[Federal Register Volume 62, Number 37 (Tuesday, February 25, 1997)]
[Notices]
[Pages 8610-8612]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-4663]
[[Page 8609]]
_______________________________________________________________________
Part V
Department of Health and Human Services
_______________________________________________________________________
Food and Drug Administration
_______________________________________________________________________
Prescription Drug Products; Certain Combined Oral Contraceptives for
Use as Postcoital Emergency Contraception; Notice
Federal Register / Vol. 62, No. 37 / Tuesday, February 25, 1997 /
Notices
[[Page 8610]]
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Food and Drug Administration
[Docket No. 96N-0492]
Prescription Drug Products; Certain Combined Oral Contraceptives
for Use as Postcoital Emergency Contraception
AGENCY: Food and Drug Administration, HHS.
ACTION: Notice.
-----------------------------------------------------------------------
SUMMARY: The Food and Drug Administration (FDA) is announcing that the
Commissioner of Food and Drugs (the Commissioner) has concluded that
certain combined oral contraceptives containing ethinyl estradiol and
norgestrel or levonorgestrel are safe and effective for use as
postcoital emergency contraception, and requests submission of new drug
applications (NDA's) for this use. This notice is intended to encourage
manufacturers to make this additional contraceptive option available.
ADDRESSES: Submit NDA's to the Food and Drug Administration, Center for
Drug Evaluation and Research, Central Document Room, 12229 Wilkins
Ave., Rockville, MD 20852.
FOR FURTHER INFORMATION CONTACT: Lisa D. Rarick, Center for Drug
Evaluation and Research (HFD-580), Food and Drug Administration, 5600
Fishers Lane, Rockville, MD 20857, 301-827-4260.
SUPPLEMENTARY INFORMATION:
I. Background
Combined oral contraceptives, which contain an estrogen and a
progestin, were first approved in the United States in 1960 and in many
other countries shortly thereafter. When taken daily for 3 weeks
followed by a week without medication, these drugs provide effective
contraception. They have become one of the most widely employed methods
of pregnancy prevention, currently used by an estimated 11 million
American women. In the period since the introduction of combined oral
contraceptives, the amounts of estrogen and progestin have been reduced
and explicit labeling guidance for safe use has been developed in
response to extensive medical research. Consequently, combined oral
contraceptives are now accepted as remarkably safe and effective when
used as directed. There are more than 30 brands of FDA-approved oral
contraceptives on the American market that contain estrogens and
progestins. These products contain estrogens and progestins in
different amounts and have some differences in labeling, but all are
considered to be safe and effective.
For several decades, estrogens and progestins have also been used,
either separately or in combination, to prevent pregnancy in women who
have unprotected intercourse as a result of rape, contraceptive
failure, or lack of planning. Such drugs, when used for this purpose,
are known as emergency contraceptive pills, or postcoital pills, or
morning-after pills.
The best researched regimen for emergency contraceptive pills was
first described in 1974 by Professor A. Albert Yuzpe of Canada (Ref.
18). The regimen consists of two tablets, each tablet containing 0.05
milligram (mg) of ethinyl estradiol and 0.50 mg of norgestrel, taken
within 72 hours after unprotected intercourse; a second identical dose
is to be taken 12 hours after the first dose. When used in this manner,
the treatment is 75 percent effective in preventing pregnancy.
This regimen and the very similar regimens described below are
widely used. The specific regimen described by Yuzpe is approved for
use by the drug regulatory agencies of the United Kingdom, Germany,
Sweden, Switzerland, and New Zealand. The approved products used in
this regimen contain ethinyl estradiol and, as the progestin, either
norgestrel or levonorgestrel.
The Yuzpe regimen and similar regimens have been used extensively
in the United States in the last two decades, even though no products
are approved and labeled for this use. The drugs are prescribed by
hospital emergency rooms, reproductive health clinics, and university
health centers. They are also prescribed, although less widely, by
physicians in private practice. On February 14, 1996, the Reproductive
Health Technologies Project established a hotline number (1-800-584-
9911) to inform women about this contraceptive method and about
providers in their local area.
Since the United Kingdom approved emergency contraceptive pills in
1984, more than 4 million prescriptions have been recorded. However,
the actual use is much greater because providers have found it less
expensive to provide tablets of identical drugs taken from products
packaged as combined oral contraceptives. The use of combined oral
contraceptives for emergency contraception in the United States can
only be estimated because they are not approved for this indication,
but the results of a Kaiser Family Foundation survey reported at the
June 28, 1996, meeting of FDA's Advisory Committee for Reproductive
Health Drugs (the Advisory Committee) suggest that approximately
225,000 American women have used the method. A further indication of
the extent of use is that over 25,000 calls were made to the hotline
number (cited above) in the first 5 months of operation.
