEA is proposing to require
practitioners to record additional
information than what is currently
required in 21 CFR 1304.03(c). Proposed
21 CFR 1306.34(7)(i) would require
records indicating whether the
telemedicine encounter was conducted
using audio-video or audio-only
technology. Proposed paragraph (7)(ii)
would also require the practitioner to
record the patient’s reason for
requesting an audio-only encounter, if
the encounter was audio-only. Proposed
paragraph (7)(iii) would require
practitioners to record all attempts to
comply with paragraph (b)(2) when the
practitioner is able to access the PDMP
system. Last, proposed paragraph (7)(iv)
would require practitioners who were
unable to access their state PDMP
system to record ‘‘the dates and times
that the practitioner attempted to gain
access, the reason why the practitioner
was unable to gain access, and any
follow-up attempts made to gain access
to the system.’’ The proposed rule
would also require practitioners to
record the name and DEA registration
number of a supervising physician, in
cases where the prescription was issued
by a nurse practitioner or physicians
assistant.
DEA estimates the following number
of respondents and burden associated
with this collection of information:
• Number of respondents: 37,373.
• Frequency of response: 1.804986 (as
needed, calculated).
• Number of responses: 67,458.
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• Burden per response: 0.06666667
hours.
• Total annual hour burden: 4497
hours.
For the reasons set out above, the
Drug Enforcement Administration
proposes to amend 21 CFR parts 1300,
1304, and 1306 as follows:
B. Request for Comments Regarding the
Proposed Collections of Information
Written comments and suggestions
from the public and affected entities
concerning the proposed collections of
information are encouraged. DEA
solicits comment on the following
issues:
• Whether the proposed collection of
information is necessary for the proper
performance of the functions of the
DEA, including whether the information
will have practical utility.
• The accuracy of the DEA’s estimate
of the burden of the proposed collection
of information, including the validity of
the methodology and assumptions used.
• Recommendations to enhance the
quality, utility, and clarity of the
information to be collected.
• Recommendations to minimize the
burden of the collection of information
on those who are to respond, including
through the use of automated collection
techniques or other forms of information
technology.
All comments concerning collections
of information under the Paperwork
Reduction Act must be submitted to the
Office of Information and Regulatory
Affairs, OMB, Attention: Desk Officer
for DOJ, Washington, DC 20503. Please
state that your comments refer to RIN
1117- AB78/Docket No. DEA–948. All
comments must be submitted to OMB
on or before March 31, 2023. The final
rule will respond to any OMB or public
comments on the information collection
requirements contained in this proposed
rule.
If you need a copy of the proposed
information collection instrument(s)
with instructions or additional
information, please contact the
Regulatory Drafting and Policy Support
Section (DPW), Diversion Control
Division, Drug Enforcement
Administration; Mailing Address: 8701
Morrissette Drive, Springfield, Virginia
22152; Telephone: (571) 776–3882.
PART 1300—DEFINITIONS
List of Subjects
21 CFR Part 1300
Chemicals, Drug traffic control.
21 CFR Part 1304
Drug traffic control, Reporting and
recordkeeping requirements.
21 CFR Part 1306
Administrative practice and
procedure, Drug traffic control,
Prescription drugs, Reporting and
recordkeeping requirements.
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1. The authority citation for part 1300
continues to read as follows:
■
Authority: 21 U.S.C. 802, 821, 822, 829,
871(b), 951, 958(f).
2. Amend § 1300.04 by revising
paragraph (j) and adding paragraph (m)
to read as follows:
■
§ 1300.04 Definitions relating to the
dispensing of controlled substances by
means of the internet.
*
*
*
*
*
(j) The term prescription drug
monitoring program (or PDMP) means a
State controlled substance monitoring
program, including a program supported
by the Secretary of Health and Human
Services under section 399O of the
Public Health Service Act, as amended
(42 U.S.C. 280g–3).
*
*
*
*
*
(m) The term telemedicine encounter
means a communication between a
practitioner and a patient using an
interactive telecommunications system
referred to in 42 CFR 410.78(a)(3).
*
*
*
*
*
PART 1304—RECORDS AND
REPORTS OF REGISTRANTS
3. The authority citation for part 1304
continues to read as follows:
■
Authority: 21 U.S.C. 821, 827, 871(b),
958(e)–(g), and 965, unless otherwise noted.
4. Amend § 1304.03 by adding
paragraphs (i) and (j) to read as follows:
■
§ 1304.03 Persons required to keep
records and file reports.
*
*
*
*
*
(i) [Reserved]
(j) A practitioner shall maintain
copies of all qualifying telemedicine
referrals, as defined in § 1300.04(k) of
this chapter, that they issue.
■ 5. Amend § 1304.04 by adding
paragraph (i), to read as follows.
§ 1304.04 Maintenance of records and
inventories.
*
*
*
*
*
(i)(1) A practitioner who prescribes
controlled substances in the course of
maintenance or detoxification treatment
pursuant to a telemedicine encounter as
authorized by § 1306.34 shall maintain
records required by this part at the
registered location on the practitioner’s
certificate of registration issued
pursuant to section 303(f) of the Act (21
U.S.C. 823(g)).
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(2) If a prescribing practitioner
conducts an evaluation during which
the patient is treated by, and in the
physical presence of, a DEA-registered
practitioner (other than the prescribing
practitioner) pursuant to
§ 1306.34(b)(5)(ii) of this chapter, both
the prescribing practitioner and the
DEA-registered practitioner shall
maintain records required by this part at
the registered location on the
practitioners’ respective certificates of
registration issued pursuant to section
303(f) of the Act (21 U.S.C. 823(g)).
PART 1306—PRESCRIPTIONS AND
DISPENSING
6. The authority citation for part 1306
continues to read as follows:
■
Authority: 21 U.S.C. 802, 821, 829, 871(b),
unless otherwise noted.
7. Amend § 1306.04 by adding
paragraph (e), to read as follows.
■
§ 1306.04
Purpose of issue of prescription.
*
*
*
*
*
(e) In addition to the requirements of
this section, all narcotic prescriptions
issued pursuant to § 1306.34 may only
be issued for maintenance or
detoxification treatment and may not be
issued for any other purpose.
■ 8. Add § 1306.34 to read as follows.
ddrumheller on DSK120RN23PROD with PROPOSALS
§ 1306.34 Requirements for individual
practitioners who conduct the induction of
maintenance or detoxification treatment via
telemedicine encounter.
(a) An individual practitioner not
otherwise authorized to engage in the
practice of telemedicine as defined in
§ 1300.04(i) of this chapter is authorized
to prescribe any Schedule III, IV, or V
narcotic drug approved by the Food and
Drug Administration specifically for use
in the maintenance or detoxification
treatment via a telemedicine encounter
as defined in § 1300.04(m) of this
chapter if all of the following conditions
are met:
(1) The practitioner is registered
under section 303(f) of the Act (21
U.S.C. 823(g)), 21 CFR 1301.13(e)(1)(iv)
in the State in which the practitioner is
located. This requirement does not
apply to Department of Veterans Affairs
practitioners, those practitioners
employed by and treating a patient
enrolled in the Department of Veterans
Affairs health system, or those
practitioners exempt from registration
under section 303(f) in all States
pursuant to § 1301.23 of this chapter
when acting with the scope of the
employment or contract that exempted
them from the requirement of
registration under section 303(f);
(2) The practitioner is authorized by
State law to engage in the practice of
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telemedicine, or not otherwise
prohibited by State law from practicing
telemedicine, in the State where the
practitioner is located and in the State
where the patient is located;
(3) The practitioner is authorized
under § 1301.28 of this chapter;
(4) The practitioner must be
technically capable of conducting a
telemedicine encounter by using audio
and video equipment permitting twoway, real-time interactive
communication with the patient
pursuant to 42 CFR 410.78(a)(3); and
(5) The practitioner complies in all
other respects to the requirements of
this section.
(b) An individual practitioner who is
authorized to engage in the practice of
telemedicine as described in paragraph
(a) must comply with the following
requirements prior to issuing a
prescription.
(1) The prescription must only be
issued for a Schedule III, IV, or V
narcotic drug approved by the Food and
Drug Administration specifically for use
in in maintenance or detoxification
treatment and must be issued for that
purpose pursuant to § 1306.04.
(2) Prior to issuing the prescription,
the practitioner, including a practitioner
employed by the Department of
Veterans Affairs, must review and
consider the data regarding any
controlled substance prescriptions
issued to the patient in the last year that
is contained in the prescription drug
monitoring program (PDMP) described
in § 1300.04(o) of this chapter in the
State where the patient is located, or, if
less than one year of data is available,
in the entire available period. If less
than one year of data is available,
practitioners must review and consider
the entire available period. A
practitioner employed by the
Department of Veterans Affairs also
must review the Department of Veterans
Affairs internal prescription database for
data regarding any controlled substance
prescriptions issued to the patient in the
last year, or, if less than one year of data
is available, in the entire available
period.
(3) If the practitioner is unable to
obtain the PDMP data (or, if employed
by the Department of Veterans Affairs,
the Department of Veterans Affairs
internal prescription database) due to
the PDMP (or Department of Veterans
Affairs internal prescription database)
system being non-operational or
otherwise inaccessible as a result of a
temporary technological or electrical
failure, then:
(i) The practitioner may issue a
prescription authorizing the dispensing
of no more than a 7-day supply across
PO 00000
Frm 00036
Fmt 4702
Sfmt 4702
12905
all such prescriptions for Schedule III,
IV, or V narcotic drugs approved by the
Food and Drug Administration
specifically for maintenance or
detoxification treatment until
completing the review described in
paragraph (b)(2) of this section, and
verifying that any previous
prescriptions were not issued pursuant
to a telemedicine encounter;
(ii) The practitioner must obtain the
PDMP (and, if employed by the
Department of Veterans Affairs,
Department of Veterans Affairs internal
prescription database) data and conduct
the review described in paragraph (b)(2)
of this section within 7 days of the
telemedicine encounter; and
(iii) The practitioner must record the
attempts to access the system pursuant
to paragraph (b)(6) of this section.
(4) Upon completing the review
described in paragraph (b)(2) of this
section, the practitioner may issue
prescriptions authorizing the dispensing
of no more than a 30-day supply across
all such prescriptions, including any
prescriptions issued pursuant to
paragraph (b)(3)(i) of this section, for
Schedule III, IV, or V narcotic drugs
approved by the Food and Drug
Administration specifically for
maintenance or detoxification treatment
until the practitioner has conducted a
medical evaluation as described in
paragraph (b)(5) of this section.
(5) For the purposes of this section,
the required medical evaluation may
either be:
(i) An evaluation during which the
patient is treated by, and in the physical
presence of, the prescribing practitioner;
or
(ii)(A) An evaluation during which
the patient is treated by, and in the
physical presence of, a DEA-registered
practitioner (other than the prescribing
practitioner);
(B) This practitioner in the physical
presence of the patient is acting in the
usual course of professional practice;
(C) The evaluation is conducted in
accordance with applicable State law;
and
(D) The remote prescribing
practitioner, the patient, and the DEAregistered practitioner on site with the
patient participate in a real-time, audiovideo conference in which both the
practitioners and the patient
communicate simultaneously; or
(iii) An evaluation that was conducted
by a DEA registered practitioner who:
(A) Issued a written qualifying
telemedicine referral under 21 CFR
1300.04(k) for the patient to the
prescribing practitioner;
(B) Communicated the results of the
evaluation by sharing the electronic
E:\FR\FM\01MRP1.SGM
01MRP1
ddrumheller on DSK120RN23PROD with PROPOSALS
12906
Federal Register / Vol. 88, No. 40 / Wednesday, March 1, 2023 / Proposed Rules
medical record which includes, at a
minimum, the diagnosis, prognosis, and
treatment of the patient prior to the
prescribing practitioner issuing the
prescription; and
(C) Has issued the written referral
based on the diagnosis, prognosis or
treatment that occurred as a result of the
medical evaluation.
(6) Practitioners who issue
prescriptions for controlled substances
in the course of maintenance or
detoxification treatment via a
telemedicine encounter under this
section must maintain records of all
prescriptions issued pursuant to
§§ 1304.03 and 1304.04 of this chapter
indicating the following:
(i) Whether the telemedicine
encounter was conducted using audiovideo or audio-only technology;
(ii) If the telemedicine encounter was
conducted using audio-only technology,
the patient’s reason for requesting the
audio-only encounter;
(iii) All efforts to comply with
paragraph (b)(2) of this section when the
practitioner is able to obtain the PDMP
data (and, if employed by the
Department of Veterans Affairs, the data
from the Department of Veterans Affairs
internal prescription database);
(iv) If the practitioner failed to access
the PDMP (or, if employed by the
Department of Veterans Affairs,
Department of Veterans Affairs internal
prescription database) system as
described in paragraph (b)(2) of this
section, the dates and times that the
practitioner attempted to obtain the
data, the reason why the practitioner
was unable to gain access, and any
follow-up attempts made to obtain the
data;
(v) If a prescribing practitioner
conducts an evaluation during which
the patient is treated by, and in the
physical presence of, a DEA-registered
practitioner (other than the prescribing
practitioner) pursuant to paragraph
(b)(5)(ii) of this section, the full name,
DEA registration number, and National
Provider Identifier (NPI) number for the
DEA-registered practitioner in the
physical presence of the patient; and
(vi) If issued a qualifying telemedicine
referral, the name, and NPI of the
referring practitioner and a copy of the
referral and any communications shared
pursuant to § 1306.34(b)(5)(iii).
Signing Authority
This document of the Drug
Enforcement Administration was signed
on February 24, 2023, by Administrator
Anne Milgram. That document with the
original signature and date is
maintained by DEA. For administrative
purposes only, and in compliance with
VerDate Sep<11>2014
16:56 Feb 28, 2023
Jkt 259001
requirements of the Office of the Federal
Register, the undersigned DEA Federal
Register Liaison Officer has been
authorized to sign and submit the
document in electronic format for
publication, as an official document of
DEA. This administrative process in no
way alters the legal effect of this
document upon publication in the
Federal Register.
Scott Brinks,
Federal Register Liaison Officer, Drug
Enforcement Administration.
[FR Doc. 2023–04217 Filed 2–27–23; 2:30 pm]
BILLING CODE 4410–09–P
DEPARTMENT OF HOUSING AND
URBAN DEVELOPMENT
24 CFR Part 202
[Docket No. FR–6321–P–01]
Changes in Branch Office Registration
Requirements
Office of the Assistant
Secretary for Housing—Federal Housing
Commissioner, HUD.
ACTION: Proposed rule.
AGENCY:
The U.S. Department of
Housing and Urban Development (HUD)
is publishing this proposed rule to
revise HUD’s regulations for branch
office registration requirements. To
make mortgage industry standards more
flexible and modernized, the proposed
rule would remove the requirement that
lenders and mortgagees register with
HUD each branch office where they
conduct Federal Housing
Administration (FHA) business.
DATES: Comment Due Date: May 1,
2023.
SUMMARY:
Interested persons are
invited to submit comments regarding
this proposed rule. There are two
methods for submitting public
comments. All submissions must refer
to the above docket number and title.
