81_FR_7475 81 FR 7446 - Anesthesiology Devices; Reclassification of Membrane Lung for Long-Term Pulmonary Support; Redesignation as Extracorporeal Circuit and Accessories for Long-Term Respiratory/Cardiopulmonary Failure

81 FR 7446 - Anesthesiology Devices; Reclassification of Membrane Lung for Long-Term Pulmonary Support; Redesignation as Extracorporeal Circuit and Accessories for Long-Term Respiratory/Cardiopulmonary Failure

DEPARTMENT OF HEALTH AND HUMAN SERVICES
Food and Drug Administration

Federal Register Volume 81, Issue 29 (February 12, 2016)

Page Range7446-7452
FR Document2016-02876

The Food and Drug Administration (FDA) is issuing a final order to redesignate membrane lung devices for long-term pulmonary support, a preamendments class III device, as extracorporeal circuit and accessories for long-term respiratory/cardiopulmonary failure, and to reclassify the device to class II (special controls) in patients with acute respiratory failure or acute cardiopulmonary failure where other available treatment options have failed, and continued clinical deterioration is expected or the risk of death is imminent. A membrane lung device for long-term pulmonary support (>6 hours) refers to the oxygenator in an extracorporeal circuit used during long-term procedures, commonly referred to as extracorporeal membrane oxygenation (ECMO). Because a number of other devices and accessories are used with the oxygenator in the circuit, the title and identification of the regulation are revised to include extracorporeal circuit and accessories for long-term respiratory/cardiopulmonary failure. Although an individual device or accessory used in an ECMO circuit may already have its own classification regulation when the device or accessory is intended for short-term use (<=6 hours), such device or accessory will be subject to the same regulatory controls applied to the oxygenator (i.e., class II, special controls) when evaluated as part of the ECMO circuit for long- term use (>6 hours). On its own initiative, based on new information, FDA is revising the classification of the membrane lung device for long-term pulmonary support.

Federal Register, Volume 81 Issue 29 (Friday, February 12, 2016)
[Federal Register Volume 81, Number 29 (Friday, February 12, 2016)]
[Rules and Regulations]
[Pages 7446-7452]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-02876]


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DEPARTMENT OF HEALTH AND HUMAN SERVICES

Food and Drug Administration

21 CFR Parts 868 and 870

[Docket No. FDA-2012-N-1174]


Anesthesiology Devices; Reclassification of Membrane Lung for 
Long-Term Pulmonary Support; Redesignation as Extracorporeal Circuit 
and Accessories for Long-Term Respiratory/Cardiopulmonary Failure

AGENCY: Food and Drug Administration, HHS.

ACTION: Final order.

-----------------------------------------------------------------------

SUMMARY: The Food and Drug Administration (FDA) is issuing a final 
order to redesignate membrane lung devices for long-term pulmonary 
support, a preamendments class III device, as extracorporeal circuit 
and accessories for long-term respiratory/cardiopulmonary failure, and 
to reclassify the device to class II (special controls) in patients 
with acute respiratory failure or acute cardiopulmonary failure where 
other available treatment options have failed, and continued clinical 
deterioration is expected or the risk of death is imminent. A membrane 
lung device for long-term pulmonary support (>6 hours) refers to the 
oxygenator in an extracorporeal circuit used during long-term 
procedures, commonly referred to

[[Page 7447]]

as extracorporeal membrane oxygenation (ECMO). Because a number of 
other devices and accessories are used with the oxygenator in the 
circuit, the title and identification of the regulation are revised to 
include extracorporeal circuit and accessories for long-term 
respiratory/cardiopulmonary failure. Although an individual device or 
accessory used in an ECMO circuit may already have its own 
classification regulation when the device or accessory is intended for 
short-term use (<=6 hours), such device or accessory will be subject to 
the same regulatory controls applied to the oxygenator (i.e., class II, 
special controls) when evaluated as part of the ECMO circuit for long-
term use (>6 hours). On its own initiative, based on new information, 
FDA is revising the classification of the membrane lung device for 
long-term pulmonary support.

DATES: This order is effective February 12, 2016.

FOR FURTHER INFORMATION CONTACT: Fernando Aguel, Center for Devices and 
Radiological Health, 10903 New Hampshire Ave., Bldg. 66, Rm. 1234, 
Silver Spring, MD 20993, 301-796-6326, [email protected].

SUPPLEMENTARY INFORMATION:

I. Background--Regulatory Authorities

    The Federal Food, Drug, and Cosmetic Act (the FD&C Act), as amended 
by the Medical Device Amendments of 1976 (the 1976 amendments) (Pub. L. 
94-295), the Safe Medical Devices Act of 1990 (Pub. L. 101-629), the 
Food and Drug Administration Modernization Act of 1997 (FDAMA) (Pub. L. 
105-115), the Medical Device User Fee and Modernization Act of 2002 
(Pub. L. 107-250), the Medical Devices Technical Corrections Act (Pub. 
L. 108-214), the Food and Drug Administration Amendments Act of 2007 
(Pub. L. 110-85), and the Food and Drug Administration Safety and 
Innovation Act (FDASIA) (Pub. L. 112-144), among other amendments, 
established a comprehensive system for the regulation of medical 
devices intended for human use. Section 513 of the FD&C Act (21 U.S.C. 
360c) established three categories (classes) of devices, reflecting the 
regulatory controls needed to provide reasonable assurance of their 
safety and effectiveness. The three categories of devices are class I 
(general controls), class II (special controls), and class III 
(premarket approval).
    Under section 513(d) of the FD&C Act, devices that were in 
commercial distribution before the enactment of the 1976 amendments, 
May 28, 1976 (generally referred to as preamendments devices), are 
classified after FDA has: (1) Received a recommendation from a device 
classification panel (an FDA advisory committee); (2) published the 
panel's recommendation for comment, along with a proposed regulation 
classifying the device; and (3) published a final regulation 
classifying the device. FDA has classified most preamendments devices 
under these procedures.
    Devices that were not in commercial distribution prior to May 28, 
1976 (generally referred to as postamendments devices) are 
automatically classified by section 513(f) of the FD&C Act into class 
III without any FDA rulemaking process. Those devices remain in class 
III and require premarket approval unless, and until, the device is 
reclassified into class I or II or FDA issues an order finding the 
device to be substantially equivalent, in accordance with section 
513(i) of the FD&C Act, to a predicate device that does not require 
premarket approval. The Agency determines whether new devices are 
substantially equivalent to predicate devices by means of premarket 
notification procedures in section 510(k) of the FD&C Act (21 U.S.C. 
360(k)) and part 807 (21 CFR part 807).
    A preamendments device that has been classified into class III and 
devices found substantially equivalent by means of premarket 
notification procedures (510(k)) to such a preamendments device or to a 
device within that type (both the preamendments and substantially 
equivalent devices are referred to as preamendments class III devices) 
may be marketed without submission of a premarket approval application 
(PMA) until FDA issues a final order under section 515(b) of the FD&C 
Act (21 U.S.C. 360e(b)) requiring premarket approval or until the 
device is subsequently reclassified into class I or class II.
    On July 9, 2012, FDASIA was enacted. Section 608(a) of FDASIA (126 
Stat. 1056) amended section 513(e) of the FD&C Act, changing the 
mechanism for reclassifying a device from rulemaking to an 
administrative order.
    Section 513(e) of the FD&C Act provides that FDA may, by 
administrative order, reclassify a device based upon ``new 
information.'' FDA can initiate a reclassification under section 513(e) 
of the FD&C Act or an interested person may petition FDA to reclassify 
a preamendments device. The term ``new information,'' as used in 
section 513(e) of the FD&C Act, includes information developed as a 
result of a reevaluation of the data before the Agency when the device 
was originally classified, as well as information not presented, not 
available, or not developed at that time. (See, e.g., Holland-Rantos 
Co. v. United States Department of Health, Education, and Welfare, 587 
F.2d 1173, 1174 n.1 (D.C. Cir. 1978); Upjohn v. Finch, 422 F.2d 944 
(6th Cir. 1970); Bell v. Goddard, 366 F.2d 177 (7th Cir. 1966).)
    Reevaluation of the data previously before the Agency is an 
appropriate basis for subsequent action where the reevaluation is made 
in light of newly available authority (see Bell, 366 F.2d at 181; 
Ethicon, Inc. v. FDA, 762 F.Supp. 382, 388-391 (D.D.C. 1991)), or in 
light of changes in ``medical science'' (Upjohn, 422 F.2d at 951). 
Whether data before the Agency are old or new data, the ``new 
information'' to support reclassification under section 513(e) of the 
FD&C Act must be ``valid scientific evidence,'' as defined in section 
513(a)(3) of the FD&C Act and 21 CFR 860.7(c)(2). (See, e.g., General 
Medical Co. v. FDA, 770 F.2d 214 (D.C. Cir. 1985); Contact Lens 
Manufacturers Assoc. v. FDA, 766 F.2d 592 (D.C. Cir. 1985), cert. 
denied, 474 U.S. 1062 (1986).)
    FDA relies upon ``valid scientific evidence'' in the classification 
process to determine the level of regulation for devices. To be 
considered in the reclassification process, the ``valid scientific 
evidence'' upon which the Agency relies must be publicly available. 
Publicly available information excludes trade secret and/or 
confidential commercial information, e.g., the contents of a pending 
PMA (see section 520(c) of the FD&C Act (21 U.S.C. 360j(c)).)
    Section 513(e)(1) of the FD&C Act sets forth the process for 
issuing a final reclassification order. Specifically, prior to the 
issuance of a final order reclassifying a device, the following must 
occur: (1) Publication of a proposed order in the Federal Register; (2) 
a meeting of a device classification panel described in section 513(b) 
of the FD&C Act; and (3) consideration of comments to a public docket.