In November 1994, the Center for Reproductive Law & Policy filed a
citizen petition asking FDA to require manufacturers of certain
combined oral contraceptive products to amend their labeling and
patient package inserts to include information regarding the use of
these products for postcoital emergency contraception. Although FDA
indicated that it had the authority to require that certain conditions
of use be included in a product's labeling, it declined to exercise its
discretion in this case to require the relabeling of these products for
emergency contraception, and denied the petition. However, the agency
decided to present the issue of the safety and effectiveness of
combined oral contraceptives for postcoital emergency use to the
Advisory Committee. The Advisory Committee met on June 28, 1996, to
consider this issue and unanimously concluded that the four regimens
below are safe and effective for postcoital emergency contraception.
For the reasons described in section II. below, FDA agrees with this
conclusion.
The four regimens for postcoital emergency contraception are as
follows:
(1) For tablets that contain 0.05 mg of ethinyl estradiol and 0.50
mg of norgestrel, take 2 tablets within 72 hours after unprotected
intercourse, then take 2 more tablets 12 hours after the first dose;
(2) For tablets that contain 0.03 mg of ethinyl estradiol and 0.30
mg of norgestrel, take 4 tablets within 72 hours after unprotected
intercourse, then take 4 more tablets 12 hours after the first dose;
(3) For tablets that contain 0.03 mg of ethinyl estradiol and 0.15
of levonorgestrel, take 4 tablets within 72 hours after unprotected
intercourse, then take 4 more tablets 12 hours after the first dose;
and
(4) For tablets that contain 0.03 mg of ethinyl estradiol and 0.125
mg of levonorgestrel, take 4 tablets within 72 hours after unprotected
intercourse, then take 4 more tablets 12 hours after the first dose.
The appendix to this notice provides information concerning the use of
emergency contraceptive pills that might be useful to sponsors in
drafting
[[Page 8611]]
physician and patient labeling for these products for this use.
II. Discussion
A. Safety
Experience with the approved products in Europe and New Zealand has
demonstrated the regimens to be safe. At the Advisory Committee's June
28, 1996, meeting, Elizabeth Barden presented information from the
British Medicines Control Agency that only six serious adverse
reactions associated with these products for this use were reported to
it from 1984 to 1996. Of these, only one occurred close enough to the
time of administration to indicate that the reaction might be drug
related.
Emergency contraceptive pills are not effective if the woman is
pregnant; they act by delaying or inhibiting ovulation, and/or altering
tubal transport of sperm and/or ova (thereby inhibiting fertilization),
and/or altering the endometrium (thereby inhibiting implantation).
Studies of combined oral contraceptives inadvertently taken early in
pregnancy have not shown that the drugs have an adverse effect on the
fetus, and warnings concerning such effects were removed from labeling
several years ago. There is, therefore, no evidence that these drugs,
taken in smaller total doses for a short period of time for emergency
contraception, will have an adverse effect on an established pregnancy.
B. Effectiveness
There are numerous published articles that support the
effectiveness of oral contraceptive pills for emergency use (Refs. 1,
3, 4, 7 through 14, 16 and 18 through 21). In 1996, Trussell,
Ellertson, and Stewart reported a meta-analysis of 10 published
articles on clinical trials of emergency contraceptive pills in which
the number of pregnancies among women with regular menstrual cycles who
used emergency contraception was compared to the expected number of
pregnancies based on the cycle day of intercourse and published
estimates of conception probabilities by cycle day (Ref. 9). Defining
effectiveness as the percent reduction in the likelihood of pregnancy
occurring, the authors found a range of effectiveness of 55.3 percent
to 94.2 percent, with an average effectiveness of 74.0 percent. In
other words, if 100 women have unprotected intercourse once during the
second or third week of their menstrual cycle, about 8 will become
pregnant, but if the same women use emergency contraception after
intercourse, only 2 will become pregnant.
III. References
The following references have been placed on display in the Dockets
Management Branch (HFA-305), Food and Drug Administration, 12420
Parklawn Dr., rm. 1-23, Rockville, MD 20852, and may be seen by
interested persons between 9 a.m. and 4 p.m., Monday through Friday.
1. Bagshaw, S. N., D. Edwards, and A. K. Tucker, ``Ethinyl
Oestradiol and D-Norgestrel Is an Effective Emergency Postcoital
Contraceptive: A Report of Its Use in 1,200 Patients in a Family
Planning Clinic,'' Australian and New Zealand Journal of Obstetrics
and Gynecology, 28:137-140, 1988.
2. Delbanco, S., ``1995 Kaiser Family Foundation Surveys on
Emergency Contraceptive Pills: Knowledge and Attitudes among
American Adults and Obstetrician/Gynecologists,'' Testimony before
the FDA Reproductive Health Drugs Advisory Committee, June 28, 1996.