1. Submission of Comments by Mail.
Members of the public may submit
comments by mail to the Regulations
Division, Office of General Counsel,
Department of Housing and Urban
Development, 451 7th Street SW, Room
10276, Washington, DC 20410–0500.
Due to security measures at all Federal
agencies, however, submission of
comments by standard mail often results
in delayed delivery. To ensure timely
receipt of comments, HUD recommends
that comments submitted by standard
mail be submitted at least two weeks in
advance of the deadline. HUD will make
all comments received by mail available
ADDRESSES:
PO 00000
Frm 00037
Fmt 4702
Sfmt 4702
to the public at https://
www.regulations.gov.
2. Electronic Submission of
Comments. Interested persons may
submit comments electronically through
the Federal eRulemaking Portal at
www.regulations.gov. HUD strongly
encourages commenters to submit
comments electronically. Electronic
submission of comments allows the
commenter maximum time to prepare
and submit a comment, ensures timely
receipt by HUD, and enables HUD to
make them immediately available to the
public. Comments submitted
electronically through the
www.regulations.gov website can be
viewed by other commenters and
interested members of the public.
Commenters should follow the
instructions provided on that site to
submit comments electronically.
Note: To receive consideration as public
comments, comments must be submitted
through one of the two methods specified
above. All submissions must refer to the
docket number and title of the proposed rule.
No Facsimile Comments. Facsimile
(FAX) comments are not acceptable.
Public Inspection of Public
Comments. All properly submitted
comments and communications
submitted to HUD are available for
public inspection and copying between
8 a.m. and 5 p.m. weekdays at the above
address. Due to security measures at the
HUD Headquarters building, an advance
appointment to review the public
comments must be scheduled by calling
the Regulations Division at 202–708–
3055 (this is not a toll-free number).
HUD welcomes and is prepared to
receive calls from individuals who are
deaf or hard of hearing, as well as
individuals with speech or
communication disabilities. To learn
more about how to make an accessible
telephone call, please visit https://
www.fcc.gov/consumers/guides/
telecommunications-relay-service-trs.
Copies of all comments submitted are
available for inspection and
downloading at www.regulations.gov.
FOR FURTHER INFORMATION CONTACT:
Timothy Laramie, Mortgagee Approval
Analyst, U.S. Department of Housing
and Urban Development, 451 7th Street
SW, Washington, DC 20410, telephone
number 202–402–6814 (this is not a tollfree number). HUD welcomes and is
prepared to receive calls from
individuals who are deaf or hard of
hearing, as well as individuals with
speech or communication disabilities.
To learn more about how to make an
accessible telephone call, please visit
https://www.fcc.gov/consumers/guides/
telecommunications-relay-service-trs.
E:\FR\FM\01MRP1.SGM
01MRP1
Agencies
[Federal Register Volume 88, Number 40 (Wednesday, March 1, 2023)]
[Proposed Rules]
[Pages 12890-12906]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-04217]
-----------------------------------------------------------------------
DEPARTMENT OF JUSTICE
Drug Enforcement Administration
21 CFR Parts 1300, 1304, 1306
[Docket No. DEA-948]
RIN 1117-AB78
Expansion of Induction of Buprenorphine via Telemedicine
Encounter
AGENCY: Drug Enforcement Administration.
ACTION: Notice of proposed rulemaking.
-----------------------------------------------------------------------
SUMMARY: The Drug Enforcement Administration (DEA) is amending its
regulations, in concert with the Department of Health and Human
Services (HHS), to expand the circumstances under which individual
practitioners are authorized to prescribe schedule III-V narcotic drugs
or combinations of such drugs that have been approved for use in
continuous medical treatment (also referred to as maintenance) or
withdrawal management treatment (also referred to as detoxification)--
via a telemedicine encounter, including an audio-only telemedicine
encounter.
DATES: Electronic comments must be submitted, and written comments must
be postmarked, on or before March 31, 2023. Commenters should be aware
that the electronic Federal Docket Management System will not accept
comments after 11:59 p.m. Eastern Time on the last day of the comment
period.
All comments concerning collections of information under the
Paperwork Reduction Act must be submitted to the Office of Management
and Budget on or before March 31, 2023.
ADDRESSES: To ensure proper handling of comments, please reference
``Docket No. DEA-948'' on all correspondence, including any
attachments.
Electronic Comments: The Drug Enforcement Administration encourages
that all comments be submitted through the Federal eRulemaking Portal,
which provides the ability to type short comments directly into the
comment field on the web page or to attach a file for lengthier
comments. Please go to https://www.regulations.gov/ and follow the
online instructions at that site for submitting comments. Upon
completion of your submission, you will receive a Comment Tracking
Number for your comment. Please be aware that submitted comments are
not instantaneously available for public view on Regulations.gov. If
you have received a Comment Tracking Number, your comment has been
successfully submitted and there is no need to resubmit the same
comment.
Paper Comments: Paper comments that duplicate an electronic
submission are not necessary and are discouraged. Should you wish to
mail a paper comment in lieu of an electronic comment, it should be
sent via regular or express mail to: Drug Enforcement Administration,
Attention: DEA Federal Register Representative/DPW, 8701 Morrissette
Drive, Springfield, Virginia 22152.
Paperwork Reduction Act Comments: All comments concerning
collections of information under the Paperwork Reduction Act must be
submitted to the Office of Information and Regulatory Affairs, Office
of Management and Budget, Attention: Desk Officer for DOJ, Washington,
DC 20503. Please state that your comment refers to RIN 1117-AB78/Docket
No. DEA-948.
FOR FURTHER INFORMATION CONTACT: Scott A. Brinks, Diversion Control
Division, Drug Enforcement Administration; Mailing Address: 8701
Morrissette Drive, Springfield, Virginia 22152, Telephone: (571) 776-
3882.
SUPPLEMENTARY INFORMATION:
Posting of Public Comments
Please note that all comments received, including attachments and
other supporting materials, are considered part of the public record.
They will be made available by DEA for public inspection online at
https://www.regulations.gov/. The Freedom of Information Act applies to
all comments received. Confidential information or personal identifying
information, such as account numbers or Social Security numbers, or
names of other individuals, should not be included. Submissions will
not be edited to remove any identifying or contact information.
Comments with confidential information, which should not be made
available for public inspection, should be submitted as written/paper
submissions. Two written/paper copies should be submitted. One copy
will include the confidential information with a heading or cover sheet
that states ``CONTAINS CONFIDENTIAL INFORMATION.'' DEA will review this
copy, including the claimed
[[Page 12891]]
confidential information, in its consideration of comments. The second
copy should have the claimed confidential information redacted/blacked
out. DEA will make this copy available for public inspection online at
https://www.regulations.gov/. Other information, such as name and
contact information, that should not be made available, may be included
on the cover sheet but not in the body of the comment, and must be
clearly identified as ``confidential.'' Any information clearly
identified as ``confidential'' will not be disclosed.
I. Legal Authority and Background
An estimated 107,477 fatal drug poisonings occurred between
September 1, 2021 and August 31, 2022, the majority of which involved
illegal synthetic drugs. DEA is doing everything in its power to safely
expand access to treatment to prevent further drug poisoning deaths.
DEA implements and enforces the Comprehensive Drug Abuse Prevention
and Control Act of 1970, often referred to as the Controlled Substances
Act (CSA) and the Controlled Substances Import and Export Act, (21
U.S.C. 801-971), as amended. DEA publishes the implementing regulations
for these statutes in 21 CFR parts 1300 to end. These regulations are
designed to ensure a sufficient supply of controlled substances for
medical, scientific, and other legitimate purposes, and to deter the
diversion of controlled substances for illicit purposes.
As mandated by the CSA, DEA establishes and maintains a closed
system of control for manufacturing, distribution, and dispensing of
controlled substances, and requires any person who manufactures,
distributes, dispenses, imports, exports, or conducts research or
chemical analysis with controlled substances to register with DEA,
unless they meet an exemption, pursuant to 21 U.S.C. 822. ``Dispense''
in the context of this rulemaking means to deliver a controlled
substance to an ultimate user, which includes the prescribing of a
controlled substance.\1\ The CSA further authorizes the Administrator
to promulgate regulations necessary and appropriate to execute the
functions of subchapter I (Control and Enforcement) and subchapter II
(Import and Export) of the CSA.\2\
---------------------------------------------------------------------------
\1\ 21 U.S.C. 802(10).
\2\ 21 U.S.C. 871(b), 958(f).
---------------------------------------------------------------------------
The Ryan Haight Online Pharmacy Consumer Protection Act of 2008
(The Ryan Haight Act) \3\ amended the CSA by, among other things,
adding several new provisions to prevent the illegal distribution and
dispensing of controlled substances by means of the internet. While the
Ryan Haight Act amended the CSA to generally require that the
dispensing of controlled substances by means of the internet be
predicated on a valid prescription involving at least one in-person
medical evaluation, it also established seven distinct categories of
telemedicine pursuant to which a practitioner may prescribe controlled
substances for a patient despite never having evaluated that patient in
person, provided that, among other things, such practice is in
accordance with applicable Federal and State laws.\4\ Notably, the Ryan
Haight Act does not limit a practitioner's ability to prescribe
controlled substances for a patient after there has been an in-person
medical evaluation. In other words, the Ryan Haight Act applies only
when a prescribing practitioner wishes to prescribe controlled
substances via the practice of telemedicine and has not otherwise
conducted an in-person medical evaluation prior to the issuance of the
prescription. Furthermore, as described below, the Ryan Haight Act and
DEA's implementing regulations do not apply to other forms of
telemedicine, telehealth, or telepsychiatry that are not otherwise
defined in the CSA.
---------------------------------------------------------------------------
\3\ Public Law 110-425 (2008). Because the Ryan Haight Act
amended the CSA, references in this document will generally be to
the CSA.
\4\ 21 U.S.C. 802(54)(A)-(G).
---------------------------------------------------------------------------
The Ryan Haight Act is intended to address the grave threat to
public health and safety caused by practitioners who prescribed
controlled substances via the internet without establishing a valid
practitioner-patient relationship through fundamental steps such as
performing an in-person medical evaluation of a patient. Prior to the
enactment of the Ryan Haight Act, the internet was being exploited to
facilitate the unlawful distribution of legally manufactured controlled
substances through rogue websites.\5\ These rogue websites facilitated
the misuse of prescribed controlled substances, such as hydrocodone and
oxycodone by adolescents and others, and thereby increased the number
of drug poisonings and other harmful consequences caused by the misuse
of these substances.\6\
---------------------------------------------------------------------------
\5\ H.R. REP. 110-869(I), 11, 2008 U.S.C.C.A.N. 2130, 2131.
\6\ Id.
---------------------------------------------------------------------------
As indicated above, the Ryan Haight Act generally requires an in-
person medical evaluation prior to the prescription of controlled
substances. Section 829(e), however, also provides an exception to this
in-person medical evaluation requirement where the practitioner is
``engaged in the practice of telemedicine'' \7\ within the meaning of
the Ryan Haight Act (21 U.S.C. 802(54)). Consistent with the Ryan
Haight Act's purpose of preventing diversion of controlled substances
by means of the internet, the Act's definition of ``the practice of
telemedicine'' does not encompass all forms of telemedicine. Rather, as
set forth in 21 U.S.C. 802(54), the Ryan Haight Act's definition of the
``practice of telemedicine'' includes seven distinct categories of
telemedicine that Congress determined were appropriate to allow for the
prescribing of controlled substances despite the practitioner never
having evaluated the patient in person.
---------------------------------------------------------------------------
\7\ Id. 829(e)(3)(A).
---------------------------------------------------------------------------
The CSA and DEA's regulations only define the ``practice of
telemedicine'' for the purpose of establishing obligations under the
CSA and DEA regulations. DEA is not attempting to define what
constitutes appropriate telemedicine in other contexts. Thus, the
proposed rule would not determine when substances that are not
controlled may be appropriately prescribed via telemedicine or the
nature of appropriate remote medical treatment more generally.
Moreover, this proposed rule would not create any additional regulatory
requirements for other categories of telemedicine authorized by the CSA
under 21 U.S.C. 802(54). Rather, it would create additional
circumstances under which the use of telemedicine to prescribe
controlled substances is authorized by the CSA. For example, to fall
under the last category of telemedicine, the practice is ``conducted
under any other circumstances that the Attorney General and the
Secretary have jointly, by regulation, determined to be consistent with
effective controls against diversion and otherwise consistent with the
public health and safety.'' \8\
---------------------------------------------------------------------------
\8\ Id. 802(54)(G).
---------------------------------------------------------------------------
As described below, in other circumstances encompassed by the Ryan
Haight Act's definition of the ``practice of telemedicine,'' the Act
contemplates that the practitioner will be permitted to prescribe
controlled substances by means of the internet despite not having
conducted an in-person medical evaluation, provided certain safeguards
are in place to ensure that the practitioner who is engaged in the
practice of telemedicine is able to conduct or participate in a bona
fide medical evaluation of the patient at the remote location and is
otherwise prescribing for a legitimate medical
[[Page 12892]]
purpose while acting in the usual course of professional practice.
To fall within this definition of the ``practice of telemedicine,''
the practice also must be ``in accordance with applicable Federal and
State laws'' and use ``a telecommunications system referred to in [42
U.S.C. 1395m(m)].'' \9\ Title 42 U.S.C. 1395m(m) references, but does
not define, such telecommunications systems. The Centers for Medicare &
Medicaid Services (CMS), however, have promulgated regulations
implementing those provisions, and those regulations do define
``interactive telecommunications system.'' \10\ In particular, 42 CFR
410.78(a)(3) defines an interactive telecommunications system as, in
pertinent part, multimedia communications equipment that includes, at a
minimum, audio and video equipment permitting two-way, real-time
interactive communication between the patient and practitioner. The
same provision also provides that for treatment of a mental health
disorder to a patient in their home, interactive telecommunications may
include two-way, real-time audio-only communication technology if the
practitioner is technically capable to use an interactive
telecommunications system, but the patient is not capable of, or does
not consent to, the use of video technology.
---------------------------------------------------------------------------
\9\ Id. 802(54).
\10\ 42 CFR 410.78(a)(3).
---------------------------------------------------------------------------
CMS recently revised 42 CFR 410.78(a)(3), to which the definition
of ``practice of telemedicine'' refers, in a final rule published on
November 19, 2021 (HHS CMS Rule).\11\ Previously, 42 CFR 410.78(a)(3)
had limited an ``interactive telecommunications system'' to
``multimedia communications equipment that includes, at a minimum,
audio and video equipment permitting two-way, real-time interactive
communication between the patient and distant site physician or
practitioner.'' Revised 42 CFR 410.78(a)(3) retains this requirement of
both audio and video real-time communication between the patient and
the distant practitioner in most circumstances: as the HHS CMS rule
revising 42 CFR 410.78(a)(3) stated, ``[T]wo-way, audio/video
communications technology is the appropriate, general standard for
telehealth services . . . .'' \12\
---------------------------------------------------------------------------
\11\ Medicare Program; Calendar Year 2022 Payment Policies Under
the Physician Fee Schedule and Other Changes to Part B Payment
Policies; Medicare Shared Savings Program Requirements; Provider
Enrollment Regulation Updates; and Provider and Supplier Prepayment
and Post-Payment Medical Review Requirements (HHS CMS Rule), 86 FR
64996, 65666 (Nov. 19, 2021).