II. Regulatory History of the Device

    FDA published a proposed order to reclassify this device in the 
Federal Register of January 8, 2013 (78 FR 1158) (the ``proposed 
order''). As noted in the proposed order, on July 16, 1982, the Agency 
issued a final rule classifying all membrane lungs for long-term 
pulmonary support into class III (47 FR 31130). On May 11, 1987, FDA 
published a final rule amending the codified language for this device 
to clarify that no effective date had been

[[Page 7448]]

established for the requirement for premarket approval for membrane 
lungs for long-term pulmonary support devices (52 FR 17732 at 17735). 
This device is currently under product code BYS.
    As discussed in the proposed order, FDA considered the available 
information on these devices and concluded that these devices could be 
reclassified to class II, subject to the identified special controls. 
As required by section 513(e)(1) of the FD&C Act, FDA convened a 
meeting of a device classification panel described in section 513(b) of 
the FD&C Act with respect to the membrane lung devices for long-term 
pulmonary support on September 12, 2013, followed by a meeting on May 
7, 2014. The deliberations of the device classification panels are 
discussed in section IV of this order. FDA received and has considered 
two comments on the January 8, 2013, proposed order, as discussed in 
section III. Therefore, FDA has met the requirements for issuing a 
final order under section 513(e)(1) of the FD&C Act.

III. Public Comments in Response to the Proposed Order

    FDA received two comments in response to the January 8, 2013, 
proposed order to reclassify membrane lung devices for long-term 
pulmonary support for conditions where imminent death is threatened by 
cardiopulmonary failure in neonates and infants or where 
cardiopulmonary failure results in the inability to separate from 
cardiopulmonary bypass following cardiac surgery.
    One comment supported FDA's reclassification proposal but requested 
that the Agency clarify the population covered and the conditions 
included in the reclassification. According to the commenter, it seemed 
that the membrane lung device could be used for long-term support in 
neonates and infants only when imminent death is threatened by 
cardiopulmonary failure, but for the remaining population (e.g., 
pediatric and adult patients), the membrane lung could be used for 
long-term support only when cardiopulmonary failure results in the 
inability to separate from cardiopulmonary bypass following cardiac 
surgery. With respect to the conditions covered, the commenter sought 
clarification as to whether the reclassification was limited only to 
cardiopulmonary conditions or to cardiac failure as well. FDA is 
clarifying the intended uses covered by the reclassification in this 
final order. Specifically, after considering the input from the 
September 12, 2013, and May 7, 2014, classification panel meetings, 
comments on the proposed order and all other available information, FDA 
has determined that the reclassification applies to ECMO as a system of 
devices and accessories that provide extracorporeal circulation and 
physiologic gas exchange of blood in patients with acute respiratory 
failure or acute cardiopulmonary failure where other available 
treatment options have failed, and continued clinical deterioration is 
expected or the risk of death is imminent. This revised scope better 
reflects use of ECMO as a tool that provides extracorporeal circulation 
and physiologic gas exchange of blood and more accurately reflects the 
function of the device. FDA has not cleared any ECMO devices that are 
indicated for specific patient populations or conditions. As such, FDA 
believes that the intended uses included in this final order should 
remain broad, rather than specify patient populations or conditions to 
be treated, to reflect use of ECMO as a tool.
    Another comment disagreed with FDA's intent to reclassify membrane 
lung devices for long-term pulmonary support, stating that ``ECMO 
devices must remain categorized as class III devices for all 
indications because they are life-sustaining devices for which clinical 
trials are necessary to provide reasonable assurance of safety and 
effectiveness.'' FDA disagrees with this comment. According to section 
513(a)(1)(C) of the FD&C Act, a class III device is defined as a device 
which: (1) Cannot be classified as a class I device because 
insufficient information exists to determine that the application of 
general controls are sufficient to provide reasonable assurance of the 
safety and effectiveness of the device; and (2) cannot be classified as 
a class II device because insufficient information exists to determine 
that the special controls would provide reasonable assurance of its 
safety and effectiveness; and (3) is purported or represented to be for 
a use in supporting or sustaining human life or for a use which is of 
substantial importance in preventing impairment of human health; or (4) 
presents a potential unreasonable risk of illness or injury.
    Although FDA considers membrane lung devices for long-term 
pulmonary support to be life-supporting, a viewpoint that was supported 
by the panel members at the September 12, 2013 (2013 Panel), and May 7, 
2014 (2014 Panel), device classification panel meetings, FDA believes 
that the available information supports FDA's determination that 
special controls, in addition to general controls, would be sufficient 
to provide a reasonable assurance of safety and effectiveness. Further, 
the 2013 and 2014 Panels largely supported reclassification of ECMO for 
use in patients with acute respiratory failure or acute cardiopulmonary 
failure as noted in section IV of this order. As mentioned previously 
and discussed further in section IV, ECMO is a tool which provides 
extracorporeal circulation and physiologic gas exchange of blood. The 
special controls identified in this final order, including clinical 
performance data, ensure that the device can function as intended to 
provide extracorporeal circulation and physiologic gas exchange of 
blood for the intended duration of device use. The Agency believes that 
the risks of ECMO devices are sufficiently understood based on valid 
scientific evidence and that the risks of ECMO devices can be mitigated 
with the special controls identified in this final order. The special 
controls mitigate the risks to health identified for the device as 
outlined in section IV, table 1. Therefore, FDA does not agree that 
membrane lung devices for long-term pulmonary support for use in 
patients with acute respiratory failure or acute cardiopulmonary 
failure should remain a class III device.
    The commenter also expressed concern that the reclassification of 
these devices would mean that companies manufacturing new versions of 
the device would not be required to show that their products are safe 
and effective. The commenter suggests that classification to class II 
(special controls) precludes FDA from requesting clinical data for 
these devices. FDA disagrees with this comment. FDA believes that the 
identified special controls provide a reasonable assurance of safety 
and effectiveness for membrane lung devices for long-term pulmonary 
support for use in patients with acute respiratory failure or acute 
cardiopulmonary failure, where other available treatment options have 
failed, and continued clinical deterioration is expected or the risk of 
death is imminent. FDA has determined that by complying with the 
identified special controls, the currently legally marketed devices 
within this classification regulation will be reasonably safe and 
effective when used for acute respiratory failure or acute 
cardiopulmonary failure. Future devices claiming substantial 
equivalence to an available predicate(s) must demonstrate that they are 
substantially equivalent, as defined under section 513(i) of the FD&C 
Act, to the predicate device and comply with all applicable FDA 
regulations and with the special

[[Page 7449]]

controls in order to be classified into class II. Classification to 
class II (special controls) does not preclude FDA from requesting 
clinical data for these devices. In some cases, clinical data may be 
needed to comply with the special controls and demonstrate substantial 
equivalence to an available predicate. For example, special control 
Sec.  870.4100(b)(v) regarding in vivo evaluation of the device could 
include clinical trial data, clinical information from the literature, 
and/or animal study data.
    The commenter further expressed concern that reclassification for 
some indications will reduce the incentive to undertake future studies 
for untested indications due to the availability of the devices for 
``off-label'' use. FDA notes in response to this comment that, 
generally, FDA regulates the use of a device as indicated by the party 
offering the device for interstate commerce.
    The commenter also sought assurance from FDA that membrane lung 
devices for long-term pulmonary support for indications not identified 
in the proposed order would remain in class III and therefore require 
the submission of a PMA. FDA notes that by identifying the intended 
uses covered by the revised classification regulation, uses that fall 
outside the definition would not be subject to the order but rather 
would be classified under section 513 of the FD&C Act.