3. Fasoll, M., F. Parazzini, G. Cecchetti, and C. La Vecchia,
``Post-coital Contraception: An Overview of Published Studies,''
Contraception, 39:459-468, 1989.
4. Glasier, A., ``Postcoital Contraception,'' Reproductive
Medicine Review, 2:75-84, 1993.
5. Glasier, A., et al., ``Mifepristone (RU486) Compared with
High-Dose Estrogen and Progestogen for Postcoidal Emergency
Contraception,'' New England Journal of Medicine, 327:1041-1044,
1992.
6. Haspels, A. A., and M. R. Van Santen, ``New Aspects in Post-
coital Contraception,'' in ``Future Aspects in Contraception,''
edited by B. Runnebaum, T. Rabe, and L. Kiesel, MTP Press Limited,
Boston, 1985.
7. Ho, P. C., and M. S. W. Kwan, ``A Prospective Randomized
Comparison of Levonorgestrel with the Yuzpe Regimen in Post-coital
Contraception,'' Human Reproduction, 8:389-392, 1993.
8. Percival-Smith, R. K. L., and B. Abercrombie, ``Postcoital
Contraception with dl-Norgestrel/Ethinyl Estradiol Combination: Six
Years Experience in a Student Medical Clinic,'' Contraception,
36:287-293, 1987.
9. Trussell, J., C. Ellertson, and F. Stewart, ``The
Effectiveness of the Yuzpe Regimen of Emergency Contraception,''
Family Planning Perspectives, 28:58-87, 1996.
10. Trussell, J., and F. Stewart, ``The Effectiveness of
Postcoital Hormonal Contraception,'' Family Planning Perspectives,
24:262-264, 1992.
11. Trussell, J., et al., ``Emergency Contraceptive Pills: A
Simple Proposal to Reduce Unintended Pregnancies,'' Family Planning
Perspectives, 24:269-273, 1992.
12. Tully, B., ``Postcoital Contraception--A Study,'' British
Journal of Family Planning, 8:119-124, 1983.
13. Van Look, P. F. A., and H. von Hertzen, ``Emergency
Contraception,'' British Medical Bulletin, 49:158-170, 1993.
14. Van Santen, M. R., and A. Haspels, ``Interception II:
Postcoital Low-Dose Estrogens and Norgestrel Combination in 633
Women,'' Contraception, 31:275-293, 1985.
15. Webb, A., ``Safety and Medical Contraindications,'' in ``The
Provision of Emergency Hormonal Contraception,'' edited by D.
Paintin, ch. 4, RCOG Press, London, 1995.
16. Webb, A., J. Russell, and M. Elstein, ``Comparison of Yuzpe
Regimen, Danazol, and Mifepristone (RU486) in Oral Postcoital
Contraception,'' British Medical Journal, 305:927-931, 1992.
17. Webb, A., and D. Taberner, ``Clotting Factors After
Emergency Contraception,'' Advances in Contraception, 9:75-82, 1993.
18. Yuzpe, A. A., et al., ``Post Coital Contraception--A Pilot
Study,'' Journal of Reproductive Medicine, 13:53-58, 1974.
19. Yuzpe, A. A., R. Percival Smith, and A. Rademaker, ``A
Multicenter Clinical Investigation Employing Ethinyl Estradiol
Combined With dl-Norgestrel as a Postcoital Contraceptive Agent,''
Fertility and Sterility, 37:508-513, 1982.
20. Yuzpe, A. A., and W. J. Lancee, ``Ethinylestradiol and dl-
Norgestrel as a Postcoital Contraceptive,'' Fertility and Sterility,
28:932-936, 1977.
21. Zuliani, G., U. F. Colombo, and R. Molla, ``Hormonal
Postcoital Contraception with an Ethinylestradiol-Norgestrel
Combination and Two Danazol Regimens,'' European Journal of
Obstetrics & Gynecology and Reproductive Biology, 37:253-260, 1990.
IV. Conclusions
The Commissioner has concluded that combined oral contraceptives,
taken initially within 72 hours of unprotected intercourse and
providing a total of 0.10 or 0.12 mg of ethinyl estradiol and 0.50 or
0.60 mg of levonorgestrel in each of 2 doses separated by 12 hours, are
safe and effective for use as postcoital emergency contraception. The
Commissioner bases this conclusion on FDA's review of the published
literature concerning this use (listed above), FDA's knowledge of the
safety of combined oral contraceptives as currently labeled, and on the
unanimous conclusion that these regimens are safe and effective made by
the agency's Advisory Committee for Reproductive Health Drugs at its
June 28, 1996, meeting. Because such combined oral contraceptives have
not been labeled for this use or this dosage regimen, the Commissioner
finds that these products are new drugs as defined in section 201(p)(1)
and (p)(2) of the Federal Food, Drug, and Cosmetic Act (the act) (21
U.S.C. 321(p)(1) and (p)(2)). Accordingly, approved NDA's are required
as a condition of marketing.