\12\ Id. at 65060.
---------------------------------------------------------------------------
CMS's revised definition of ``interactive telecommunications
systems,'' however, now also includes two-way, real-time audio-only
communication technology under certain limited circumstances;
limitations that are designed to maintain audio-video equipment as the
general standard and only authorize audio-only equipment when both
necessary and appropriate. First, to allow the use of audio-only
equipment, the medical services at issue must be ``furnished for
purposes of diagnosis, evaluation, or treatment of a mental health
disorder.''
CMS recognized that, for many mental health services, visualization
between the patient and clinician may be less critical to provision of
the service: ``[M]ental health services are different from other
services because they principally involve verbal exchanges between
patient and practitioner.'' \13\ CMS also responded to comments
requesting that audio-only technology be permitted for a broader scope
of Medicare telehealth services. CMS distinguished ``services furnished
for purposes of diagnosis, evaluation, or treatment of a mental health
disorder,'' from other services and specified that the scope of the
audio-only policy is limited to mental health disorders.\14\ CMS also
acknowledged that ``[T]here may be particular instances where visual
cues may help a practitioner's ability to assess and treat patients
with mental health disorders, especially where opioids or mental health
medications are involved . . . .'' \15\
---------------------------------------------------------------------------
\13\ Id. at 65061.
\14\ Id.
\15\ Id.
---------------------------------------------------------------------------
Second, to allow the use of audio-only equipment, the mental health
services must be provided ``to a patient in their home.'' CMS reasoned
that other sites at which a patient generally receives telehealth
services are ``medical settings that are far more likely to have access
to reliable broadband internet service. When a patient is located at
one of these . . . sites, access to care is far less likely to be
limited by access to broadband that facilitates a video connection. In
contrast, access to broadband, devices, and user expertise is less
likely to be available at a patient's home.'' \16\ CMS, however,
adopted a flexible understanding of ``home:'' ``[O]ur definition of
home can include temporary lodging such as hotels and homeless shelters
as well as locations a short distance from the [patient's] home'' (if
the patient, ``for privacy or other personal reasons, chooses to travel
a short distance away from the exact home location during a telehealth
service . . . .'').\17\
---------------------------------------------------------------------------
\16\ Id. at 65060.
\17\ Id. at 65059.
---------------------------------------------------------------------------
Third, to allow the use of audio-only equipment, the distant site
physician or practitioner must be ``technically capable'' of meeting
the usual two-way, audio-video interactive communication standard. And,
relatedly, the patient must ``not [be] capable of, or . . . not consent
to, the use of video technology.'' In other words, ``because it is
generally appropriate to require the use of two-way, real-time audio/
video communications technology,'' \18\ the distant practitioner
engaging in telehealth must make the option of audio-video
communication available to the patient. The audio-only option may only
be used if the patient ``is unable to use, does not wish to use, or
does not have access to two-way, audio/video technology.'' \19\
---------------------------------------------------------------------------
\18\ Id. at 65062.
\19\ Id. at 65060.
---------------------------------------------------------------------------
As stated in proposed 21 CFR 1306.34(a)(2), DEA is proposing to
promulgate regulations that would require practitioners to otherwise
comply with relevant State and Federal law.\20\ In those States where
state law prohibits the prescription of a controlled substance based
solely on an audio-only evaluation, the proposed regulation would not
authorize the audio-only prescription of buprenorphine for opioid-use
disorder (OUD). Thus, this proposed rulemaking's authorization of
audio-only OUD prescribing would only apply in those States where such
prescriptions are consistent with State law--it would authorize OUD
buprenorphine prescribing based on an audio-video interaction in those
states if doing so was otherwise consistent with State and Federal law.
---------------------------------------------------------------------------
\20\ The CSA's definition of ``practice of telemedicine''
requires that it be ``in accordance with applicable Federal and
State laws.'' 21 U.S.C. 802(54).
---------------------------------------------------------------------------
DEA has consulted with representatives of the Secretary of Health
and Human Services (HHS) regarding the substantive changes to the
definition of ``interactive telecommunications systems'' in the HHS CMS
Rule. Subsequent to the promulgation of the HHS CMS Rule, DEA is
proposing to promulgate these specific conditions under which
practitioners would be authorized to engage in the practice of
telemedicine. The proposed changes to DEA's regulations herein, in
conjunction with the changes already implemented in the
[[Page 12893]]
HHS CMS Rule, are consistent ``with effective controls against
diversion and otherwise consistent with the public health and safety''
pursuant to 21 U.S.C. 802(54)(G). HHS was consulted in the creation of
these regulatory provisions and concurs with this proposed rulemaking.
HHS also has advised DEA that no additional rulemaking by HHS is
necessary as it pertains to the promulgations of these provisions
pursuant to 21 U.S.C. 802(54)(G).
II. Background
Buprenorphine Used in Treating Opioid Use Disorder
DEA is proposing to promulgate regulations which would expand the
circumstances under which practitioners are authorized to prescribe any
schedule III, IV, or V narcotic drug approved by the Food and Drug
Administration (FDA) specifically for use in the maintenance or
detoxification treatment of OUD via a telemedicine encounter, including
an audio-only telemedicine encounter that meets the standard of 42 CFR
410.78(a)(3), provided certain requirements and conditions are met. The
only schedule III-V narcotic drug that is currently approved by the FDA
for such treatment is buprenorphine.\21\ Thus, DEA is proposing to
expand the situations in which practitioners are authorized to
prescribe buprenorphine via telemedicine for maintenance or
detoxification treatment under limited circumstances to expand access
to treatment for OUD while maintaining effective controls against
diversion.
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\21\ Buprenorphine is a partial mixed opioid agonist that comes
in tablets, sublingual, as well as injectable formulations. It
produces effects such as euphoria or respiratory depression at low
to moderate doses. With buprenorphine, however, these effects are
weaker than full opioid agonists such as methadone and heroin.
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Buprenorphine comes in two formulations, a sole agent or combined
with naloxone, both of which are very effective medications for the
treatment of OUD.\22\ Commonly prescribed formulations of buprenorphine
are indicated by the FDA for the treatment of OUD.\23\ DEA classifies
buprenorphine as a schedule III narcotic controlled substance as it has
a currently accepted medical use in treatment, and has less of a
potential for misuse than the other controlled substances in schedules
I and II, and its misuse may lead to moderate to low physical
dependence or high psychological dependence.\24\ Studies have shown
that buprenorphine helps to lower physical dependency on other opioids
and reduces withdrawal symptoms, drug cravings, and morbidity and
mortality for patients with OUD while also providing lower euphoric
effects compared to other opioids.\25\ Moreover, buprenorphine is a
partial opioid receptor agonist, it has less of an effect on
respiratory depression, has a lower risk of overdose, and produces
lower euphoric effects than full agonist opioids.\26\ Similar to other
opioids, some patients and individuals who misuse buprenorphine may
experience withdrawal upon stopping the medication. Thus, buprenorphine
is an effective medication for treating OUD, especially when used as
part of a complete treatment plan, but buprenorphine may also be
dangerous when not used as prescribed.
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\22\ Treatment Improvement Protocol 63 for guidance on
medication for OUD. Medications for Opioid Use Disorder, Treatment
Improvement Protocol 63, SAMHSA (2021).
\23\ Id.
\24\ 21 U.S.C. 812(b)(3)(A)-(C); 21 CFR 1308.13(e)(2)(i).
\25\ Buprenorphine, Substance Abuse and Mental Health Services
Administration, (April 19, 2022), https://www.samhsa.gov/medication-assisted-treatment/medications-counseling-related-conditions/buprenorphine; see Medications for Opioid Use Disorder Save Lives,
National Academies of Sciences, Engineering, and Medicine. (2019)
https://nap.nationalacademies.org/catalog/25310/medications-for-opioid-use-disorder-save-lives.
\26\ A Dahan et al., Buprenorphine induces ceiling in
respiratory depression but not in analgesia, (March 07, 2006)
https://pubmed.ncbi.nlm.nih.gov/16547090/.
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Combination products containing buprenorphine and naloxone can
potentially deter misuse for certain individuals. For example,
Suboxone[supreg] combines buprenorphine with naloxone, an opioid
antagonist which is largely inactive when the product is administered
sublingually as indicated, which is intended to discourage use by
injection or insufflation. Specifically, when Suboxone[supreg], or a
generic form of buprenorphine/naloxone combination product, is injected
or insufflated, naloxone may cause uncomfortable side effects,
including precipitated opioid withdrawal, which may deter certain forms
of diversion. The issuance of Suboxone[supreg] by practitioners may be
considered preferable to injectable drugs used to treat OUD, such as
long-acting naltrexone or long-acting buprenorphine, as such treatment
for OUD must be administered by a health care professional. Moreover,
this formulation may be preferred by practitioners as patients must not
be physically dependent on opioids before beginning oral or injected
naltrexone, which requires a period of several days of abstinence.
Inducing buprenorphine requires a shorter period of abstinence before
induction to avoid precipitated withdrawal.
The Unprecedented Trafficking of Fentanyl and the Drug Poisoning Crisis
The diversion and misuse of opioids lead to drug poisonings and
deaths that can be mitigated by increased access to treatment for OUD.
More than one million people in the United States have died from drug
poisonings between 1999 and 2021.\27\ The rate of drug poisoning deaths
involving synthetic opioids (including fentanyl) has substantially
increased since 2013 to 2021. More recently, as stated above, an
estimated 107,477 drug poisoning deaths occurred between September 1,
2021 and August 31, 2022.\28\ Approximately 70% of these drug poisoning
deaths involved fentanyl and other synthetic opioids.\29\
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\27\ Drug Overdose Deaths, Center for Disease Control, National
Center for Injury Prevention and Control (Accessed on July 08,
2022), https://www.cdc.gov/drugoverdose/deaths/.
\28\ Centers for Disease Control and Prevention, National Center
for Health Statistics, National Vital Statistics, Provisional Drug
Overdose Death Counts, 12 Month-ending Provisional Number of Drug
Overdose Deaths by Drug or Drug Class, https://www.cdc.gov/nchs/nvss/vsrr/drug-overdose-data.htm. (Accessed January 17, 2023) (Sum
of Predicted Value for the Number of Drug Overdose Deaths).
\29\ Id.
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The availability of fentanyl throughout the United States has
reached unprecedented heights. In 2022, DEA seized more than 50 million
fake pills and 10,000 pounds of fentanyl powder equating to
approximately 379 million deadly doses of fentanyl.\30\ These seizures
have occurred in every State in the country. This is enough fentanyl to
supply a potentially lethal dose to every member of the U.S.
population.
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\30\ Drug Enforcement Administration Announces the Seizure of
Over 379 million Deadly Doses of Fentanyl in 2022, (January 04,
2023) https://www.dea.gov/press-releases/2023/01/04/drug-enforcement-administration-announces-seizure-over-379-million-deadly.
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Access to buprenorphine decreases the risk of drug poisoning.\31\
Moreover, increasing access to buprenorphine after a drug poisoning has
also been associated with a reduced risk of death.\32\ Thus, DEA
believes increasing patient access to MOUD is necessary to both prevent
and ameliorate the
[[Page 12894]]
catastrophic drug poisonings that are occurring as a result of
fentanyl. Importantly, a recent study found that the percentage of
opioid overdose deaths involving buprenorphine did not increase in the
months after prescribing flexibilities, including the remote induction
and prescribing of buprenorphine for OUD treatment via telemedicine,
were put in place during the COVID-19 pandemic.\33\
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\31\ Dadiomov, et al., Buprenorphine and naloxone access in
pharmacies within high overdose areas of Los Angeles during the
COVID-19 pandemic, Harm Reduction Journal. (June 29, 2022) https://harmreductionjournal.biomedcentral.com/articles/10.1186/s12954-022-00651-3.
\32\ Larochelle, et al., Medication for Opioid Use Disorder
After Nonfatal Opioid Overdose and Association With Mortality,
Annals of Internal Medicine, (August 07, 2018) https://www.acpjournals.org/doi/10.7326/M17-3107.
\33\ Tanz, et al. Trends and characteristics of buprenorphine-
involved overdose deaths prior to and during the COVID-19 pandemic,
JAMA. (January 20, 2023) https://jamanetwork.com/journals/jamanetworkopen/fullarticle/2800689.
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Diversion Risk of Buprenorphine
Buprenorphine is a critical tool in efforts to stem the drug
poisoning crisis that is occurring across the country. Still,
buprenorphine, when used improperly, may lead to misuse and death.\34\
Self-medication for the management of symptoms may also be a motivation
for non-prescribed misuse of buprenorphine.\35\ Moreover, issues with
availability, accessibility, and acceptability of formal buprenorphine
treatment may also contribute to non-prescribed buprenorphine
misuse.\36\ Diversion of buprenorphine and other prescription opioids
remains an issue across the country: in the past two years, DEA has
seen Federal investigations of buprenorphine diversion across the
country.\37\ Thus safeguards are necessary to mitigate the risk of
diversion.\38\
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\34\ See ex. TDH Finds Some Overdose Deaths Associated With
Buprenorphine. Tennessee Department of Health, (January 08, 2018)
https://www.tn.gov/health/news/2018/1/8/tdh-finds-some-overdose-deaths-associated-with-buprenorphine.html; Bishop, S.D.,
Buprenorphine-Related Deaths in North Carolina from 2010 to 2018.
(September, 2021) pubmed.ncbi.nlm.nih.gov/34145443/. See
\35\ See Cicero et al. Understanding the use of diverted
buprenorphine, Drug and Alcohol Dependence, (December 01, 2018)
https://www.sciencedirect.com/science/article/pii/S0376871618307245;
McDonald et al., Assessing Motivations for Nonprescribed
Buprenorphine Use Among Rural Appalachian Substance Users, Journal
of Addiction Medicine, (August 31, 2022) https://pubmed.ncbi.nlm.nih.gov/36044288/; Silverstein et al., On my own
terms: Motivations for self-treating opioid-use disorder with non-
prescribed buprenorphine, Drug and Alcohol Dependence, (May 01,
2020) https://pubmed.ncbi.nlm.nih.gov/32203863/; Butler et al., How
Motivations for Using Buprenorphine Products Differ From Using
Opioid Analgesics: Evidence from an Observational Study of internet
Discussions Among Recreational Users, JMIR public health and
surveillance, (March 25, 2020) https://pubmed.ncbi.nlm.nih.gov/32209533/.
\36\ Silverstein et al., On my own terms: Motivations for self-
treating opioid-use disorder with non-prescribed buprenorphine, Drug
and Alcohol Dependence, (May 01, 2020) https://pubmed.ncbi.nlm.nih.gov/32203863/; McLean et al., The international
journal on drug policy, (July 20, 2019) https://pubmed.ncbi.nlm.nih.gov/31330267/.