IV. Deliberations of the Panels and FDA Consideration of Panel Input

    As required by section 513(e)(1) of the FD&C Act, FDA convened a 
meeting of the Circulatory System Devices Panel to consider the 
existing valid scientific evidence to support reclassification to class 
II of membrane lung devices for long-term pulmonary support. One 
meeting was held on September 12, 2013 (2013 Panel), regarding 
pediatric uses for ECMO and another meeting was held on May 7, 2014 
(2014 Panel), regarding adult uses for ECMO (Refs. 1 and 2).
    On September 12, 2013, FDA presented the risks associated with use 
of the membrane lung device for long-term pulmonary support. The 2013 
Panel mostly agreed that the risks to health were adequately captured 
as presented by FDA. Several 2013 Panel members discussed whether the 
list of risks to health should also include information on renal 
dysfunction, neurologic injury, disseminated intravascular coagulation, 
transfusion issues, and inflammatory responses. FDA explained that such 
effects are more appropriately characterized not as risks to health but 
rather as adverse events that may result from the risks to health. The 
2013 Panel understood this distinction but requested that FDA consider 
expanding the definition of adverse tissue reaction to include 
inflammatory response. FDA considered the 2013 Panel's input when 
updating the risks to health for the 2014 Panel and this final order.
    The 2013 Panel agreed that the available scientific evidence 
supported the safety and effectiveness for ECMO and its accessories for 
conditions where the subject is at threat of imminent death caused by 
acute reversible respiratory failure (e.g., meconium aspiration, 
congenital diaphragmatic hernia, pulmonary hypertension) in neonates 
and infants, or where acute cardiopulmonary failure results in the 
inability to separate from cardiopulmonary bypass following cardiac 
surgery in all pediatric patients.
    The 2013 Panel also agreed that the probable benefits to health 
from use of the extracorporeal circuit and its accessories for long-
term pulmonary and cardiopulmonary support for these uses outweigh the 
probable risks. As noted previously, FDA has further considered all 
available information and has determined that the risks to health 
identified for ECMO are the same across neonatal, infant, pediatric, 
and adult populations. This is consistent with input from the 2013 and 
2014 Panels, which found that the risks to health for the pediatric and 
adult populations do not differ. Further, FDA believes that the 
available safety and effectiveness information supports use of ECMO as 
a tool to provide extracorporeal circulation and physiologic gas 
exchange of blood in patients with acute respiratory failure or acute 
cardiopulmonary failure, where other available treatment options have 
failed, and continued clinical deterioration is expected or the risk of 
death is imminent. FDA is providing greater clarity in this final order 
by simplifying the identification of ECMO devices in the classification 
regulation to better reflect what an ECMO circuit performs, not specify 
patient populations or conditions to be treated. Specific indications 
for use for ECMO, including specific patient populations and/or 
conditions, are further discussed in this document.
    In general, the 2013 Panel believed the special controls in the 
proposed order would mitigate the identified risks to health and 
provide reasonable assurance of safety and effectiveness of the 
extracorporeal circuit and its accessories. However, some 2013 Panel 
members recommended that compatibility of the various circuit 
accessories be evaluated to ensure that the circuit accessories can 
function together as intended. FDA believes that the special controls 
will be able to address the issue of circuit accessories' 
compatibility. Specifically, the following special controls from the 
classification regulation address this concern: (1) The design 
characteristics of the device must ensure that the geometry and design 
parameters are consistent with the intended use; (2) non-clinical 
performance evaluation of the device must demonstrate substantial 
equivalence for performance characteristics on the bench, mechanical 
integrity, electromagnetic compatibility(where applicable), software, 
durability, and reliability; and (3) labeling must include a detailed 
summary of the non-clinical and clinical evaluations pertinent to use 
of the device and adequate instructions with respect to 
anticoagulation, circuit setup, performance characteristics with 
respect to compatibility with other circuit accessories, and 
maintenance during a procedure.
    The 2013 Panel unanimously agreed that the membrane lung device for 
long-term pulmonary support is life-supporting. The 2013 Panel further 
stated that the available scientific evidence and the proposed special 
controls, in conjunction with general controls, supported the 
reclassification to class II of membrane lung devices for long-term 
pulmonary/cardiopulmonary support in pediatric patients. The 2013 Panel 
expressed concern about not having had the opportunity to review data 
regarding use of the device in adults, given that use of ECMO in adults 
had increased significantly over the years. The 2013 Panel recommended 
that FDA convene another meeting to review the available literature 
regarding use of the membrane lung device for long-term pulmonary 
support in adults before finalizing the proposed reclassification.
    On May 7, 2014, FDA convened the 2014 Panel to discuss the 
classification of the membrane lung for long-term support, specifically 
for adult pulmonary and cardiopulmonary indications. For both pulmonary 
and cardiopulmonary intended uses, the 2014 Panel believed that the 
list of risks to health presented by FDA were comprehensive and 
adequately captured. Of note, in response to the 2013 Panel's 
recommendation regarding risks to health, FDA expanded the definition 
of adverse tissue reaction to include inflammatory response.
    The majority of the 2014 Panel believed that the available 
scientific evidence is adequate to support a

[[Page 7450]]

reasonable assurance of safety and effectiveness of the extracorporeal 
circuit and its accessories for long-term pulmonary support in adults, 
but recommended that FDA modify the intended use from ``pulmonary 
support'' to ``acute, hypoxic, reversible respiratory failure.'' FDA 
agrees with the 2014 Panel that ``respiratory failure'' is a more 
accurate reflection of the use of ECMO as a tool to provide 
extracorporeal circulation and physiologic gas exchange of blood in 
patients rather than ``pulmonary support.'' FDA has considered this 
input from the panel and has determined that acute respiratory failure 
is the appropriate intended use from a clinical and regulatory 
perspective to reflect such use. This change is reflected in the 
classification regulation. The Panel also agreed that the available 
scientific evidence is adequate to support a reasonable assurance of 
safety and effectiveness of the device for long-term cardiopulmonary 
support in adults suffering from ``cardiopulmonary failure due to acute 
catastrophic cardiogenic shock.'' FDA agrees with the 2014 Panel that 
``acute cardiopulmonary failure'' is a more accurate reflection of the 
use of ECMO as a tool to provide extracorporeal circulation and 
physiologic gas exchange of blood in patients rather than 
``cardiopulmonary support.'' FDA has considered this input from the 
panel and has determined that acute cardiopulmonary failure is the 
appropriate intended use from a clinical and regulatory perspective to 
reflect such use. This change is reflected in the classification 
regulation. For both pulmonary and cardiopulmonary support in adults, 
the 2014 Panel agreed that the probable benefits to health from use of 
the device outweigh the probable risks to health where other available 
treatment options have failed, and continued clinical deterioration is 
expected or the risk of death is imminent.
    The 2014 Panel agreed that FDA's list of special controls were 
appropriate and comprehensive. The 2014 Panel further agreed that the 
special controls would mitigate the identified risks to health and 
provide reasonable assurance of safety and effectiveness for the device 
when used to provide long-term support in adults with acute respiratory 
failure or cardiopulmonary failure.
    For both acute respiratory and acute cardiopulmonary indications in 
adults, the 2014 Panel unanimously agreed that the membrane lung device 
for long-term support is life-supporting. The 2014 Panel further 
believes that the available scientific evidence and the proposed 
special controls support the reclassification to class II of membrane 
lung devices for long-term support in adults with acute respiratory 
failure or acute cardiopulmonary failure.
    After considering input from both the 2013 and 2014 Panels, FDA 
believes that the risks to health identified can be mitigated by the 
special controls as outlined in Table 1.