FDA is prepared to accept NDA's for combined oral contraceptives
appropriately labeled for use as postcoital emergency contraception
under section 505(b)(2) of the act (21 U.S.C. 355(b)(2)) and part 314
(21 CFR part 314). Because of the publicly available safety and
effectiveness data documenting the drugs' use, the safety and
effectiveness requirements of Sec. 314.50 may be met by citing the
[[Page 8612]]
published literature listed in the references in section III. of this
document. The Commissioner advises that it is unnecessary to submit
copies and reprints of the data cited in section III. of this document.
Both the safety and effectiveness data upon which the Commissioner
bases the above conclusions and the minutes of the Advisory Committee
meeting are on file for public inspection in the Dockets Management
Branch (address above). The Commissioner invites applicants to submit
any other pertinent studies and literature of which they are aware.
Dated: February 20, 1997.
David A. Kessler,
Commissioner of Food and Drugs.
Appendix
Use of Emergency Contraceptive Pills (ECP's)
ECP's consist of two doses of regular birth control pills
containing estrogen and progestin. Taking ECP's provides a short,
strong, burst of hormone exposure. Depending on where you are in
your cycle and when you had unprotected intercourse, using ECP's may
prevent ovulation, disrupt fertilization, or inhibit implantation of
a fertilized egg in the uterus.
How To Use ECP's
The oral contraceptive pills that can be used as ECP's are
listed below. Take only one type of pill, not all of them. For
example, if you use Ovral, you do not need Nordette. If you are
getting your ECP's from a regular pack of birth control pills
containing 28 pills (1 for every day), remember that the last 7
(green or pink) pills do not contain any hormones.
------------------------------------------------------------------------
Number of
pills to Number of
swallow within pills to
Brand Name Pill Color 72 hours after swallow 12
unprotected hours later
sex
------------------------------------------------------------------------
Ovral white 2 2
Lo/Ovral white 4 4
Nordette light orange 4 4
Levlen light orange 4 4
Triphasil yellow 4 4
Tri-Levlen yellow 4 4
------------------------------------------------------------------------
1. Swallow the first dose no later than 72 hours after having
unprotected sex. Remember that the second dose must be taken 12
hours after the first dose. Taking the first dose at 3 p.m. would
mean taking the second dose at 3 a.m. So take the first dose at a
time that will make it convenient to take the second dose 12 hours
later.
2. Swallow the second dose 12 hours after taking the first dose.
Do not swallow any extra ECP's. More pills will probably not
decrease the risk of pregnancy any further and will increase the
risk of nausea.
Side Effects of ECP's
About half the women who take ECP's have temporary nausea. It is
usually mild and should stop in a day or so. The risk of nausea may
be reduced if you take a long-acting nonprescription antinausea
medicine (such as meclizine) 30 minutes to 1 hour before taking each
of the two doses of ECP's. About 20 percent of women who take ECP's
vomit. If you vomit within an hour after taking either dose of
ECP's, call your clinician to discuss whether to repeat that dose or
to take antinausea medicine.
Before Taking ECP's
If you think you might have gotten pregnant last month, see your
clinician before taking ECP's. Early pregnancy symptoms can include
breast tenderness, nausea, or a previous period that was not quite
normal.
If you have a serious medical problem, talk to your clinician
before using ECP's.
After Taking ECP's
Your next menstrual period may start a few days earlier or later
than usual. If your period does not start within 3 weeks, see your
clinician for an exam and pregnancy test. If ECP's fail, or if you
were already pregnant when you took ECP's, the fetus would be
exposed to hormones. Studies of women who continued to take birth
control pills after they unknowingly became pregnant do not show any
evidence of harm to the fetus.
ECP's may not prevent an ectopic pregnancy (in the tubes or
abdomen). Ectopic pregnancy is a medical emergency. In ectopic
pregnancies, spotting and cramping pain usually begin shortly after
the first missed menstrual period. See your clinician immediately if
you experience these symptoms.
After taking ECP's, get started as soon as you possibly can with
a method of birth control you will be able to use every time you
have sex. ECP's are meant for one-time, emergency protection. ECP's
are not as effective as other forms of birth control. If you want to
start or resume use of birth control pills after taking ECP's,
consult your clinician. Protect yourself from Acquired Immune
Deficiency Syndrome (AIDS) and other sexual infections as well as
pregnancy. Use condoms every time you have sex if you think you may
be at risk.
Source: Adapted (with permission) from Trussell, J., F. Stewart,
F. Guest, and R. A. Hatcher, ``Emergency Contraceptive Pills: A
Simple Proposal To Reduce Unintended Pregnancies,'' Family Planning
Perspectives, 24:269-273, 1992.
[FR Doc. 97-4663 Filed 2-24-97; 8:45 am]
BILLING CODE 4160-01-F