\37\ See, e.g., United States v. Kesari (S.D. W.Va. 2021)
(Charleston doctor convicted of selling buprenorphine prescriptions
for cash); United States v. Summers (E.D. Pa. 2018) (Philadelphia
doctor operating ``National Association for Substance Abuse
Prevention & Treatment'' pleaded guilty to selling buprenorphine
prescriptions to drug dealers); United States v. SelfRefind (E.D.
Ky. 2014) (largest buprenorphine clinic in the U.S. paid $15 million
to resolve civil allegations regarding urine-testing scams, around
the same time Kentucky suspended its director's authorization to
prescribe buprenorphine drugs due to reckless overprescribing).
\38\ See Mance E Buttram et al., Increasing rates of
buprenorphine diversion in the United States, 2002 to 2019 (July, 31
2021) https://pubmed.ncbi.nlm.nih.gov/34302707/. See Monico, L.B.
et. al., Exploring nonprescribed use of buprenorphine in the
criminal justice system through qualitative interviews among
individuals recently released from incarceration. (April, 2021),
https://pubmed.ncbi.nlm.gov/33612198 (Inmates and correctional
officers have diverted buprenorphine, particularly in sublingual
strip form, among inmates through illicit channels within
correctional facilities as buprenorphine strips can easily be hidden
and consumed without detection). See Richert, T. et. al., Illicit
use of methadone and buprenorphine among adolescents and young
adults in Sweden. (October 18, 2013), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC3853648/. Lofwall MR, Walsh SL. A review of
buprenorphine diversion and misuse: the current evidence base and
experiences from around the world. J Addict Med. (September 01,
2015) https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4177012/.
(showing that individuals may use diverted buprenorphine for the
purposes of mitigating withdrawal symptoms in between use of illicit
opioids).
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Purpose and Need for Rulemaking
DEA is proposing to promulgate regulations which would increase
patient access to buprenorphine treatment for OUD with the goal of
providing effective controls against diversion. Thus, DEA is proposing
to promulgate regulations that would expand the circumstances under
which registered practitioners would be authorized to prescribe
buprenorphine for OUD via telemedicine, including an audio-only
telemedicine encounter meeting the requirements of 42 CFR 410.78(a)(3),
and inform these practitioners of their related obligations. DEA is
also proposing to promulgate regulations that are necessary to mitigate
the risk of diversion associated with this authorization.
Unmet Need To Facilitate Patient Access to Treatment for Opioid Use
Disorder
The majority of individuals suffering with OUD unfortunately do not
receive treatment with FDA-approved medications.\39\ DEA is proposing
to promulgate regulations that would address the unmet need to increase
patient access to treatment for OUD. This rulemaking would enable those
patients who, prior to being able to access treatment under the
circumstances newly authorized, did not wish to, or did not possess the
means to, be inducted for the treatment of OUD.
---------------------------------------------------------------------------
\39\ Only one in Four People Needing Treatment for Opioid Use
Disorder Received Medication, Columbia University School of Public
Health, (March 23, 2022), https://www.publichealth.columbia.edu/public-health-now/news/only-one-four-people-needing-treatment-opioid-use-disorder-received-medication.
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Until recently, there was a nationwide shortage of practitioners
authorized to dispense buprenorphine.\40\ Expanding the circumstances
under which practitioners are authorized to prescribe via telemedicine
encounters, including audio-only encounters, would increase access to
treatment for those individuals with OUD who may not want to seek
treatment, or are unable to seek treatment, due to various economic,
geographical, sociological, and logistical reasons.
---------------------------------------------------------------------------
\40\ Conway, Kevin P et al. Rural and urban differences in
undersupply of buprenorphine provider availability in the United
States, 2018, Addiction science & clinical practice (January 31,
2022), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC8802270/.
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Many patients may lack the financial means to obtain in-person
treatment traditionally or through audio-video telemedicine encounters.
Patients who are unhoused, unemployed, or facing other challenges may
find it prohibitive to afford devices capable of audio-video
telemedicine encounters or consistent access to wireless internet and/
or data plans adequate to support bandwidth demands of telemedicine
encounters.\41\ Many individuals have unstable access, or experience
interruptions in access, to this technology.\42\ Additionally, many
rural and frontier communities do not have access to reliable broadband
or wireless networks or an unwillingness to engage in telemedicine
encounters directly.\43\
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\41\ DeLaCruz et al., Telemental Health for the Homeless
Population: Lessons Learned when Leveraging Care, (December, 08
2022) https://www.ncbi.nlm.nih.gov/pmc/articles/PMC9734763/.
\42\ Id.
\43\ Id.
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Expanding a registered practitioners' authority to prescribe
buprenorphine for the treatment for OUD via telemedicine, including an
audio-only telemedicine encounter meeting the standards of 42 CFR
410.78(a)(3), would expand access to much needed medical treatment.\44\
[[Page 12895]]
Recent studies have revealed that, in some populations, upward of 94
percent of the unhoused community had a cell phone, while a limited
amount owned or had access to computers, tablets, or internet
access.\45\ Not only would this rulemaking make it easier for patients
to obtain treatment, many practitioners have shown a willingness to
treat patients using an audio-only telecommunications system. An online
survey showed that practitioners who engaged in the practice of
telemedicine and prescribed buprenorphine considered telephonic means
to be ``more accessible.'' \46\
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\44\ Under the Americans with Disabilities Act (ADA) and section
504 of the Rehabilitation Act, practitioners are generally obligated
to ensure effective communication and provide patients with
disabilities with equal access to services. See, e.g., 28 CFR
35.130(a); 28 CFR 35.130(b)(1); 28 CFR 35.160; 28 CFR 36.202(b); 28
CFR 36.303(c); 45 CFR 84.4; 45 CFR 84.52. While audio-only
telemedicine may be appropriate for some patients, it may not
satisfy practitioners' ADA and section 504 obligations in all cases,
particularly when patients are deaf or have hearing loss. See The
Department of Justice, Civil Rights Division, The Americans With
Disabilities Act and the Opioid Crisis: Combating Discrimination
Against People in Treatment or Recovery (April 05, 2022) https://www.ada.gov/opioid_guidance.pdf.
\45\ Molfenter T, Roget N, Chaple M, et al. Use of Telehealth in
Substance Use Disorder Services During and After COVID-19: Online
Survey Study. JMIR Ment Health. (February 08, 2021) https://www.ncbi.nlm.nih.gov/pmc/articles/PMC7895293/.
\46\ Id.
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Increased Access Must Be Consistent With Effective Controls Against
Diversion and Public Health and Safety
In concert with the goal of expanding patient access to MOUD,\47\
however, DEA must address diversion risks associated with the expanding
access to narcotics over the phone. As established above, the diversion
of buprenorphine is dangerous and may lead to misuse and sometimes
fatal drug poisonings. Additionally, DEA must draft regulations which
are consistent with public health and safety. Thus, DEA is proposing to
promulgate regulations to require a thorough review of Prescription
Drug Monitoring Program (PDMP) data prior to prescribing, a medical
evaluation of the patient meeting certain conditions within 30 days, as
well as comprehensive recordkeeping requirements.
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\47\ DEA references ``Medication Assisted Treatment'' (MAT) in
its regulations in 21 CFR 1301.28. For the purposes of this
rulemaking, all references to MAT refer to the dispensing or
prescribing of Schedule III, IV, or V narcotic controlled drugs or
combinations of narcotic controlled drugs that have been approved by
FDA specifically for use in maintenance or detoxification treatment.
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Prescription Drug Monitoring Program Review
DEA is promulgating regulations that would require a practitioner
to review and consider PDMP data prior to prescribing buprenorphine
under the authority the regulations would grant.\48\ This review would
allow the practitioner to make informed clinical decisions and identify
and counsel the patient regarding higher risks (such as co-prescribed
benzodiazepines), identify patients who may have obtained a
buprenorphine or another recent prescription from another source
(thereby preventing diversion), monitor for practitioners deliberately
misprescribing buprenorphine, and prevent the diversion of such drugs
through practitioners' lack of awareness that the patient on the other
end of the line does not have an actual medical need or requires a more
careful examination.\49\
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\48\ Proposed 21 CFR 1306.34(b)(2).
\49\ Id. Under the proposed rule, a practitioner employed by or
contracting with the Department of Veterans Affairs (VA) also would
be required to review the VA internal prescription database.
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Without requiring practitioners to review and consider PDMP data,
different practitioners could prescribe multiple 30-day supplies, or
subsequent 30-day supplies indefinitely, to patients without realizing
that they are doing so. Some studies have concluded that state rules
requiring review of the PDMP are among the most effective interventions
for preventing opioid drug poisonings and are correlated with a
reduction in the proportion of patients that engage in drug seeking
behavior.\50\ Thus, DEA believes it is necessary to require the review
and consideration of PDMP data prior to prescribing buprenorphine so as
to require due diligence on the part of the practitioner in order to
effectively identify patients who have received prior prescriptions for
buprenorphine or other prescriptions that might negatively interact
with buprenorphine.
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\50\ See Tamara M Haegerich et al., Evidence for state,
community and systems-level prevention strategies to address the
opioid crisis, (Sep 19, 2019), https://pubmed.ncbi.nlm.nih.gov/31585357/.
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DEA believes a PDMP review requirement for prescribers, prior to
writing a prescription, would balance the states' interest in
regulating the practice of medicine with the overarching interest in
mitigating the high risk of diversion for prescriptions which do not
require face-to-face interaction with the prescribing physician--a
balance in line with the text of 21 U.S.C. 802(54).
Requirement of Medical Evaluation in Person or in Presence of Another
DEA Registrant Within 30 Days
DEA is proposing to promulgate regulations which would require the
patient receiving buprenorphine under the expanded authority of these
regulations to receive a medical evaluation meeting certain
requirements within 30 days of being prescribed buprenorphine for the
induction of OUD treatment in order to obtain an additional supply of
buprenorphine.\51\ In particular, under the proposed regulations,
within 30 days, the patient would have to either be examined in person
by the prescribing practitioner or practice, or the prescribing
practitioner would have to examine the patient remotely while the
patient is in the physical presence of another DEA-registered
practitioner participating in an audio-video telemedicine encounter
with the prescribing practitioner. Alternatively, the requirement of a
medical evaluation is satisfied when the prescribing practitioner
receives a qualifying telemedicine referral for medically-assisted
treatment for opioid use disorder from a DEA-registered practitioner
prior to issuing a prescription for controlled substances. Under this
scenario, the patient has already received an in-person medical
evaluation from the referring practitioner, and thus the prescribing
practitioner is authorized to prescribe beyond the 30 day limit.
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\51\ Proposed 21 CFR 1306.34(b)(4).
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This requirement is necessary because the CSA generally requires
each prescription for a schedule II through V controlled substance to
be predicated upon at least one in-person medical evaluation. Although
the proposed regulations would create an exception to this requirement,
they must still maintain the CSA standard that prescriptions be tied to
a medical evaluation in the physical presence of a DEA-registered
practitioner. Without this provision, practitioners could theoretically
prescribe buprenorphine without ever conducting a thorough medical
evaluation of the patient.
Moreover, requiring these medical evaluations subsequent to
telemedicine encounters facilitates common practices by which some
practitioners treat OUD. The required medical evaluation can enhance
treatment by enabling the practitioner to conduct tests which make sure
that buprenorphine is safe and appropriate for the patient.\52\ These
include, but are not limited to, drug and toxicology screenings, liver
enzyme tests, screenings for infectious diseases such as hepatitis,
etc.\53\ Additionally, practitioners are able to assess conditions
which may or may not be available in audio-only or even audio-video
telemedicine encounters, such as signs of opioid intoxication or
withdrawal, physical signs of opioid use, as well as the medical
[[Page 12896]]
consequences of opioid use.\54\ Thus, this required medical evaluation
can result in enhanced treatment in some circumstances.
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\52\ Buprenorphine Quick Start Guide, SAMHSA https://www.samhsa.gov/sites/default/files/quick-start-guide.pdf.
\53\ Id.
\54\ Medications for Opioid Use Disorder, Treatment Improvement
Protocol 63, SAMHSA (2021) https://store.samhsa.gov/sites/default/files/SAMHSA_Digital_Download/PEP21-02-01-002.pdf.
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For these reasons, and to comply with congressional directives in
the Ryan Haight Act, DEA is proposing to require a medical evaluation
meeting these standards in order to prescribe a supply in excess of 30
days to assist DEA in the investigation and prosecution of malicious
practitioners to ensure the public health and safety of patients and to
help maintain effective controls against diversion.
Recordkeeping
Comprehensive recordkeeping is necessary to provide sufficient
documentation of the details of the audio-only telemedicine encounter
and ensure practitioners' compliance with the provisions listed herein.
Thus, DEA is requiring practitioners to keep comprehensive records
establishing the nature of the encounter, the patient's proffered
reason for the audio-only encounter (if the patient requests the
telemedicine encounter be audio-only rather than audio-video), and all
efforts to comply with PDMP checks.\55\
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\55\ Proposed 21 CFR 1306.34(7)(i)-(iv).
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Prescribing Buprenorphine for the Induction of Medication for the
Treatment of Opioid Use Disorder
DEA recognizes that the induction of buprenorphine via a
telemedicine encounter should not constitute the entirety of a
treatment protocol for OUD for many patients. As explained by SAMHSA,
the use of buprenorphine should be part of a ``comprehensive management
program that includes other treatment plans such as psychosocial
support.'' \56\ Thus, this rulemaking would be limited to the
prescribing of buprenorphine simply for the treatment for OUD for
patients via telemedicine encounters described in this rulemaking, and
does not seek to circumvent or replace the individualized treatment
protocols present in the usual course of treating an individual with
OUD.\57\
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\56\ Buprenorphine Quick Start Guide, SAMHSA https://www.samhsa.gov/sites/default/files/quick-start-guide.pdf.
\57\ Registrants may refer to Treatment Improvement Protocol 63
for guidance on medication for OUD. Medications for Opioid Use
Disorder, Treatment Improvement Protocol 63, SAMHSA (2021) https://store.samhsa.gov/sites/default/files/SAMHSA_Digital_Download/PEP21-02-01-002.pdf. See also SAMHSA, Telehealth for the Treatment of
Serious Mental Illness and Substance Use Disorders, (2021). https://store.samhsa.gov/sites/default/files/SAMHSA_Digital_Download/PEP21-06-02-001.pdf.
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Request for Comments
With respect to the proposed rule, DEA invites comments concerning
whether any clarifications or other regulatory provisions are warranted
to ensure appropriate access to care, consistent with effective
controls against diversion and otherwise consistent with the public
health and safety. DEA invites comments on the proposed practitioner
recordkeeping obligations. DEA also seeks comments about additional
safeguards or flexibilities that should be considered with respect to
this rule. Moreover, DEA invites comments on whether the Notice of
Proposed Rulemaking, entitled ``Telemedicine prescribing of controlled
substances when the practitioner and the patient have not had a prior
in-person medical evaluation'' (RIN 1117-AB40), published elsewhere in
this issue of the Federal Register, should be combined with this
rulemaking when publishing the Final Rule as both documents refer to
prescribing via telemedicine pursuant to 21 U.S.C. 802(54)(G).