     Table 1--Health Risks and Mitigation Measures for ECMO Devices
------------------------------------------------------------------------
            Identified risk                    Mitigation measures
------------------------------------------------------------------------
Thrombocytopenia.......................  Technological characteristics;
                                          Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
Hemolysis..............................  Technological characteristics;
                                          Biocompatibility testing; Non-
                                          clinical performance
                                          evaluation; Labeling.
Adverse tissue reaction (including       Biocompatibility testing;
 inflammatory response).                  Labeling.
Inadequate gas exchange................  Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
Gas embolism...........................  Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
Mechanical failure.....................  Technological characteristics;
                                          Non-clinical performance
                                          evaluation; Labeling.
Hemorrhage.............................  In vivo evaluation; Labeling.
Hemodilution...........................  Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
Thrombosis/thromboembolism.............  Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
Infection..............................  Sterility; Shelf life testing.
Mechanical injury to access vessels....  Non-clinical performance
                                          evaluation; In vivo
                                          evaluation; Labeling.
------------------------------------------------------------------------

    At both the 2013 Panel and 2014 Panel meetings, FDA provided a 
summary of information from the clinical literature regarding specific 
patient populations and conditions to be treated using ECMO (Refs.1 and 
2). Of note, FDA has not cleared any ECMO devices that are indicated 
for specific patient populations or conditions. As such, FDA believes 
that the intended uses included in this final order should remain broad 
to reflect use of ECMO as a tool to provide extracorporeal circulation 
and physiologic gas exchange of blood in patients with acute 
respiratory failure or acute cardiopulmonary failure, where other 
available treatment options have failed, and continued clinical 
deterioration is expected or the risk of death is imminent. However, 
FDA believes that there are specific indications (patient populations 
and/or conditions) that would fall within this broader intended use and 
therefore be within the scope of this regulation as outlined in this 
document.
    Specifically, FDA has reviewed the clinical literature and has 
determined that there are sufficient data available to support labeling 
ECMO devices for the following specific indications (patient 
populations and/or conditions) at this time: Meconium aspiration in 
neonates and infants; congenital diaphragmatic hernia in neonates and 
infants; pulmonary hypertension in neonates and infants; failure to 
wean from cardiopulmonary bypass following cardiac surgery in pediatric 
and adult patients; and ECMO-assisted cardiopulmonary resuscitation in 
adults.
    FDA has further evaluated data from the clinical literature and 
determined that the data available do not support labeling ECMO devices 
for certain specific indications (patient populations and/or 
conditions) at this time without additional clinical data from sponsors 
to support such uses, consistent with the identified special controls, 
including but not limited to: High risk percutaneous coronary 
intervention; trauma resuscitation; failed heart or lung transplant; 
acute respiratory distress syndrome; and/or acute decompensation of 
chronic obstructive pulmonary disease.
    For ECMO devices that have not been legally marketed prior to the 
effective date of the final order, or models (if any) that have been 
legally marketed but are required to submit a new 510(k) under Sec.  
807.81(a)(3) because the device is

[[Page 7451]]

about to be significantly changed or modified, manufacturers must 
obtain 510(k) clearance, among other relevant requirements, and 
demonstrate compliance with the special controls included in the final 
order, before marketing the new or changed device.

V. The Final Order

    Under section 513(e) of the FD&C Act, FDA is adopting its findings 
as published in the preamble to the proposed order (78 FR 1158) with 
modifications as discussed in section IV of this final order. FDA is 
issuing this final order to reclassify the membrane lung devices for 
long-term pulmonary support from class III to class II for use in 
patients with acute respiratory failure or acute cardiopulmonary 
failure, where other available treatment options have failed and 
continued clinical deterioration is expected or the risk of death is 
imminent, and to establish special controls. FDA is removing the 
regulation from 21 CFR part 868 (Anesthesiology Devices) and adding it 
to 21 CFR part 870 (Cardiovascular Devices) to better align this device 
type (and the review thereof) with other similar types of 
cardiovascular devices. The title and identification of Sec.  870.4100 
(21 CFR 870.4100) reflects the Agency's intent to regulate ECMO and the 
accessories used in ECMO under the same set of regulatory controls. 
However, an individual device or accessory in an ECMO circuit may 
already have its own classification regulation when intended for short-
term use (<=6 hours) and, in those instances, such device or accessory 
is subject to the preexisting regulation(s).
    Following the effective date of this final order, firms marketing 
membrane lung devices for long-term pulmonary support for use in 
patients with acute respiratory failure or acute cardiopulmonary 
failure, where other available treatment options have failed and 
continued clinical deterioration is expected or the risk of death is 
imminent, must comply with the particular mitigation measures set forth 
in the special controls.
    Section 510(m) of the FD&C Act provides that FDA may exempt a class 
II device from the premarket notification requirements under section 
510(k) of the FD&C Act if FDA determines that premarket notification is 
not necessary to provide reasonable assurance of the safety and 
effectiveness of the devices. FDA has determined that premarket 
notification is necessary to provide reasonable assurance of safety and 
effectiveness of membrane lung devices for long-term pulmonary support 
for use in patients with acute respiratory failure or acute 
cardiopulmonary failure, where other available treatment options have 
failed, and continued clinical deterioration is expected or the risk of 
death is imminent, and, therefore, this device type is not exempt from 
premarket notification requirements.

VI. Analysis of Environmental Impact

    The Agency has determined under 21 CFR 25.34(b) that this action is 
of a type that does not individually or cumulatively have a significant 
effect on the human environment. Therefore, neither an environmental 
assessment nor an environmental impact statement is required.

VII. Paperwork Reduction Act of 1995

    This final order refers to previously approved collections of 
information found in FDA regulations. These collections of information 
are subject to review by the Office of Management and Budget (OMB) 
under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3520). The 
collections of information in 21 CFR part 812 have been approved under 
OMB control number 0910-0078; the collections of information in 21 CFR 
part 807, subpart E, have been approved under OMB control number 0910-
0120; the collections of information in 21 CFR part 814, subpart B, 
have been approved under OMB control number 0910-0231; and the 
collections of information under 21 CFR part 801 have been approved 
under OMB control number 0910-0485.

VIII. Codification of Orders

    Prior to the amendments by FDASIA, section 513(e) of the FD&C Act 
provided for FDA to issue regulations to reclassify devices. Although 
section 513(e) of the FD&C Act as amended requires FDA to issue final 
orders rather than regulations, FDASIA also provides for FDA to revoke 
previously issued regulations by order. FDA will continue to codify 
classifications and reclassifications in the Code of Federal 
Regulations (CFR). Changes resulting from final orders will appear in 
the CFR as changes to codified classification determinations or as 
newly codified orders. Therefore, under section 513(e)(1)(A)(i) of the 
FD&C Act, as amended by FDASIA, in this final order, we are revoking 
the requirements in 21 CFR 868.5610 related to the classification of 
membrane lung for long-term pulmonary support as class III devices and 
codifying under Sec.  870.4100 the reclassification of membrane lung 
for long-term pulmonary support for use in patients with acute 
respiratory failure or acute cardiopulmonary failure, where other 
available treatment options have failed, and continued clinical 
deterioration is expected or the risk of death is imminent into class 
II (special controls).

IX. References

    The following references are on display in the Division of Dockets 
Management (HFA-305), Food and Drug Administration, 5630 Fishers Lane, 
Rm. 1061, Rockville, MD 20852, and are available for viewing by 
interested persons between 9 a.m. and 4 p.m., Monday through Friday; 
they are also available electronically at http://www.regulations.gov. 
FDA has verified the Web site addresses, as of the date this document 
publishes in the Federal Register, but Web sites are subject to change 
over time.

1. The panel transcript and other meeting materials for the 
September 12, 2013, Circulatory System Devices Panel are available 
on FDA's Web site at http://www.fda.gov/AdvisoryCommittees/CommitteesMeetingMaterials/MedicalDevices/MedicalDevicesAdvisoryCommittee/CirculatorySystemDevicesPanel/ucm342357.htm.
2. The panel transcript and other meeting materials for the May 7, 
2014, Circulatory System Devices Panel are available on FDA's Web 
site at. http://www.fda.gov/AdvisoryCommittees/CommitteesMeetingMaterials/MedicalDevices/MedicalDevicesAdvisoryCommittee/CirculatorySystemDevicesPanel/ucm395638.htm

List of Subjects in 21 CFR Parts 868 and 870

    Medical devices.

    Therefore, under the Federal Food, Drug, and Cosmetic Act and under 
authority delegated to the Commissioner of Food and Drugs, 21 CFR parts 
868 and 870 are amended as follows:

PART 868--ANESTHESIOLOGY DEVICES

0
1. The authority citation for 21 CFR part 868 continues to read as 
follows:

    Authority: 21 U.S.C. 351, 360, 360c, 360e, 360j, 371.


Sec.  868.5610  [Removed]

0
2. Remove Sec.  868.5610.

PART 870--CARDIOVASCULAR DEVICES

0
1. The authority citation for 21 CFR part 870 continues to read as 
follows:

    Authority: 21 U.S.C. 351, 360, 360c, 360e, 360j, 371.