This rule is designed to ensure that patients do not experience
lapses in care. It is also deigned to ensure continuity of care under
the current telehealth flexibilities in place as a result of the COVID-
19 public health emergency. The COVID-19 public health emergency is set
to expire on May 11, 2023. DEA and HHS have provided for a notice-and-
comment period of 30 days so that they have an opportunity to fully
review and respond to any submissions.
III. Section-by-Section Discussion of Proposed Rule
Sec. 1300.04 Definitions Relating to the Dispensing of Controlled
Substances by Means of the Internet
DEA is proposing to amend 21 CFR 1300.04 to add definitions of
``prescription drug monitoring program'' and ``telemedicine
encounter.'' These terms play significant roles in the proposed
regulations. Thus, to avoid any ambiguity about the meaning of those
regulations, the proposed rule would specifically define those terms.
Under the proposed rule, the term PDMP would mean a state controlled
substance monitoring program, including a program supported by the
Secretary of HHS under section 399O of the Public Health Service Act,
as amended (42 U.S.C. 280g-3). The term ``telemedicine encounter''
would mean a communication between a practitioner and a patient using
an interactive telecommunications system referred to in 42 CFR
410.78(a)(3), while the practitioner is engaged in the practice of
medicine in accordance with applicable Federal and State laws.
Sec. 1304.03 Persons Required To Keep Records and File Reports
DEA is proposing to amend 21 CFR 1304.03 by adding new paragraph
(k) requiring a practitioner to maintain copies of all qualifying
telemedicine referrals that he or she issues.
Sec. 1304.04 Maintenance of Records and Inventories
DEA is proposing to amend 21 CFR 1304.04 by adding new paragraphs
(i)(1)-(2) that would require registrants to maintain all records
required by 21 CFR 1306.34 at the registered location that is listed on
their certificate of registration. In most cases, this will be the
practitioner's primary registration in the state where the practitioner
is located.
These recordkeeping requirements will help ensure that all records
associated with the prescribing practitioner, as well as any DEA-
registered practitioners who are present with the patient pursuant to
proposed 21 CFR 1306.34(b)(5)(ii), will be stored in a consolidated
location, which will expedite the investigatory process for DEA.
Sec. 1306.04 Purpose of Issue of Prescription
DEA is proposing to amend 21 CFR 1306.04 by adding a new paragraph
(e) to clarify when, and for what purpose, a practitioner may issue
prescriptions pursuant to a telemedicine encounter under the expanded
authority of these regulations. DEA proposes to authorize practitioners
to issue prescriptions pursuant to 21 CFR 1306.34 if and only if the
prescription is ``issued for maintenance or detoxification treatment
and . . . not . . . for any other purpose.'' As stated above,
buprenorphine is, at present, the only schedule III-V narcotic
controlled substance that is approved by FDA for maintenance and
detoxification treatment. Therefore, absent FDA approval of another
schedule III-V narcotic controlled substance for the treatment of OUD,
this provision only authorizes prescriptions for buprenorphine pursuant
to telemedicine encounters for maintenance or detoxification treatment.
This section would not authorize practitioners to issue prescriptions
for other purposes, such as for the treatment of pain, as the
overarching purpose of this rulemaking
[[Page 12897]]
is to facilitate the treatment of OUD in a safe manner.
Sec. 1306.34 Requirements for Individual Practitioners Who Conduct the
Induction of Maintenance or Detoxification Treatment Via Telemedicine
Encounter
DEA is proposing to amend section 1306 by adding new section
1306.34. This new section would describe the circumstances under which
registrants are authorized to use the expanded authority of the
proposed rule to prescribe buprenorphine pursuant to telemedicine
encounters and the obligations of practitioners when doing so.
DEA is proposing to add paragraph (a), which would list the
conditions upon which a practitioner is authorized to prescribe
buprenorphine via a telemedicine encounter under the proposed rule.
First, unless otherwise excepted,\58\ registrants would be required
under paragraph (a)(1) to obtain a DEA dispensing registration under 21
U.S.C. 823(g), 21 CFR 1301.13(e)(1)(iv) in the state where the
practitioner is located. Next, in order to issue prescriptions,
paragraph (a)(2) would require the practitioner to be authorized by
state law, or not otherwise prohibited by state law, to engage in the
practice of telemedicine in both the state where the practitioner is
located, as well as the state where the patient is located. This
requirement is statutory, as the CSA requires that the ``practice of
telemedicine'' involving controlled substances be conducted ``in
accordance with applicable Federal and State laws'' pursuant to 21
U.S.C. 802(54). In those states where state law prohibits the
prescription of a controlled substance based solely on an audio-only
evaluation,\59\ the proposed regulation would not authorize the audio-
only prescription of buprenorphine for OUD. Proposed paragraph (a)(3)
would clarify that the prescription must comply with the provisions of
the relevant CSA and DEA regulations that govern dispensing for
maintenance and detoxification treatment (namely, 21 CFR
1301.13(e)(1)(iv), and 21 CFR 1306.05(b)). In other words, the
practitioner would have to possess a 21 CFR 1301.13(e)(1)(iv)
registration in order to prescribe a schedule III, IV, or V narcotic
drug approved by the FDA specifically for use in the maintenance or
detoxification treatment. Proposed paragraph (a)(4) would codify the
requirement that a practitioner be technically capable of using audio
and video equipment permitting two-way, real-time interactive
communication with the patient and the time of the telemedicine
encounter. Proposed paragraph (a)(5) would state generally that the
practitioner must comply with all other relevant requirements listed in
this section.
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\58\ The proposed rule would except from this requirement VA
practitioners, those practitioners contracting with the VA when
treating a patient of the VA healthcare system, and those
practitioners exempt from registration under section 303(f) in all
States pursuant to Sec. 1301.23 when acting with the scope of the
employment or contract that exempted them from the requirement of
registration under section 303(f). It would be unduly burdensome to
require registrants otherwise exempt from the requirement of DEA
registration to become registered with DEA solely to make use of
this proposed rule's telemedicine flexibility. The unique needs and
expertise of the VA practitioners similarly weigh in favor of
exempting them from this requirement. Moreover, in a related
context, Congress indicated a desire, reflected in the Ryan Haight
Act, that VA practitioners and those practitioners exempt from
registration be uniquely allowed to engage in telemedicine without
being registered in their patients' states. See 21 U.S.C.
831(h)(1)(B).
\59\ Based on DEA's review of state law, 25 states prohibit
controlled substance prescriptions based on audio-only encounters.
---------------------------------------------------------------------------
Next, paragraph (b) would list all the requirements for
practitioners when issuing prescriptions. Proposed paragraph (b)(1)
would require that all prescriptions issued based on a telemedicine
encounter under the authority of the rule must be issued for a
``Schedule III, IV, or V narcotic drug approved by the Food and Drug
Administration specifically for use in maintenance or detoxification
treatment'' and must be issued pursuant to 21 CFR 1306.04. This
paragraph is designed to reduce the risk that buprenorphine will be
prescribed for reasons other than a legitimate medical purpose. This
paragraph further specifies that such prescriptions may only be issued
pursuant to Sec. 1306.04 for the purpose of maintenance or
detoxification treatment--i.e., the practitioner cannot prescribe
buprenorphine for pain or any other purpose besides treatment of OUD.
Proposed paragraph (b)(2) would require that practitioners review
and consider relevant PDMP data in the state where the patient is
located prior to prescribing.\60\ As stated above, this provision is an
essential safeguard to ensure practitioners are conducting appropriate
due diligence to mitigate risks of diversion and ensure the public
health and safety of patients. Practitioners are encouraged to review
all PDMP data accessible to them as a predicate to prescribing
buprenorphine, but reviewing a period of at least one year prior to
issuing a prescription would be required under the proposed rule. If
less than one year of data is available, practitioners must review and
consider the entire available period.
---------------------------------------------------------------------------
\60\ A practitioner employed by or contracting with the VA
additionally would have review the VA internal prescription
database, subject to the same standards that would apply to a review
of PDMP data.
---------------------------------------------------------------------------
Proposed paragraph (b)(3) would specify the procedures for
practitioners if they are unable to access PDMP data due to the PDMP
system being ``non-operational or otherwise inaccessible as a result of
a temporary technological or electrical failure.'' This paragraph
includes circumstances involving temporary technological or electrical
failures involved with the practitioner's attempts to access the PDMP
data. This would include, but is not limited to, circumstances where
practitioners are unable to access PDMP data because of public
infrastructure failures such as loss of electricity and/or loss of
internet as a result of inclement weather or natural disasters. For
example, a practitioner could be experiencing state-wide outages in
their internet service but otherwise be able to conduct a telemedicine
encounter by using a different device such as a mobile phone or tablet
that is connected to a satellite internet provider. In such
circumstances, DEA notes that the practitioner must otherwise be
capable of using audio and video equipment permitting two-way, real-
time interactive communication with the patient at the time of the
telemedicine encounter prior to prescribing but is unable to access the
PDMP system through the device at the time. In those exceptionally rare
circumstances, DEA would encourage practitioners to use any means
available to access PDMP data prior to prescribing, and practitioners
must record their attempts to access the system as described below.
Proposed paragraph (b)(3)(i) would require, in those circumstances
where the PDMP system is non-operational, practitioners to limit their
prescriptions to patients to no more than a 7-day supply until they are
able to access the PDMP system again. This limit applies until the
practitioners are able to access the PDMP system, complete their review
of the patient's prior prescription history, and verify the nature of
prescriptions when applicable. Paragraph (3)(ii) would require the
practitioner to gain access to the PDMP system and conduct appropriate
reviews within 7 days of the telemedicine encounter, and paragraph
(3)(iii) would require recordation of the practitioner's attempts to
access the system (described in more detail below). The 7-day
prescription can be refilled upon successful review of the PDMP by the
[[Page 12898]]
practitioner, as long as the prescriptions together do not exceed a 30
day supply.
If the practitioner otherwise completes their review of the PDMP
system pursuant to paragraph (2), or is otherwise able to comply with
all relevant requirements in paragraph (3), proposed paragraph (4)
would authorize practitioners to prescribe ``no more than a 30-day
supply across all such prescriptions'' until the practitioner has
conducted the required medical evaluation. Put another way, this
provision would allow the doctor to provide up to a thirty-day supply
in any combination of prescriptions and prohibits the doctor from going
beyond that until the medical evaluation is conducted. This requirement
would limit the supply of buprenorphine prescribed pursuant to an
audio-only telemedicine encounter to a maximum of a 30-day supply. This
supply may include dosages that are titrated up or down depending on
the patient's response to the medication and the practitioner's medical
judgment, however, it may not exceed a supply sufficient to treat the
patient for more than 30 days.
Proposed paragraph (b)(5) would clarify what satisfies the medical
evaluation requirement for the purposes of (b)(4). Such a medical
evaluation would include the prescribing practitioner conducting a
medical evaluation while the patient is in the physical presence of the
prescribing practitioner in (b)(5)(i), or by the alternative schemes
listed in (b)(5)(ii) and (iii). Under the alternative proposed in
(b)(5)(ii), the patient would not be in the physical presence of the
prescribing practitioner, but the patient would have to be in the
physical presence of another DEA-registered practitioner pursuant to
proposed (b)(5)(ii)(A)-(D). This other non-prescribing, physically
present practitioner would have to be acting in the usual course of
professional practice and in accordance with applicable State law.
Also, the prescribing practitioner, the DEA-registered practitioner on
site with the patient, and the patient would have to participate in an
audio-video conference simultaneously (i.e., these individuals must
participate in a two-way, simultaneous interactive communication with
both audio and video for this medical evaluation even if audio-only
communication had been authorized under the standard of 42 CFR
410.78(a)(3) for prior communications between the prescribing
practitioner and the patient). Thus, even though the prescribing
practitioner would not be conducting an in-person evaluation him or
herself, he or she could rely on the in-person evaluation of the on-
site practitioner--and remotely observe this evaluation via video and
audio when determining whether to continue prescribing to the patient.
Additionally, the requirement of a medical evaluation is satisfied
when the prescribing practitioner receives a qualifying telemedicine
referral from a DEA registered practitioner under (b)(5)(iii). Under
this scheme, the patient must have received a face-to-face evaluation
from a DEA registered practitioner, referred to simply as the referring
practitioner. The referring practitioner may then issue a written
qualifying telemedicine referral \61\ to the prescribing practitioner
based on the diagnosis, prognosis, or treatment that was provided for
the medical issue upon which the medical evaluation was predicated
pursuant to paragraphs (A) and (C). Moreover, under paragraph (B), the
referral practitioner must communicate the results of the medical
evaluation which include any diagnosis, prognosis, or treatment to the
prescribing practitioner prior to the prescribing practitioner issuing
the prescription. If the prescribing practitioner issues the
prescription to the patient prior to receiving the information provided
in (B), this does not qualify as a medical evaluation for the purposes
of Sec. 1306.34(b)(5) and the patient must receive a medical
evaluation in the manner described in paragraph (b)(5)(i) or
(b)(5)(ii). Once a medical evaluation meeting the specified criteria is
performed, the proposed rule would allow a practitioner to continue
prescribing to the patient, so long as doing so was consistent with
legitimate medical purposes and a subsequent evaluation was not
required by law or other provisions of this chapter.
---------------------------------------------------------------------------
\61\ Proposed 21 CFR 1300.04(k). Note that this definition was
proposed by DEA in a distinct Notice of Proposed Rulemaking that
also addresses telemedicine. See RIN 1117-AB40, published elsewhere
in this issue of the Federal Register. The public is encouraged to
respond to the proposed definition in any/both documents.
---------------------------------------------------------------------------
Last, proposed paragraph (b)(6) would create recordkeeping
requirements for practitioners who issue prescriptions in the manner
described by this section. Paragraph (6)(i) would require records
indicating whether the telemedicine encounter was conducted using
audio-video or audio-only technology. This recordkeeping requirement is
essential for investigation purposes, as DEA would have no other means
of verifying the nature of the telemedicine encounter. Proposed
paragraph (6)(ii) would also require the practitioner to record the
patient's reason for requesting an audio-only encounter, if the
encounter was audio-only. This provision would also assist DEA, as it
may be used as evidence to establish whether the practitioner issued
the prescription in the usual course of professional practice. Proposed
paragraph (6)(iii) would require practitioners to record all attempts
to comply with paragraph (b)(2) when the practitioner is able to access
the PDMP system. This provision is necessary as it enables DEA to
verify whether the registrant knew or should have known of the
patient's prior prescription history. Proposed paragraph (6)(iv) would
require practitioners who were unable to access their state PDMP system
to record ``the dates and times that the practitioner attempted to gain
access, the reason why the practitioner was unable to gain access, and
any follow-up attempts made to gain access to the system.'' This
provision is necessary as it enables DEA to verify the practitioner's
attempts to access the PDMP system, the reasons for being unable to
access, and any subsequent attempts to access the system. Proposed
paragraph (6)(v) would require, if the patient seeks a medical
evaluation pursuant to 1306.34(b)(5)(ii), the prescribing practitioner
to record the full name, DEA registration number, National Provider
Identifier (NPI) number of the DEA-registered practitioner in the
physical presence of the patient, and if issued a qualifying
telemedicine referral, the name and NPI of the referring practitioner,
a copy of the referral and any communications shared pursuant to Sec.
1306.31(d)(3)(i)-(iii). This provision is necessary as this information
is essential to future investigations and these details of the medical
evaluation, such as the physically present practitioner's name, may not
otherwise be recorded by the prescribing practitioner.
IV. Regulatory Analyses
Executive Orders 12866 (Regulatory Planning and Review), 13563
(Improving Regulation and Regulatory Review)
This proposed rule was developed in accordance with the principles
of Executive Orders (E.O.) 12866 and 13563. E.O. 12866 directs agencies
to assess all costs and benefits of available regulatory alternatives
and, if regulation is necessary, to select regulatory approaches that
maximize net benefits (including potential economic, environmental,
public health, and safety effects; distributive impacts; and equity).
E.O. 13563 is supplemental to and reaffirms the principles, structures,
[[Page 12899]]
and definitions governing regulatory review established in E.O. 12866.
E.O. 12866 classifies a ``significant regulatory action,''
requiring review by the Office of Management and Budget (OMB), as any
regulatory action that is likely to result in a rule that may: (1) have
an annual effect on the economy of $100 million or more or adversely
affect in a material way the economy, a sector of the economy,
productivity, competition, jobs, the environment, public health or
safety, or State, local, or tribal governments or communities; (2)
create a serious inconsistency or otherwise interfere with an action
taken or planned by another agency; (3) materially alter the budgetary
impact of entitlements, grants, user fees, or loan programs or the
rights and obligations of recipients thereof; or (4) raise novel legal
or policy issues arising out of legal mandates, the President's
priorities, or the principles set forth in the E.O. While this proposed
rule is not economically significant, OMB has determined that this
proposed rule is a ``significant regulatory action'' under E.O. 12866,
section 3(f). Accordingly, this proposed rule has been submitted to OMB
for review.
Due to COVID-19 public health emergency, DEA issued guidance which
authorized the prescribing of buprenorphine to new and existing
patients with OUD via telemedicine, including audio-only telemedicine
(e.g., telephone) by otherwise authorized practitioners without
requiring such practitioners to first conduct an examination of the
patient in person.\62\ To continue the flexibilities of telemedicine,
including audio-only telemedicine, for prescribing schedule III-V
controlled substances which are approved for maintenance treatment or
withdrawal management beyond the public health emergency, DEA proposes
to promulgate regulations which would balance the need to increase
patient access to legitimate medical treatment with the goal of
providing effective controls against diversion. Thus, DEA is proposing
to expand the conditions under which a practitioner is authorized to
prescribe buprenorphine via telemedicine, including an audio-only
telemedicine encounter, and to describe obligations which arise once a
practitioner prescribes to patients.
---------------------------------------------------------------------------
\62\ ``Dear Registrant'' letter to DEA Qualifying Practitioners
and DEA Qualifying Other Practitioners, Thomas W. Prevoznik, Deputy
Assistant Administrator, Diversion Control Division, March 31, 2020.
---------------------------------------------------------------------------
Number of Telemedicine Encounters, Providers, and Patients
The number of telemedicine encounters, including audio-only
telemedicine, leading to buprenorphine prescriptions under the
temporary guidance during the public health emergency forms the basis
for estimating the number of telemedicine encounters pursuant to this
proposed rule.
DEA estimated the number of telemedicine encounters associated with
an initial buprenorphine prescription by applying the data provided by
the Centers for Medicare & Medicaid (CMS) data on Medicare Part D
telemedicine services that led to buprenorphine prescriptions to the
number of all buprenorphine prescriptions. Based on CMS claims data
provided by the Department of Health and Human Services Office of
Inspector General (HHS OIG), from March 2020, the start of the COVID-19
health emergency shutdowns, to December 2021, 24,285 Medicare fee-for-
service and managed care telemedicine services, including audio-only
telemedicine, were identified as being linked to buprenorphine Part D
prescriptions fills.\63\ These telemedicine services were provided by
7,733 providers to 15,521 beneficiaries.\64\
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\63\ HHS OIB, March 2022. HHS OIG analyzed telemedicine billing
codes and patient information to identify telemedicine visits within
a 48-hour period prior to a buprenorphine prescription fill
associated with the same patient, and where the prescribing provider
is the same or related to the billing or rendering provider of the
telemedicine visit.
\64\ Id.
---------------------------------------------------------------------------
Based on the CMS data, the telemedicine services and associated
buprenorphine prescriptions identified spiked at the beginning of the
public health emergency and stayed relatively steady in 2021.
Therefore, 2021 data is used to estimate the number of telemedicine,
including audio-only telemedicine, encounters for this analysis. In
2021, there were a total of 1,929,151 Part D buprenorphine
prescriptions associated with 1,332,353 beneficiaries.\65\ Over the
same period, there were 11,956 telemedicine Medicare fee-for-service
and managed care telemedicine services, including audio-only
telemedicine, identified as being linked to buprenorphine Part D
prescriptions fills.\66\ These telemedicine services were provided by
4,533 providers to 8,182 patients.\67\ The 1,929,151 Part D
buprenorphine claims associated with 1,332,353 beneficiaries equates to
a ratio of 1.45 claims per beneficiary. Therefore, the 11,956 services
represent an estimated 8,257 (11,956/1.45) initial prescriptions, which
equates to 0.43 percent (8,257/1,929,151) of total Part D claims for
buprenorphine (1,929,151 total claims). Based on IQVIA data, the total
number of new prescriptions for buprenorphine in the U.S. in 2021 was
15,782,652.\68\ Applying the telemedicine share of total Part D
buprenorphine prescriptions to the estimated number of total services
associated with a buprenorphine prescription yields an estimated 67,458
(0.43 percent x 15,782,652) initial prescriptions. DEA believes this is
a high estimate, as the telemedicine share of total Part D
buprenorphine prescriptions may include telemedicine services allowed
by regulation prior to the PHE.
---------------------------------------------------------------------------
\65\ Id.
\66\ Id.
\67\ HHS OIB, May 2022.
\68\ IQVIA, National Prescription Audit, September, 2022.
---------------------------------------------------------------------------
Affected Persons
This proposed rule would affect practitioners prescribing schedule
III-V controlled substances for the induction of a maintenance
treatment or withdrawal management via telemedicine using audio-video
or audio-only technology and the patients they treat using this
technology. Based on the analysis above, DEA expects the proposed rule
to affect 67,458 patients, annually. As previously discussed, in 2021,
8,182 patients received a prescription for buprenorphine under the
Medicare Part D program, from 4,533 providers, equating to a ratio of
approximately 1.80 patients per provider. Applying this ratio to the
number of affected patients, DEA estimates 37,373 providers are
affected by this proposed rule.
Impact on Physicians or Practitioners
The proposed rule would permit the use of audio-video or audio-only
telemedicine provided that the practitioner (1) meets all requisite
State and Federal registration requirements for both prescribing of
controlled substances and engaging in the practice of telemedicine, (2)
reviews PDMP data regarding any controlled substance prescriptions
issued to the patient in the previous year, (3) is limited to a 30-day
supply, across all such prescriptions, until the practitioner conducts
an in-person medical evaluation, and (4) maintains records of all
prescriptions issued pursuant to a telemedicine encounter, including
whether the encounter was audio-only or audio-video, and if by audio-
only, the patient's reason for requesting an audio-only
[[Page 12900]]
encounter. Below is the analysis of the four requirements stated above.
1. Meet all requisite State and Federal registration requirements:
Practitioners who would participate in audio-video or audio-only
telemedicine pursuant to this proposed rule are assumed to already be
conducting telemedicine and already have the necessary equipment to
conduct audio-video or audio-only telemedicine at no or minimal
additional cost. Additionally, DEA assumes all practitioners who would
participate in telemedicine pursuant to this proposed rule to already
meet all requisite registration requirements, i.e., holding a DEA
registration in the State where the practitioner is located, holding a
DEA registration, etc. Additionally, DEA assumes all practitioners who
would issue prescriptions via telemedicine encounters pursuant to this
proposed rule are authorized under DEA regulations under 21 CFR
1301.13(e)(1)(iv) as well as the states where the practitioner is
located (unless otherwise excepted). Therefore, the impact of this
requirement is minimal.
2. Review of PDMP data: DEA estimates each review of the PDMP will
take 4 minutes, or 0.067 hours, by a practitioner. Based on an
estimated loaded hourly rate of $157.87,\69\ the cost of a review of
the PDMP is $10.52 ($157.87 x 0.067). Applying this cost to 67,458
services, the total cost of PDMP review is $709,970 ($10.52 x 67,458),
annually. While many practitioners already check PDMP prior to issuing
a prescription for a controlled substance for a variety of reasons, DEA
will consider the full cost of checking PDMP, $709,970, a cost of this
proposed rule to be conservative.
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\69\ For the purpose of this analysis, the cost per registrant
is estimated by multiplying the loaded labor rate by the estimated
time to complete the review. The loaded labor rate is based on the
estimated loaded hourly wage for 29-1229, Physicians, all other.
Bureau of Labor Statistics, Occupational Employment and Wages, May
2021, https://www.bls.gov/oes/current/oes291229.htm. The average
hourly wage is $111.30, with benefits estimated at an additional
41.84 percent of the base wage. The load factor is calculated by
comparing the benefits for private workers as a share of wages,
29.5%/70.5% = 41.84%. Bureau of Labor Statistics, Employer Costs for
Employee Compensation--December 2021, https://www.bls.gov/news.release/pdf/ecec.pdf. The loaded wage was therefore $111.30 x
1.4184 = $157.87 per hour for private physicians, all other.
---------------------------------------------------------------------------
3. Limited to a 30-day supply: Currently, inducting MOUD with
schedule III-V controlled substances requires an in-person visit or a
telemedicine encounter as defined in Sec. 1300.04(i). This proposed
rule would expand the circumstances under which individual
practitioners are authorized to prescribe schedule III-V controlled
substances which are approved for maintenance treatment or withdrawal
management via a telemedicine encounter, including an audio-only
telemedicine encounter. Therefore, this proposed rule would enable a
treatment option that would otherwise be unavailable. While DEA does
not have a basis to quantify the economic impact of the 30-day supply
limit, 30 days of medication for inducting treatment is a benefit over
not receiving any medication. Additionally, as stated earlier,
requiring an in-person visit with the prescribing practitioner within
30 days is consistent with the usual course of MOUD and purpose of the
Ryan Haight Act, and necessary to enforce the CSA and its implementing
regulations.
4. Maintains records of all prescriptions issued pursuant to a
telemedicine encounter, including the supervising physician name where
applicable under state law and DEA number when the prescription is
issued by a physician assistant or nurse practitioner, whether the
encounter was audio-only or audio-video and, if audio-only, the
patient's reason for requesting an audio-only encounter: While DEA
estimates two minutes for a prescriber to make such recording, DEA
believes prescribers are already performing many of these tasks as
usual and ordinary practice and any additional recordkeeping as a
result of this proposed rule is minimal. Therefore, there is minimal
additional cost associated with this requirement.
In summary, the total cost to practitioners is $709,970 annually,
which is the cost associated with checking PDMP for all patients.
Impact on Patients
As discussed earlier, DEA estimates this proposed rule will affect
67,458 patients per year. DEA anticipates that patients will fall into
one of two categories:
(1) Patients who would otherwise not receive treatment or
prescription for OUD absent the proposed rule change. These patients
have no other means to receive treatment. They are unable to visit a
physician in-person or otherwise visit a practitioner engaged in the
practice of telemedicine as defined in Sec. 1300.04(i), but able to
have an audio-video or audio-only telemedicine visit pursuant to this
proposed rule.
(2) Patients who would eventually receive treatment and
prescription even absent the proposed rule change. These patients are
able to either visit a physician in-person or have telemedicine visit
with a practitioner engaged in the practice of telemedicine as defined
in Sec. 1300.04(i); however, such visit might have been delayed for
any variety of reason, i.e., lack of reliable transportation, work or
caretaking commitments, long wait times for an appointment with the
physician, etc. This proposed rule, if implemented, would create
additional flexibilities, potentially allowing patients to access
treatment more quickly than would be possible absent this proposed
rule.
DEA does not have a basis to estimate how many of the estimated
67,458 patients fall into the two groups. However, DEA anticipates a
larger impact for the first group. The impact on the first group of
patients is a result of receiving treatment for OUD. There would be a
cost of treatment and the benefit generated from the treatment, which
would not have been possible without this proposed rule. The impact on
the second group would be the result of receiving treatment sooner than
they would have without this proposed rule. For both groups, the impact
could potentially be lifesaving. However, DEA does not have access to
data that would permit it to estimate the number of lives the improved
access could save. There would be a cost of treatment and the benefit
of earlier treatment, including potential cost-offsets associated with
reduced healthcare and public safety expenditures. According to a
December 2021 research report, treatment with buprenorphine for a
stable patient provided in a certified Opioid Treatment Program,
including medication and twice-weekly visits were $115 per week or
$5,980 per year.\70\ This is likely higher than the cost of treating a
stable patient in a primary care setting, where patients are more
likely to see providers once per week and where there are no associated
specialized costs. However, using the $5,980 per year estimate serves
to establish an upper boundary for potential costs in any cost-benefit
comparison. Estimates of the impact of buprenorphine use in the
treatment of OUD suggest a 23.7% decrease in total deaths, and 31.2%
reduction in drug poisonings (both fatal and nonfatal). In total, the
combined cost-savings of buprenorphine (including both health-care
costs as well as criminal justice costs) was estimated by one study at
$60,000 per person.\71\ At the costs listed above, the savings from the
treatment of
[[Page 12901]]
one person would cover the cost of buprenorphine-assisted treatment for
ten others.
---------------------------------------------------------------------------
\70\ How much does opioid treatment cost?, NIDA. (April 13,
2021), https://nida.nih.gov/publications/research-reports/medications-to-treat-opioid-addiction/how-much-does-opioid-treatment-cost.
\71\ Fairley et al., Cost-effectiveness of Treatments for Opioid
Use Disorder. JAMA Psychiatry, (July 01, 2021).
---------------------------------------------------------------------------
A study published in 2021 of the societal costs for OUD found that
the ``[C]osts for opioid use disorder and fatal opioid drug poisoning
in 2017 were estimated to be $1.02 trillion. The majority of the
economic burden is due to reduced quality of life from opioid use
disorder and the value of life lost due to fatal opioid drug
poisoning.'' \72\ According to the report, in 2017 total non-fatal
costs are $471 billion and total fatal costs are $550 billion and there
were 2.1 million persons ages 12 years and older with an OUD, and
47,000 fatal opioid drug poisonings.\73\ Non-fatal costs include costs
associated with health care, substance use disorder treatment, criminal
justice, lost productivity, and the value of reduced quality of life.
Dividing the total non-fatal cost of $471 billion by the number of
persons ages 12 and older with an OUD (2.1 million), the societal cost
(cost burden on society) of non-fatal OUD is approximately $224,000
($471 billion/2.1 million) per person with OUD per year. While DEA is
unable to quantify how many of the affected patients will be
successfully treated for OUD or how many fatal opioid drug poisonings
will be avoided as a result of this proposed rule, the potential
economic benefit is disproportionally large compared to any cost
associated with this rule. A small reduction in OUD has the potential
to save money in excess of the total costs of the proposed rule.