0
2. Add Sec.  870.4100 to subpart E to read as follows:

[[Page 7452]]

Sec.  870.4100  Extracorporeal circuit and accessories for long-term 
respiratory/cardiopulmonary failure.

    (a) Identification. An extracorporeal circuit and accessories for 
long-term respiratory/cardiopulmonary support (>6 hours) is a system of 
devices and accessories that provides assisted extracorporeal 
circulation and physiologic gas exchange of the patient's blood in 
patients with acute respiratory failure or acute cardiopulmonary 
failure, where other available treatment options have failed, and 
continued clinical deterioration is expected or the risk of death is 
imminent. The main devices and accessories of the system include, but 
are not limited to, the console (hardware), software, and disposables, 
including, but not limited to, an oxygenator, blood pump, heat 
exchanger, cannulae, tubing, filters, and other accessories (e.g., 
monitors, detectors, sensors, connectors).
    (b) Classification--Class II (special controls). The special 
controls for this device are:
    (1) The technological characteristics of the device must ensure 
that the geometry and design parameters are consistent with the 
intended use, and that the devices and accessories in the circuit are 
compatible;
    (2) The devices and accessories in the circuit must be demonstrated 
to be biocompatible;
    (3) Sterility and shelf-life testing must demonstrate the sterility 
of any patient-contacting devices and accessories in the circuit and 
the shelf life of these devices and accessories;
    (4) Non-clinical performance evaluation of the devices and 
accessories in the circuit must demonstrate substantial equivalence of 
the performance characteristics on the bench, mechanical integrity, 
electromagnetic compatibility (where applicable), software, durability, 
and reliability;
    (5) In vivo evaluation of the devices and accessories in the 
circuit must demonstrate their performance over the intended duration 
of use, including a detailed summary of the clinical evaluation 
pertinent to the use of the devices and accessories to demonstrate 
their effectiveness if a specific indication (patient population and/or 
condition) is identified; and
    (6) Labeling must include a detailed summary of the non-clinical 
and in vivo evaluations pertinent to use of the devices and accessories 
in the circuit and adequate instructions with respect to 
anticoagulation, circuit setup, performance characteristics with 
respect to compatibility among different devices and accessories in the 
circuit, and maintenance during a procedure.

    Dated: February 8, 2016.
Leslie Kux,
Associate Commissioner for Policy.
[FR Doc. 2016-02876 Filed 2-11-16; 8:45 am]
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                                              7446              Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations

                                              regulations designed to help ensure the                    The Regulatory Flexibility Act                       Therefore, under the Federal Food,
                                              safety, purity, and potency of the                      requires Agencies to analyze regulatory               Drug, and Cosmetic Act, the Public
                                              licensed product, and that the product                  options that would minimize any                       Health Service Act, and under authority
                                              is not misbranded.                                      significant impact of a rule on small                 delegated to the Commissioner of Food
                                                 In addition, FDA continues to help                   entities. Because this final rule removes             and Drugs, 21 CFR part 601 is amended
                                              ensure the safety and effectiveness of                  regulations that are obsolete and no                  as follows:
                                              licensed biological products through the                longer necessary in light of other current
                                              development and application of                          statutory and regulatory authorities,                 PART 601—LICENSING
                                              additional standards and mechanisms.                    FDA certifies that the final rule will not
                                                                                                      have a significant economic impact on                 ■ 1. The authority citation for 21 CFR
                                              These mechanisms assist FDA in
                                                                                                      a substantial number of small entities.               part 601 continues to read as follows:
                                              evaluating and monitoring the safety
                                              and effectiveness of biological products.                  The Unfunded Mandates Reform Act                     Authority: 15 U.S.C. 1451–1561; 21 U.S.C.
                                                                                                      of 1995 (section 202(a)) requires us to               321, 351, 352, 353, 355, 356b, 360, 360c–
                                              C. Summary of Comments to the                           prepare a written statement, which                    360f, 360h-360j, 371, 374, 379e, 381; 42
                                              Proposed Rule                                           includes an assessment of anticipated                 U.S.C. 216, 241, 262, 263, 264; sec 122,
                                                                                                                                                            Pub. L. 105–115, 111 Stat. 2322 (21 U.S.C.
                                                FDA did not receive any comments on                   costs and benefits, before issuing ‘‘any
                                                                                                                                                            355 note).
                                              the proposed rule.                                      rule that includes any Federal mandate
                                                                                                      that may result in the expenditure by                 § 601.25    [Removed]
                                              D. General Overview of the Final Rule                   State, local, and tribal governments, in              ■   2. Remove § 601.25.
                                                 The final rule removes §§ 601.25 and                 the aggregate, or by the private sector, of
                                              601.26 of the regulations, which                        $100,000,000 or more (adjusted                        § 601.26    [Removed]
                                              prescribe procedures for FDA’s review                   annually for inflation) in any one year.’’            ■   3. Remove § 601.26.
                                              and classification of biological products               The current threshold after adjustment
                                                                                                                                                              Dated: February 5, 2016.
                                              licensed before July 1, 1972. FDA is                    for inflation is $144 million, using the
                                                                                                      most current (2014) Implicit Price                    Leslie Kux,
                                              taking this action because these
                                                                                                      Deflator for the Gross Domestic Product.              Associate Commissioner for Policy.
                                              regulations are obsolete and no longer
                                                                                                      This final rule would not result in any               [FR Doc. 2016–02884 Filed 2–11–16; 8:45 am]
                                              necessary in light of other statutory and
                                              regulatory authorities established since                1-year expenditure that would meet or                 BILLING CODE 4164–01–P

                                              1972, which allow FDA to evaluate and                   exceed this amount.
                                              monitor the safety and effectiveness of                 V. Analysis of Environmental Impact                   DEPARTMENT OF HEALTH AND
                                              all biological products.
                                                                                                        We have determined under 21 CFR                     HUMAN SERVICES
                                              III. Legal Authority                                    25.30(h) that this action is of a type that
                                                                                                      does not individually or cumulatively                 Food and Drug Administration
                                                 FDA is issuing this regulation under
                                              the biological products provisions of the               have a significant adverse effect on the
                                                                                                      human environment. Therefore, neither                 21 CFR Parts 868 and 870
                                              PHS Act (42 U.S.C. 262 and 264) and
                                              the drugs and general administrative                    an environmental assessment nor an                    [Docket No. FDA–2012–N–1174]
                                              provisions of the FD&C Act (sections                    environmental impact statement is
                                              201, 301, 501, 502, 503, 505, 510, 701,                 required.                                             Anesthesiology Devices;
                                                                                                                                                            Reclassification of Membrane Lung for
                                              and 704 (21 U.S.C. 321, 331, 351, 352,                  VI. Paperwork Reduction Act of 1995
                                                                                                                                                            Long-Term Pulmonary Support;
                                              353, 355, 360, 371, and 374)). Under                      This final rule contains no collection              Redesignation as Extracorporeal
                                              these provisions of the PHS Act and the                 of information. Therefore, clearance by               Circuit and Accessories for Long-Term
                                              FD&C Act, we have the authority to                      OMB under the Paperwork Reduction                     Respiratory/Cardiopulmonary Failure
                                              issue and enforce regulations designed                  Act of 1995 is not required.
                                              to ensure that biological products are                                                                        AGENCY:    Food and Drug Administration,
                                              safe, pure, and potent; and to prevent                  VII. Federalism                                       HHS.
                                              the introduction, transmission, and                        We have analyzed this final rule in                ACTION:    Final order.
                                              spread of communicable disease.                         accordance with the principles set forth
                                                                                                      in Executive Order 13132. FDA has                     SUMMARY:    The Food and Drug
                                              IV. Economic Analysis of Impacts
                                                                                                      determined that the rule does not                     Administration (FDA) is issuing a final
                                                 We have examined the impacts of the                  contain policies that would have                      order to redesignate membrane lung
                                              final rule under Executive Order 12866,                 substantial direct effects on the States,             devices for long-term pulmonary
                                              Executive Order 13563, the Regulatory                   on the relationship between the                       support, a preamendments class III
                                              Flexibility Act (5 U.S.C. 601–612), and                 National Government and the States, or                device, as extracorporeal circuit and
                                              the Unfunded Mandates Reform Act of                     on the distribution of power and                      accessories for long-term respiratory/
                                              1995 (Pub. L. 104–4). Executive Orders                  responsibilities among the various                    cardiopulmonary failure, and to
                                              12866 and 13563 direct Agencies to                      levels of government. Accordingly, the                reclassify the device to class II (special
                                              assess all costs and benefits of available              Agency has concluded that the rule does               controls) in patients with acute
                                              regulatory alternatives and, when                       not contain policies that have                        respiratory failure or acute
                                              regulation is necessary, to select                      federalism implications as defined in                 cardiopulmonary failure where other
                                              regulatory approaches that maximize                     the Executive order and, consequently,                available treatment options have failed,
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                                              net benefits (including potential                       a federalism summary impact statement                 and continued clinical deterioration is
                                              economic, environmental, public health                  is not required.                                      expected or the risk of death is
                                              and safety, and other advantages;                                                                             imminent. A membrane lung device for
                                              distributive impacts; and equity). We                   List of Subjects in 21 CFR Part 601                   long-term pulmonary support (>6 hours)
                                              believe that this final rule is not a                     Administrative practice and                         refers to the oxygenator in an
                                              significant regulatory action as defined                procedure, Biologics, Confidential                    extracorporeal circuit used during long-
                                              by Executive Order 12866.                               business information.                                 term procedures, commonly referred to