---------------------------------------------------------------------------
\72\ Florence et al., The economic burden of opioid use disorder
and fatal opioid overdose in the United States, (2017).
\73\ Id.
---------------------------------------------------------------------------
Risk of Diversion
The proposed rule will reduce the requirements imposed on
practitioners who wish to prescribe schedule III-V controlled
substances as part of medication treatment for OUD. DEA understands
that there is a risk of misuse and diversion of drugs approved for the
use in maintenance treatment or withdrawal management, which could be
increased by expanded prescribing.
While the proposed rule may increase the risk of diversion, with
the proposed safeguards, and given the safety profile of buprenorphine,
DEA estimates this increased risk will be minimal. Requirements to
check the PDMP prior to issuance of a prescription, 30-day limitations,
in-person requirements for follow-up appointments, and more detailed
requirements for recordkeeping are expected to minimize the diversion
of buprenorphine via telemedicine, including audio-only telemedicine.
Practitioners already have the authority to prescribe MOUD. Studies
have found that, in 2019, the percentage of buprenorphine misuse among
adults with past-year use was 29.2%. Of those adults who misused
buprenorphine in a previous year, 71.8%-74.7% did not have their own
prescription.\74\ Given the misuse of buprenorphine is often for self-
treatment of OUD symptoms, these numbers underscore the need for
expanded access to buprenorphine treatment for OUD.
---------------------------------------------------------------------------
\74\ Han, Beth et al. ``Trends in and Characteristics of
Buprenorphine Misuse Among Adults in the US.'' JAMA Netw Open. 2021
Oct 1; 4(10):e2129409. Accessed 9/15/2022.
---------------------------------------------------------------------------
The growth of waivers to prescribe buprenorphine was smallest among
prescribers working in small nonmetropolitan counties. Prescribers in
rural counties were associated with low buprenorphine dispensing.\75\
DEA believes that by providing increased access for rural areas, the
benefits of increasing access to MOUD outweigh any added risk of
diversion as the result of this proposed rule.
---------------------------------------------------------------------------
\75\ Id.
---------------------------------------------------------------------------
Other Potential Costs
DEA also examined the cost of technology, both capital investment
and operation expenses, in order to provide telemedicine in compliance
with the proposed rule. DEA believes that the use of telemedicine will
not require any additional capital expenditures on the part of
practitioners or patients. Recordkeeping requirements are likely to
have a minimal impact because current recordkeeping practices are
likely to meet the requirements imposed by the proposed rule, and any
additional time is expected to be minimal. Electronic medical records
may be updated in the future to reflect the proposed rule change, such
as the inclusion of a flag for a telemedicine visit, including an
audio-only visit, but such changes are likely to be minor and included
as part of any normal software update.
Summary
In summary, DEA estimates this proposed rule would affect 37,373
providers and 67,458 patients, annually. DEA believes that the proposed
rule would increase patient access to MOUD for two types of patients:
those who otherwise would be unable or unwilling to seek treatment, as
well as those who would seek treatment but with some form of delay.
Increased access to MOUD is expected to reduce the number of opioid
drug poisonings annually, however DEA cannot quantify the size or total
benefits of such a reduction. There would be a slight increase in labor
costs per practitioner, due to increased time spent reviewing PDMP
databases. The estimated total cost to the 37,373 providers is
$709,970, annually. DEA estimates recordkeeping requirements are likely
to have a minimal impact because current recordkeeping practices are
likely to meet the requirements imposed by the proposed rule, and any
additional time is expected to be minimal. The increase in the
availability and flexibility of treatment with schedule III-V
controlled substances may increase the risk of diversion, however DEA
believes that any increase would be small, and outweighed by the
benefit to patients and reduction in the societal cost of opioid use
disorder.
Executive Order 12988, Civil Justice Reform
The proposed regulation meets the applicable standards set forth in
sections 3(a) and 3(b)(2) of Executive Order 12988, Civil Justice
Reform, to eliminate ambiguity, minimize litigation, establish clear
legal standards, and reduce burden.
Executive Order 13132, Federalism
This proposed rulemaking does not have federalism implications
warranting the application of E.O. 13132. The proposed rule does not
have substantial direct effects on the states, on the relationship
between the national government and the States, or the distribution of
power and responsibilities among the various levels of government.
Executive Order 13175, Consultation and Coordination With Indian Tribal
Governments
This proposed rule does not have substantial direct effects on the
States, on the relationship between the national government and the
States, or the distribution of power and responsibilities between the
Federal Government and Indian tribes.
Regulatory Flexibility Act
The Administrator, in accordance with the Regulatory Flexibility
Act (5 U.S.C. 601-612) (``RFA''), has reviewed this proposed rule and
by approving it certifies that it will not have a significant economic
impact on a substantial number of small entities.
Due to the COVID-19 public health emergency, DEA issued guidance
which authorized prescribing of buprenorphine to new and existing
patients with OUD via telephone by otherwise authorized practitioners
[[Page 12902]]
without requiring such practitioners to first conduct an examination of
the patient in person.\76\ To continue the flexibilities of
telemedicine, including audio-only telemedicine, for prescribing
Schedule III-V controlled substances which are approved for maintenance
treatment or withdrawal management beyond the public health emergency,
DEA proposed to promulgate regulations which would balance the need to
increase patient access to legitimate medical treatment with the
overarching goal of providing effective controls against diversion.
Thus, DEA is proposing to expand the conditions under which a
registered practitioner is authorized to prescribe buprenorphine via
telemedicine, including through an audio-only telemedicine encounter,
and describe the obligations which arise once a practitioner prescribes
to patients.
---------------------------------------------------------------------------
\76\ ``Dear Registrant'' letter to DEA Qualifying Practitioners
and DEA Qualifying Other Practitioners, Thomas W. Prevoznik, Deputy
Assistant Administrator, Diversion Control Division, March 31, 2020.
---------------------------------------------------------------------------
Affected Persons
This proposed rule would affect practitioners prescribing schedule
III-V controlled substances for the induction of maintenance treatment
or withdrawal management of patients with OUD using telemedicine and
the same patients being treating using telemedicine. As stated above,
DEA estimates this proposed rule would affected 37,373 practitioners
and 67,458 patients, annually. Because practitioners are individuals
and not small entities, this analysis examines the impact of the
proposed rule on affected physicians and small entities that employ the
affected physicians.
The proposed rule would permit the use of audio-video or audio-only
telemedicine provided that the practitioner (1) meets all requisite
State and Federal registration requirements for both prescribing of
controlled substances and engaging in the practice of telemedicine, (2)
reviews PDMP data regarding any controlled substance prescriptions
issued to the patient in the previous year, (3) is limited to a 30-day
supply, across all such prescriptions, until the practitioner conducts
an in-person medical evaluation, and (4) maintains records of all
prescriptions issued pursuant to a telemedicine encounter, including
the supervising physician name and DEA registration number, in cases
where the prescription is issued by a nurse practitioner or physician
assistant, whether the encounter was audio-only or audio-video and, if
audio-only, the patient's reason for requesting an audio-only
encounter.
A significant number of physicians and Mid-Level Practitioners work
in offices and institutions that meet the RFA's definition of small
entities. To estimate the number of affected entities, DEA first
determined the North American Industry Classification System
(``NAICS'') codes that most closely represent businesses that would
employ the physicians and MLP's who would deliver MOUD service via
telemedicine, including an audio-only telemedicine encounter. Then, DEA
researched economic data for those codes. The source of the economic
data is the Small Business Administration (``SBA''), Office of
Advocacy, and is based on data provided by the U.S. Census Bureau,
Statistics of U.S. Businesses (``SUSB'').\77\ The following business
NAICS codes are estimated to represent businesses that employ the
affected persons, potential applicants:
---------------------------------------------------------------------------
\77\ SUSB's employer data contain the number of firms, number of
establishments, employment, and annual payroll for employment size
of firm categories by location and industry. A ``firm'' is defined
as an aggregation of all establishments owned by a parent company
(within a geographic location and/or industry) with some annual
payroll. The data table is available at https://www.sba.gov/sites/default/files/files/static_us_11.xls (last visited April 25, 2022).
621111--Offices of Physicians, Except Mental Health
Specialists
621112--Offices of Physicians, Mental Health Specialists
621420--Outpatient Mental Health and Substance Abuse Centers
622110--General Medical and Surgical Hospitals
622210--Psychiatric and Substance Abuse Hospitals
SUSB data contains the number of firms by size ranges for each of
the NAICS codes. For the purposes of this analysis, the term ``firm''
as defined in the SUSB is used interchangeably with ``entity'' as
defined in the RFA.
To estimate the number of affected entities that are small
entities, DEA compared the SUSB data for the number of firms in various
firm size ranges with SBA size standards for each of the representative
NAICS codes. The SBA size standard is the firm size based on the number
of employees or annual receipts depending on industry. The SBA size
standards for NAICS codes 621111, 621112, 621420, 622110, and 622210
are annual receipts of $14 million, $12 million, $16.5 million, $41.5
million, and $41.5 million, respectively.\78\
---------------------------------------------------------------------------
\78\ SBA. Table of Size Standards, Effective July 14, 2022.
https://www.sba.gov/document/support-table-size-standards (last
visited September 28, 2022.)
---------------------------------------------------------------------------
The firms in each size range below the SBA size standard are small
firms. The number of firms below the SBA size standard was added to
determine the total number of small firms in each NAICS code. DEA
estimates there are 161,286, 10,561, 6,523, 2,560, and 396 entities in
the 621111, 621112, 621420, 622110, and 622210 industries,
respectively. Based on the SUSB data on the firm sizes, DEA estimates
there are 157,060, 10,392, 5,773, 1,047, and 188 small entities in the
621111, 621112, 621420, 622110, and 622210 industries, respectively. In
total, DEA estimates there are 181,326 entities in the five potentially
affected industries, of which 174,460 (96.2 percent) are small
entities. The analysis is summarized in table 1 below.
Table 1--Number of Affected Entities and Small Entities
----------------------------------------------------------------------------------------------------------------
Number of SBA size Number of
NAICS code firms standard ($) small firms *
----------------------------------------------------------------------------------------------------------------
621111--Offices of Physicians, excepting Mental Health 161,286 14,000,000 157,060
Specialists....................................................
621112--Offices of Physicians, Mental Health Specialists........ 10,561 12,000,000 10,392
621420--Outpatient Mental Health and Substance Abuse Centers.... 6,523 16,500,000 5,773
622110--General Medical and Surgical Hospitals.................. 2,560 41,500,000 1,047
622210--Psychiatric and Substance Abuse Hospitals............... 396 41,500,000 188
-----------------------------------------------
Total....................................................... 181,326 174,460
-----------------------------------------------
[[Page 12903]]
Percent of Total........................................ 95.8%
----------------------------------------------------------------------------------------------------------------
* Not all decimal places shown.
From above, E.O. 12866 section, DEA estimates there will be 67,458
telemedicine services pursuant to this proposed rule, including audio-
only telemedicine services, rendered by 37,373 providers to 67,458
patients, annually. Therefore, this proposed rule is estimated to
affect 37,373 individual practitioners employed in industries with
173,730 small businesses potentially affected by this proposed rule.
Since some small entities will employ more than one practitioner, the
number of affected small entities is expected to be less than 174,460
and are expected to be proportionally across the five industries. DEA
considers a substantial number of small entities are affected if more
than 30 percent of small entities in the affected industries is
affected. Therefore, at 21.4 percent of the total small entities
(37,373 providers/173,730 small entities), the number of small entities
affected by this proposed rule is estimated to be not a substantial
number for any of the representative industries.
The cost of the proposed rule impacts the affected entities and
small entities on a ``per person'' basis. Rather than estimating the
number of physicians and MLPs per firm, then the cost per firm, then
whether the cost is significant, DEA employed a more direct approach
based on the following logic:
In order to continue as going concerns, the affected firms
must generate enough revenue to pay the wages of physicians and MLPs,
and other operating expenses.
Therefore, revenue for firms must be greater than the
wages paid to practitioners and MLPs.
Therefore, if the cost of the proposed rule is not
economically significant when compared to individual wages for
practitioners and MLPs, the cost of the proposed rule is not
economically significant when compared to the annual revenue of the
firms.
From 2021 data provided by HHS OIG, DEA estimates that 8,182
patients received telemedicine services prior to receiving a
prescription for buprenorphine. These services were provided by 4,533
separate providers, for approximately 1.8 patients per provider. DEA
assumed that this ratio is the same for the general populations of
practitioners and patients, at 37,373 providers and 67,458 patients.
DEA estimates a non-loaded median hourly wage of $111.30 \79\ and
$56.99 \80\ for potentially affected physicians and MLPs, respectively.
Applying the hourly wage rates to the estimated time to apply, DEA
estimates the labor cost per PDMP review is $7.42 ($111.30 x 4/60) and
$3.80 ($56.99 x 4/60) per physician and MLP, respectively. The non-
loaded wage rates are calculated to represent the cost to the
individual, whereas previously the loaded wage rates were calculated to
represent the total cost of employment to the entity and to the
economy. These rates are multiplied by 1.8 patients, for total labor
costs of $13.39 and $6.86, respectively.
---------------------------------------------------------------------------
\79\ Bureau of Labor Statistics, Occupational and Employment and
Wages, May 2021, 29-1229 Physicians, All Others, https://www.bls.gov/oes/current/oes291229.htm.
\80\ Bureau of Labor Statistics, Occupational and Employment and
Wages, May 2021, 29-1071 Physician Assistants, https://www.bls.gov/oes/current/oes291071.htm.
Bureau of Labor Statistics, Occupational and Employment and
Wages, May 2021, 29-1171 Nurse Practitioners, https://www.bls.gov/oes/current/oes291171.htm.
DEA calculated the weighted average hourly wage based on the
distribution of physician assistants (36.2%) and nurse practitioners
(63.8%).
---------------------------------------------------------------------------
The non-loaded unit cost of conducting a PDMP review is compared to
the non-loaded annual wage rate for physicians and MLPs. Based on the
Bureau of Labor Statistics' (``BLS'') Occupational and Employment and
Wages data, DEA estimates an average annual wage of $231,500 for
physicians, $118,553 for MLPs.\81\ Unit costs of $13.39 and $6.86
represent 0.01 percent of those wages. Table 3 presents the details of
the calculation.
---------------------------------------------------------------------------
\81\ Notes 80 and 81.
Table 3--Costs and Fees as Percent of Wages
--------------------------------------------------------------------------------------------------------------------------------------------------------
Additional
Mean hourly Time to review Cost per Cost per 1.8 Mean annual costs as
wage ($) (hours) patient ($) patients ($) wage ($) percent of
wage
--------------------------------------------------------------------------------------------------------------------------------------------------------
Physicians.............................................. 111.30 0.06 7.42 13.39 231,500 0.01
MLP..................................................... 56.99 0.06 3.80 6.86 118,553 0.01
--------------------------------------------------------------------------------------------------------------------------------------------------------
The economic impact of additional time spent conducting PDMP
reviews represents a small fraction (0.01 percent) of annual wages. DEA
estimates the proposed rule will not have a significant economic impact
on individual physicians and MLPs. The small entities that employ the
potentially affected physicians and MLPs are expected to generate
enough revenue to pay their wages. Therefore, DEA concludes the
proposed rule will not have a significant economic impact on a
substantial number of small entities.
Unfunded Mandates Reform Act of 1995
The estimated annual impact of this proposed rule is minimal. Thus,
DEA has determined in accordance with the Unfunded Mandates Reform Act
of 1995 (``UMRA'') (2 U.S.C. 1501 et seq.) that this action would not
result in any Federal mandate that may result in the expenditure by
State, local, and tribal governments, in the aggregate, or by the
private sector, of $100,000,000 or more (adjusted for inflation) in any
one year. Therefore, neither a Small Government
[[Page 12904]]
Agency Plan nor any other action is required under provisions of UMRA.
Paperwork Reduction Act of 1995
This proposed rule would impose a new collection of information
under the Paperwork Reduction Act (PRA), 44 U.S.C. 3501-3521. The
collections of information contained in the proposed rule, and
identified as such, have been submitted to OMB for review under section
3507(d). DEA has identified the following collection(s) of information
related to this proposed rule. An agency may not conduct or sponsor,
and a person is not required to respond to a collection of information
unless it displays a valid OMB control number. Copies of existing
information collections approved by OMB may be obtained at https://www.reginfo.gov/public/do/PRAMain.
A. Collections of Information Associated With the Notice of Proposed
Rulemaking
Title: Dispensing Records of DEA Registered Practitioners.
OMB Control Number: 1117-NEW.
Form Number: N/A.
DEA is proposing to require practitioners to record additional
information than what is currently required in 21 CFR 1304.03(c).
Proposed 21 CFR 1306.34(7)(i) would require records indicating whether
the telemedicine encounter was conducted using audio-video or audio-
only technology. Proposed paragraph (7)(ii) would also require the
practitioner to record the patient's reason for requesting an audio-
only encounter, if the encounter was audio-only. Proposed paragraph
(7)(iii) would require practitioners to record all attempts to comply
with paragraph (b)(2) when the practitioner is able to access the PDMP
system. Last, proposed paragraph (7)(iv) would require practitioners
who were unable to access their state PDMP system to record ``the dates
and times that the practitioner attempted to gain access, the reason
why the practitioner was unable to gain access, and any follow-up
attempts made to gain access to the system.'' The proposed rule would
also require practitioners to record the name and DEA registration
number of a supervising physician, in cases where the prescription was
issued by a nurse practitioner or physicians assistant.
DEA estimates the following number of respondents and burden
associated with this collection of information:
Number of respondents: 37,373.
Frequency of response: 1.804986 (as needed, calculated).
Number of responses: 67,458.
Burden per response: 0.06666667 hours.
Total annual hour burden: 4497 hours.
B. Request for Comments Regarding the Proposed Collections of
Information
Written comments and suggestions from the public and affected
entities concerning the proposed collections of information are
encouraged. DEA solicits comment on the following issues:
Whether the proposed collection of information is
necessary for the proper performance of the functions of the DEA,
including whether the information will have practical utility.
The accuracy of the DEA's estimate of the burden of the
proposed collection of information, including the validity of the
methodology and assumptions used.
Recommendations to enhance the quality, utility, and
clarity of the information to be collected.
Recommendations to minimize the burden of the collection
of information on those who are to respond, including through the use
of automated collection techniques or other forms of information
technology.
All comments concerning collections of information under the
Paperwork Reduction Act must be submitted to the Office of Information
and Regulatory Affairs, OMB, Attention: Desk Officer for DOJ,
Washington, DC 20503. Please state that your comments refer to RIN
1117- AB78/Docket No. DEA-948. All comments must be submitted to OMB on
or before March 31, 2023. The final rule will respond to any OMB or
public comments on the information collection requirements contained in
this proposed rule.
If you need a copy of the proposed information collection
instrument(s) with instructions or additional information, please
contact the Regulatory Drafting and Policy Support Section (DPW),
Diversion Control Division, Drug Enforcement Administration; Mailing
Address: 8701 Morrissette Drive, Springfield, Virginia 22152;
Telephone: (571) 776-3882.
List of Subjects
21 CFR Part 1300
Chemicals, Drug traffic control.
21 CFR Part 1304
Drug traffic control, Reporting and recordkeeping requirements.
21 CFR Part 1306
Administrative practice and procedure, Drug traffic control,
Prescription drugs, Reporting and recordkeeping requirements.
For the reasons set out above, the Drug Enforcement Administration
proposes to amend 21 CFR parts 1300, 1304, and 1306 as follows:
PART 1300--DEFINITIONS
0
1. The authority citation for part 1300 continues to read as follows:
Authority: 21 U.S.C. 802, 821, 822, 829, 871(b), 951, 958(f).
0
2. Amend Sec. 1300.04 by revising paragraph (j) and adding paragraph
(m) to read as follows:
Sec. 1300.04 Definitions relating to the dispensing of controlled
substances by means of the internet.
* * * * *
(j) The term prescription drug monitoring program (or PDMP) means a
State controlled substance monitoring program, including a program
supported by the Secretary of Health and Human Services under section
399O of the Public Health Service Act, as amended (42 U.S.C. 280g-3).
* * * * *
(m) The term telemedicine encounter means a communication between a
practitioner and a patient using an interactive telecommunications
system referred to in 42 CFR 410.78(a)(3).
* * * * *
PART 1304--RECORDS AND REPORTS OF REGISTRANTS
0
3. The authority citation for part 1304 continues to read as follows:
Authority: 21 U.S.C. 821, 827, 871(b), 958(e)-(g), and 965,
unless otherwise noted.
0
4. Amend Sec. 1304.03 by adding paragraphs (i) and (j) to read as
follows:
Sec. 1304.03 Persons required to keep records and file reports.
* * * * *
(i) [Reserved]
(j) A practitioner shall maintain copies of all qualifying
telemedicine referrals, as defined in Sec. 1300.04(k) of this chapter,
that they issue.
0
5. Amend Sec. 1304.04 by adding paragraph (i), to read as follows.
Sec. 1304.04 Maintenance of records and inventories.
* * * * *
(i)(1) A practitioner who prescribes controlled substances in the
course of maintenance or detoxification treatment pursuant to a
telemedicine encounter as authorized by Sec. 1306.34 shall maintain
records required by this part at the registered location on the
practitioner's certificate of registration issued pursuant to section
303(f) of the Act (21 U.S.C. 823(g)).
[[Page 12905]]
(2) If a prescribing practitioner conducts an evaluation during
which the patient is treated by, and in the physical presence of, a
DEA-registered practitioner (other than the prescribing practitioner)
pursuant to Sec. 1306.34(b)(5)(ii) of this chapter, both the
prescribing practitioner and the DEA-registered practitioner shall
maintain records required by this part at the registered location on
the practitioners' respective certificates of registration issued
pursuant to section 303(f) of the Act (21 U.S.C. 823(g)).
PART 1306--PRESCRIPTIONS AND DISPENSING
0
6. The authority citation for part 1306 continues to read as follows:
Authority: 21 U.S.C. 802, 821, 829, 871(b), unless otherwise
noted.
0
7. Amend Sec. 1306.04 by adding paragraph (e), to read as follows.
Sec. 1306.04 Purpose of issue of prescription.
* * * * *
(e) In addition to the requirements of this section, all narcotic
prescriptions issued pursuant to Sec. 1306.34 may only be issued for
maintenance or detoxification treatment and may not be issued for any
other purpose.
0
8. Add Sec. 1306.34 to read as follows.
Sec. 1306.34 Requirements for individual practitioners who conduct
the induction of maintenance or detoxification treatment via
telemedicine encounter.
(a) An individual practitioner not otherwise authorized to engage
in the practice of telemedicine as defined in Sec. 1300.04(i) of this
chapter is authorized to prescribe any Schedule III, IV, or V narcotic
drug approved by the Food and Drug Administration specifically for use
in the maintenance or detoxification treatment via a telemedicine
encounter as defined in Sec. 1300.04(m) of this chapter if all of the
following conditions are met:
(1) The practitioner is registered under section 303(f) of the Act
(21 U.S.C. 823(g)), 21 CFR 1301.13(e)(1)(iv) in the State in which the
practitioner is located. This requirement does not apply to Department
of Veterans Affairs practitioners, those practitioners employed by and
treating a patient enrolled in the Department of Veterans Affairs
health system, or those practitioners exempt from registration under
section 303(f) in all States pursuant to Sec. 1301.23 of this chapter
when acting with the scope of the employment or contract that exempted
them from the requirement of registration under section 303(f);
(2) The practitioner is authorized by State law to engage in the
practice of telemedicine, or not otherwise prohibited by State law from
practicing telemedicine, in the State where the practitioner is located
and in the State where the patient is located;
(3) The practitioner is authorized under Sec. 1301.28 of this
chapter;
(4) The practitioner must be technically capable of conducting a
telemedicine encounter by using audio and video equipment permitting
two-way, real-time interactive communication with the patient pursuant
to 42 CFR 410.78(a)(3); and
(5) The practitioner complies in all other respects to the
requirements of this section.
(b) An individual practitioner who is authorized to engage in the
practice of telemedicine as described in paragraph (a) must comply with
the following requirements prior to issuing a prescription.
(1) The prescription must only be issued for a Schedule III, IV, or
V narcotic drug approved by the Food and Drug Administration
specifically for use in in maintenance or detoxification treatment and
must be issued for that purpose pursuant to Sec. 1306.04.
(2) Prior to issuing the prescription, the practitioner, including
a practitioner employed by the Department of Veterans Affairs, must
review and consider the data regarding any controlled substance
prescriptions issued to the patient in the last year that is contained
in the prescription drug monitoring program (PDMP) described in Sec.
1300.04(o) of this chapter in the State where the patient is located,
or, if less than one year of data is available, in the entire available
period. If less than one year of data is available, practitioners must
review and consider the entire available period. A practitioner
employed by the Department of Veterans Affairs also must review the
Department of Veterans Affairs internal prescription database for data
regarding any controlled substance prescriptions issued to the patient
in the last year, or, if less than one year of data is available, in
the entire available period.
(3) If the practitioner is unable to obtain the PDMP data (or, if
employed by the Department of Veterans Affairs, the Department of
Veterans Affairs internal prescription database) due to the PDMP (or
Department of Veterans Affairs internal prescription database) system
being non-operational or otherwise inaccessible as a result of a
temporary technological or electrical failure, then:
(i) The practitioner may issue a prescription authorizing the
dispensing of no more than a 7-day supply across all such prescriptions
for Schedule III, IV, or V narcotic drugs approved by the Food and Drug
Administration specifically for maintenance or detoxification treatment
until completing the review described in paragraph (b)(2) of this
section, and verifying that any previous prescriptions were not issued
pursuant to a telemedicine encounter;
(ii) The practitioner must obtain the PDMP (and, if employed by the
Department of Veterans Affairs, Department of Veterans Affairs internal
prescription database) data and conduct the review described in
paragraph (b)(2) of this section within 7 days of the telemedicine
encounter; and
(iii) The practitioner must record the attempts to access the
system pursuant to paragraph (b)(6) of this section.
(4) Upon completing the review described in paragraph (b)(2) of
this section, the practitioner may issue prescriptions authorizing the
dispensing of no more than a 30-day supply across all such
prescriptions, including any prescriptions issued pursuant to paragraph
(b)(3)(i) of this section, for Schedule III, IV, or V narcotic drugs
approved by the Food and Drug Administration specifically for
maintenance or detoxification treatment until the practitioner has
conducted a medical evaluation as described in paragraph (b)(5) of this
section.
(5) For the purposes of this section, the required medical
evaluation may either be:
(i) An evaluation during which the patient is treated by, and in
the physical presence of, the prescribing practitioner; or
(ii)(A) An evaluation during which the patient is treated by, and
in the physical presence of, a DEA-registered practitioner (other than
the prescribing practitioner);
(B) This practitioner in the physical presence of the patient is
acting in the usual course of professional practice;
(C) The evaluation is conducted in accordance with applicable State
law; and
(D) The remote prescribing practitioner, the patient, and the DEA-
registered practitioner on site with the patient participate in a real-
time, audio-video conference in which both the practitioners and the
patient communicate simultaneously; or
(iii) An evaluation that was conducted by a DEA registered
practitioner who:
(A) Issued a written qualifying telemedicine referral under 21 CFR
1300.04(k) for the patient to the prescribing practitioner;
(B) Communicated the results of the evaluation by sharing the
electronic
[[Page 12906]]
medical record which includes, at a minimum, the diagnosis, prognosis,
and treatment of the patient prior to the prescribing practitioner
issuing the prescription; and
(C) Has issued the written referral based on the diagnosis,
prognosis or treatment that occurred as a result of the medical
evaluation.
(6) Practitioners who issue prescriptions for controlled substances
in the course of maintenance or detoxification treatment via a
telemedicine encounter under this section must maintain records of all
prescriptions issued pursuant to Sec. Sec. 1304.03 and 1304.04 of this
chapter indicating the following:
(i) Whether the telemedicine encounter was conducted using audio-
video or audio-only technology;
(ii) If the telemedicine encounter was conducted using audio-only
technology, the patient's reason for requesting the audio-only
encounter;
(iii) All efforts to comply with paragraph (b)(2) of this section
when the practitioner is able to obtain the PDMP data (and, if employed
by the Department of Veterans Affairs, the data from the Department of
Veterans Affairs internal prescription database);
(iv) If the practitioner failed to access the PDMP (or, if employed
by the Department of Veterans Affairs, Department of Veterans Affairs
internal prescription database) system as described in paragraph (b)(2)
of this section, the dates and times that the practitioner attempted to
obtain the data, the reason why the practitioner was unable to gain
access, and any follow-up attempts made to obtain the data;
(v) If a prescribing practitioner conducts an evaluation during
which the patient is treated by, and in the physical presence of, a
DEA-registered practitioner (other than the prescribing practitioner)
pursuant to paragraph (b)(5)(ii) of this section, the full name, DEA
registration number, and National Provider Identifier (NPI) number for
the DEA-registered practitioner in the physical presence of the
patient; and
(vi) If issued a qualifying telemedicine referral, the name, and
NPI of the referring practitioner and a copy of the referral and any
communications shared pursuant to Sec. 1306.34(b)(5)(iii).
Signing Authority
This document of the Drug Enforcement Administration was signed on
February 24, 2023, by Administrator Anne Milgram. That document with
the original signature and date is maintained by DEA. For
administrative purposes only, and in compliance with requirements of
the Office of the Federal Register, the undersigned DEA Federal
Register Liaison Officer has been authorized to sign and submit the
document in electronic format for publication, as an official document
of DEA. This administrative process in no way alters the legal effect
of this document upon publication in the Federal Register.
Scott Brinks,
Federal Register Liaison Officer, Drug Enforcement Administration.
[FR Doc. 2023-04217 Filed 2-27-23; 2:30 pm]
BILLING CODE 4410-09-P