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                                                                Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations                                          7447

                                              as extracorporeal membrane                              (generally referred to as preamendments               Agency when the device was originally
                                              oxygenation (ECMO). Because a number                    devices), are classified after FDA has: (1)           classified, as well as information not
                                              of other devices and accessories are                    Received a recommendation from a                      presented, not available, or not
                                              used with the oxygenator in the circuit,                device classification panel (an FDA                   developed at that time. (See, e.g.,
                                              the title and identification of the                     advisory committee); (2) published the                Holland-Rantos Co. v. United States
                                              regulation are revised to include                       panel’s recommendation for comment,                   Department of Health, Education, and
                                              extracorporeal circuit and accessories                  along with a proposed regulation                      Welfare, 587 F.2d 1173, 1174 n.1 (D.C.
                                              for long-term respiratory/                              classifying the device; and (3) published             Cir. 1978); Upjohn v. Finch, 422 F.2d
                                              cardiopulmonary failure. Although an                    a final regulation classifying the device.            944 (6th Cir. 1970); Bell v. Goddard, 366
                                              individual device or accessory used in                  FDA has classified most                               F.2d 177 (7th Cir. 1966).)
                                              an ECMO circuit may already have its                    preamendments devices under these                       Reevaluation of the data previously
                                              own classification regulation when the                  procedures.                                           before the Agency is an appropriate
                                              device or accessory is intended for                        Devices that were not in commercial                basis for subsequent action where the
                                              short-term use (≤6 hours), such device                  distribution prior to May 28, 1976                    reevaluation is made in light of newly
                                              or accessory will be subject to the same                (generally referred to as                             available authority (see Bell, 366 F.2d at
                                              regulatory controls applied to the                      postamendments devices) are                           181; Ethicon, Inc. v. FDA, 762 F.Supp.
                                              oxygenator (i.e., class II, special                     automatically classified by section                   382, 388–391 (D.D.C. 1991)), or in light
                                              controls) when evaluated as part of the                 513(f) of the FD&C Act into class III                 of changes in ‘‘medical science’’
                                              ECMO circuit for long-term use (>6                      without any FDA rulemaking process.                   (Upjohn, 422 F.2d at 951). Whether data
                                              hours). On its own initiative, based on                 Those devices remain in class III and                 before the Agency are old or new data,
                                              new information, FDA is revising the                    require premarket approval unless, and                the ‘‘new information’’ to support
                                              classification of the membrane lung                     until, the device is reclassified into class          reclassification under section 513(e) of
                                              device for long-term pulmonary                          I or II or FDA issues an order finding the            the FD&C Act must be ‘‘valid scientific
                                              support.                                                device to be substantially equivalent, in             evidence,’’ as defined in section
                                                                                                      accordance with section 513(i) of the                 513(a)(3) of the FD&C Act and 21 CFR
                                              DATES: This order is effective February
                                                                                                      FD&C Act, to a predicate device that                  860.7(c)(2). (See, e.g., General Medical
                                              12, 2016.                                               does not require premarket approval.                  Co. v. FDA, 770 F.2d 214 (D.C. Cir.
                                              FOR FURTHER INFORMATION CONTACT:                        The Agency determines whether new                     1985); Contact Lens Manufacturers
                                              Fernando Aguel, Center for Devices and                  devices are substantially equivalent to               Assoc. v. FDA, 766 F.2d 592 (D.C. Cir.
                                              Radiological Health, 10903 New                          predicate devices by means of                         1985), cert. denied, 474 U.S. 1062
                                              Hampshire Ave., Bldg. 66, Rm. 1234,                     premarket notification procedures in                  (1986).)
                                              Silver Spring, MD 20993, 301–796–                       section 510(k) of the FD&C Act (21                      FDA relies upon ‘‘valid scientific
                                              6326, fernando.aguel@fda.hhs.gov.                       U.S.C. 360(k)) and part 807 (21 CFR part              evidence’’ in the classification process
                                              SUPPLEMENTARY INFORMATION:                              807).                                                 to determine the level of regulation for
                                              I. Background—Regulatory Authorities                       A preamendments device that has                    devices. To be considered in the
                                                                                                      been classified into class III and devices            reclassification process, the ‘‘valid
                                                 The Federal Food, Drug, and Cosmetic                 found substantially equivalent by means               scientific evidence’’ upon which the
                                              Act (the FD&C Act), as amended by the                   of premarket notification procedures                  Agency relies must be publicly
                                              Medical Device Amendments of 1976                       (510(k)) to such a preamendments                      available. Publicly available information
                                              (the 1976 amendments) (Pub. L. 94–                      device or to a device within that type                excludes trade secret and/or
                                              295), the Safe Medical Devices Act of                   (both the preamendments and                           confidential commercial information,
                                              1990 (Pub. L. 101–629), the Food and                    substantially equivalent devices are                  e.g., the contents of a pending PMA (see
                                              Drug Administration Modernization Act                   referred to as preamendments class III                section 520(c) of the FD&C Act (21
                                              of 1997 (FDAMA) (Pub. L. 105–115), the                  devices) may be marketed without                      U.S.C. 360j(c)).)
                                              Medical Device User Fee and                             submission of a premarket approval                      Section 513(e)(1) of the FD&C Act sets
                                              Modernization Act of 2002 (Pub. L. 107–                 application (PMA) until FDA issues a                  forth the process for issuing a final
                                              250), the Medical Devices Technical                     final order under section 515(b) of the               reclassification order. Specifically, prior
                                              Corrections Act (Pub. L. 108–214), the                  FD&C Act (21 U.S.C. 360e(b)) requiring                to the issuance of a final order
                                              Food and Drug Administration                            premarket approval or until the device                reclassifying a device, the following
                                              Amendments Act of 2007 (Pub. L. 110–                    is subsequently reclassified into class I             must occur: (1) Publication of a
                                              85), and the Food and Drug                              or class II.                                          proposed order in the Federal Register;
                                              Administration Safety and Innovation                       On July 9, 2012, FDASIA was enacted.               (2) a meeting of a device classification
                                              Act (FDASIA) (Pub. L. 112–144), among                   Section 608(a) of FDASIA (126 Stat.                   panel described in section 513(b) of the
                                              other amendments, established a                         1056) amended section 513(e) of the                   FD&C Act; and (3) consideration of
                                              comprehensive system for the regulation                 FD&C Act, changing the mechanism for                  comments to a public docket.
                                              of medical devices intended for human                   reclassifying a device from rulemaking
                                              use. Section 513 of the FD&C Act (21                    to an administrative order.                           II. Regulatory History of the Device
                                              U.S.C. 360c) established three categories                  Section 513(e) of the FD&C Act                        FDA published a proposed order to
                                              (classes) of devices, reflecting the                    provides that FDA may, by                             reclassify this device in the Federal
                                              regulatory controls needed to provide                   administrative order, reclassify a device             Register of January 8, 2013 (78 FR 1158)
                                              reasonable assurance of their safety and                based upon ‘‘new information.’’ FDA                   (the ‘‘proposed order’’). As noted in the
                                              effectiveness. The three categories of                  can initiate a reclassification under                 proposed order, on July 16, 1982, the
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                                              devices are class I (general controls),                 section 513(e) of the FD&C Act or an                  Agency issued a final rule classifying all
                                              class II (special controls), and class III              interested person may petition FDA to                 membrane lungs for long-term
                                              (premarket approval).                                   reclassify a preamendments device. The                pulmonary support into class III (47 FR
                                                 Under section 513(d) of the FD&C Act,                term ‘‘new information,’’ as used in                  31130). On May 11, 1987, FDA
                                              devices that were in commercial                         section 513(e) of the FD&C Act, includes              published a final rule amending the
                                              distribution before the enactment of the                information developed as a result of a                codified language for this device to
                                              1976 amendments, May 28, 1976                           reevaluation of the data before the                   clarify that no effective date had been


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                                              7448              Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations

                                              established for the requirement for                     7, 2014, classification panel meetings,               assurance of safety and effectiveness.
                                              premarket approval for membrane lungs                   comments on the proposed order and all                Further, the 2013 and 2014 Panels
                                              for long-term pulmonary support                         other available information, FDA has                  largely supported reclassification of
                                              devices (52 FR 17732 at 17735). This                    determined that the reclassification                  ECMO for use in patients with acute
                                              device is currently under product code                  applies to ECMO as a system of devices                respiratory failure or acute
                                              BYS.                                                    and accessories that provide                          cardiopulmonary failure as noted in
                                                 As discussed in the proposed order,                  extracorporeal circulation and                        section IV of this order. As mentioned
                                              FDA considered the available                            physiologic gas exchange of blood in                  previously and discussed further in
                                              information on these devices and                        patients with acute respiratory failure or            section IV, ECMO is a tool which
                                              concluded that these devices could be                   acute cardiopulmonary failure where                   provides extracorporeal circulation and
                                              reclassified to class II, subject to the                other available treatment options have                physiologic gas exchange of blood. The
                                              identified special controls. As required                failed, and continued clinical                        special controls identified in this final
                                              by section 513(e)(1) of the FD&C Act,                   deterioration is expected or the risk of              order, including clinical performance
                                              FDA convened a meeting of a device                      death is imminent. This revised scope                 data, ensure that the device can function
                                              classification panel described in section               better reflects use of ECMO as a tool that            as intended to provide extracorporeal
                                              513(b) of the FD&C Act with respect to                  provides extracorporeal circulation and               circulation and physiologic gas
                                              the membrane lung devices for long-                     physiologic gas exchange of blood and                 exchange of blood for the intended
                                              term pulmonary support on September                     more accurately reflects the function of              duration of device use. The Agency
                                              12, 2013, followed by a meeting on May                  the device. FDA has not cleared any                   believes that the risks of ECMO devices
                                              7, 2014. The deliberations of the device                ECMO devices that are indicated for                   are sufficiently understood based on
                                              classification panels are discussed in                  specific patient populations or                       valid scientific evidence and that the
                                              section IV of this order. FDA received                  conditions. As such, FDA believes that                risks of ECMO devices can be mitigated
                                              and has considered two comments on                      the intended uses included in this final              with the special controls identified in
                                              the January 8, 2013, proposed order, as                 order should remain broad, rather than                this final order. The special controls
                                              discussed in section III. Therefore, FDA                specify patient populations or                        mitigate the risks to health identified for
                                              has met the requirements for issuing a                  conditions to be treated, to reflect use of           the device as outlined in section IV,
                                              final order under section 513(e)(1) of the              ECMO as a tool.                                       table 1. Therefore, FDA does not agree
                                              FD&C Act.                                                  Another comment disagreed with                     that membrane lung devices for long-
                                                                                                      FDA’s intent to reclassify membrane                   term pulmonary support for use in
                                              III. Public Comments in Response to the
                                                                                                      lung devices for long-term pulmonary                  patients with acute respiratory failure or
                                              Proposed Order
                                                                                                      support, stating that ‘‘ECMO devices                  acute cardiopulmonary failure should
                                                 FDA received two comments in                         must remain categorized as class III
                                              response to the January 8, 2013,                                                                              remain a class III device.
                                                                                                      devices for all indications because they
                                              proposed order to reclassify membrane                   are life-sustaining devices for which                    The commenter also expressed
                                              lung devices for long-term pulmonary                    clinical trials are necessary to provide              concern that the reclassification of these
                                              support for conditions where imminent                   reasonable assurance of safety and                    devices would mean that companies
                                              death is threatened by cardiopulmonary                  effectiveness.’’ FDA disagrees with this              manufacturing new versions of the
                                              failure in neonates and infants or where                comment. According to section                         device would not be required to show
                                              cardiopulmonary failure results in the                  513(a)(1)(C) of the FD&C Act, a class III             that their products are safe and
                                              inability to separate from                              device is defined as a device which: (1)              effective. The commenter suggests that
                                              cardiopulmonary bypass following                        Cannot be classified as a class I device              classification to class II (special
                                              cardiac surgery.                                        because insufficient information exists               controls) precludes FDA from
                                                 One comment supported FDA’s                          to determine that the application of                  requesting clinical data for these
                                              reclassification proposal but requested                 general controls are sufficient to provide            devices. FDA disagrees with this
                                              that the Agency clarify the population                  reasonable assurance of the safety and                comment. FDA believes that the
                                              covered and the conditions included in                  effectiveness of the device; and (2)                  identified special controls provide a
                                              the reclassification. According to the                  cannot be classified as a class II device             reasonable assurance of safety and
                                              commenter, it seemed that the                           because insufficient information exists               effectiveness for membrane lung devices
                                              membrane lung device could be used for                  to determine that the special controls                for long-term pulmonary support for use
                                              long-term support in neonates and                       would provide reasonable assurance of                 in patients with acute respiratory failure
                                              infants only when imminent death is                     its safety and effectiveness; and (3) is              or acute cardiopulmonary failure, where
                                              threatened by cardiopulmonary failure,                  purported or represented to be for a use              other available treatment options have
                                              but for the remaining population (e.g.,                 in supporting or sustaining human life                failed, and continued clinical
                                              pediatric and adult patients), the                      or for a use which is of substantial                  deterioration is expected or the risk of
                                              membrane lung could be used for long-                   importance in preventing impairment of                death is imminent. FDA has determined
                                              term support only when                                  human health; or (4) presents a potential             that by complying with the identified
                                              cardiopulmonary failure results in the                  unreasonable risk of illness or injury.               special controls, the currently legally
                                              inability to separate from                                 Although FDA considers membrane                    marketed devices within this
                                              cardiopulmonary bypass following                        lung devices for long-term pulmonary                  classification regulation will be
                                              cardiac surgery. With respect to the                    support to be life-supporting, a                      reasonably safe and effective when used
                                              conditions covered, the commenter                       viewpoint that was supported by the                   for acute respiratory failure or acute
                                              sought clarification as to whether the                  panel members at the September 12,                    cardiopulmonary failure. Future devices
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                                              reclassification was limited only to                    2013 (2013 Panel), and May 7, 2014                    claiming substantial equivalence to an
                                              cardiopulmonary conditions or to                        (2014 Panel), device classification panel             available predicate(s) must demonstrate
                                              cardiac failure as well. FDA is clarifying              meetings, FDA believes that the                       that they are substantially equivalent, as
                                              the intended uses covered by the                        available information supports FDA’s                  defined under section 513(i) of the
                                              reclassification in this final order.                   determination that special controls, in               FD&C Act, to the predicate device and
                                              Specifically, after considering the input               addition to general controls, would be                comply with all applicable FDA
                                              from the September 12, 2013, and May                    sufficient to provide a reasonable                    regulations and with the special


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                                                                Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations                                         7449

                                              controls in order to be classified into                 events that may result from the risks to              accessories be evaluated to ensure that
                                              class II. Classification to class II (special           health. The 2013 Panel understood this                the circuit accessories can function
                                              controls) does not preclude FDA from                    distinction but requested that FDA                    together as intended. FDA believes that
                                              requesting clinical data for these                      consider expanding the definition of                  the special controls will be able to
                                              devices. In some cases, clinical data                   adverse tissue reaction to include                    address the issue of circuit accessories’
                                              may be needed to comply with the                        inflammatory response. FDA considered                 compatibility. Specifically, the
                                              special controls and demonstrate                        the 2013 Panel’s input when updating                  following special controls from the
                                              substantial equivalence to an available                 the risks to health for the 2014 Panel                classification regulation address this
                                              predicate. For example, special control                 and this final order.                                 concern: (1) The design characteristics
                                              § 870.4100(b)(v) regarding in vivo                        The 2013 Panel agreed that the                      of the device must ensure that the
                                              evaluation of the device could include                  available scientific evidence supported               geometry and design parameters are
                                              clinical trial data, clinical information               the safety and effectiveness for ECMO                 consistent with the intended use; (2)
                                              from the literature, and/or animal study                and its accessories for conditions where              non-clinical performance evaluation of
                                              data.                                                   the subject is at threat of imminent                  the device must demonstrate substantial
                                                 The commenter further expressed                      death caused by acute reversible                      equivalence for performance
                                              concern that reclassification for some                  respiratory failure (e.g., meconium                   characteristics on the bench, mechanical
                                              indications will reduce the incentive to                aspiration, congenital diaphragmatic                  integrity, electromagnetic
                                              undertake future studies for untested                   hernia, pulmonary hypertension) in                    compatibility(where applicable),
                                              indications due to the availability of the              neonates and infants, or where acute                  software, durability, and reliability; and
                                              devices for ‘‘off-label’’ use. FDA notes in             cardiopulmonary failure results in the                (3) labeling must include a detailed
                                              response to this comment that,                          inability to separate from                            summary of the non-clinical and
                                              generally, FDA regulates the use of a                   cardiopulmonary bypass following                      clinical evaluations pertinent to use of
                                              device as indicated by the party offering               cardiac surgery in all pediatric patients.            the device and adequate instructions
                                              the device for interstate commerce.                       The 2013 Panel also agreed that the                 with respect to anticoagulation, circuit
                                                 The commenter also sought assurance                  probable benefits to health from use of               setup, performance characteristics with
                                              from FDA that membrane lung devices                     the extracorporeal circuit and its                    respect to compatibility with other
                                              for long-term pulmonary support for                     accessories for long-term pulmonary                   circuit accessories, and maintenance
                                              indications not identified in the                       and cardiopulmonary support for these                 during a procedure.
                                              proposed order would remain in class                    uses outweigh the probable risks. As                     The 2013 Panel unanimously agreed
                                              III and therefore require the submission                noted previously, FDA has further                     that the membrane lung device for long-
                                              of a PMA. FDA notes that by identifying                 considered all available information and              term pulmonary support is life-
                                              the intended uses covered by the                        has determined that the risks to health               supporting. The 2013 Panel further
                                              revised classification regulation, uses                 identified for ECMO are the same across               stated that the available scientific
                                              that fall outside the definition would                  neonatal, infant, pediatric, and adult                evidence and the proposed special
                                              not be subject to the order but rather                  populations. This is consistent with                  controls, in conjunction with general
                                              would be classified under section 513 of                input from the 2013 and 2014 Panels,                  controls, supported the reclassification
                                              the FD&C Act.                                           which found that the risks to health for              to class II of membrane lung devices for
                                                                                                      the pediatric and adult populations do                long-term pulmonary/cardiopulmonary
                                              IV. Deliberations of the Panels and FDA
                                                                                                      not differ. Further, FDA believes that                support in pediatric patients. The 2013
                                              Consideration of Panel Input
                                                                                                      the available safety and effectiveness                Panel expressed concern about not
                                                 As required by section 513(e)(1) of the              information supports use of ECMO as a                 having had the opportunity to review
                                              FD&C Act, FDA convened a meeting of                     tool to provide extracorporeal                        data regarding use of the device in
                                              the Circulatory System Devices Panel to                 circulation and physiologic gas                       adults, given that use of ECMO in adults
                                              consider the existing valid scientific                  exchange of blood in patients with acute              had increased significantly over the
                                              evidence to support reclassification to                 respiratory failure or acute                          years. The 2013 Panel recommended
                                              class II of membrane lung devices for                   cardiopulmonary failure, where other                  that FDA convene another meeting to
                                              long-term pulmonary support. One                        available treatment options have failed,              review the available literature regarding
                                              meeting was held on September 12,                       and continued clinical deterioration is               use of the membrane lung device for
                                              2013 (2013 Panel), regarding pediatric                  expected or the risk of death is                      long-term pulmonary support in adults
                                              uses for ECMO and another meeting was                   imminent. FDA is providing greater                    before finalizing the proposed
                                              held on May 7, 2014 (2014 Panel),                       clarity in this final order by simplifying            reclassification.
                                              regarding adult uses for ECMO (Refs. 1                  the identification of ECMO devices in                    On May 7, 2014, FDA convened the
                                              and 2).                                                 the classification regulation to better               2014 Panel to discuss the classification
                                                 On September 12, 2013, FDA                           reflect what an ECMO circuit performs,                of the membrane lung for long-term
                                              presented the risks associated with use                 not specify patient populations or                    support, specifically for adult
                                              of the membrane lung device for long-                   conditions to be treated. Specific                    pulmonary and cardiopulmonary
                                              term pulmonary support. The 2013                        indications for use for ECMO, including               indications. For both pulmonary and
                                              Panel mostly agreed that the risks to                   specific patient populations and/or                   cardiopulmonary intended uses, the
                                              health were adequately captured as                      conditions, are further discussed in this             2014 Panel believed that the list of risks
                                              presented by FDA. Several 2013 Panel                    document.                                             to health presented by FDA were
                                              members discussed whether the list of                     In general, the 2013 Panel believed                 comprehensive and adequately
                                              risks to health should also include                     the special controls in the proposed                  captured. Of note, in response to the
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                                              information on renal dysfunction,                       order would mitigate the identified risks             2013 Panel’s recommendation regarding
                                              neurologic injury, disseminated                         to health and provide reasonable                      risks to health, FDA expanded the
                                              intravascular coagulation, transfusion                  assurance of safety and effectiveness of              definition of adverse tissue reaction to
                                              issues, and inflammatory responses.                     the extracorporeal circuit and its                    include inflammatory response.
                                              FDA explained that such effects are                     accessories. However, some 2013 Panel                    The majority of the 2014 Panel
                                              more appropriately characterized not as                 members recommended that                              believed that the available scientific
                                              risks to health but rather as adverse                   compatibility of the various circuit                  evidence is adequate to support a


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                                              7450                      Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations

                                              reasonable assurance of safety and                                         suffering from ‘‘cardiopulmonary failure                       comprehensive. The 2014 Panel further
                                              effectiveness of the extracorporeal                                        due to acute catastrophic cardiogenic                          agreed that the special controls would
                                              circuit and its accessories for long-term                                  shock.’’ FDA agrees with the 2014 Panel                        mitigate the identified risks to health
                                              pulmonary support in adults, but                                           that ‘‘acute cardiopulmonary failure’’ is                      and provide reasonable assurance of
                                              recommended that FDA modify the                                            a more accurate reflection of the use of                       safety and effectiveness for the device
                                              intended use from ‘‘pulmonary support’’                                    ECMO as a tool to provide                                      when used to provide long-term support
                                              to ‘‘acute, hypoxic, reversible                                            extracorporeal circulation and                                 in adults with acute respiratory failure
                                              respiratory failure.’’ FDA agrees with                                     physiologic gas exchange of blood in                           or cardiopulmonary failure.
                                              the 2014 Panel that ‘‘respiratory failure’’                                patients rather than ‘‘cardiopulmonary
                                                                                                                         support.’’ FDA has considered this                               For both acute respiratory and acute
                                              is a more accurate reflection of the use                                                                                                  cardiopulmonary indications in adults,
                                              of ECMO as a tool to provide                                               input from the panel and has
                                                                                                                         determined that acute cardiopulmonary                          the 2014 Panel unanimously agreed that
                                              extracorporeal circulation and                                                                                                            the membrane lung device for long-term
                                                                                                                         failure is the appropriate intended use
                                              physiologic gas exchange of blood in                                                                                                      support is life-supporting. The 2014
                                                                                                                         from a clinical and regulatory
                                              patients rather than ‘‘pulmonary                                                                                                          Panel further believes that the available
                                                                                                                         perspective to reflect such use. This
                                              support.’’ FDA has considered this                                         change is reflected in the classification                      scientific evidence and the proposed
                                              input from the panel and has                                               regulation. For both pulmonary and                             special controls support the
                                              determined that acute respiratory failure                                  cardiopulmonary support in adults, the                         reclassification to class II of membrane
                                              is the appropriate intended use from a                                     2014 Panel agreed that the probable                            lung devices for long-term support in
                                              clinical and regulatory perspective to                                     benefits to health from use of the device                      adults with acute respiratory failure or
                                              reflect such use. This change is reflected                                 outweigh the probable risks to health                          acute cardiopulmonary failure.
                                              in the classification regulation. The                                      where other available treatment options
                                              Panel also agreed that the available                                       have failed, and continued clinical                              After considering input from both the
                                              scientific evidence is adequate to                                         deterioration is expected or the risk of                       2013 and 2014 Panels, FDA believes
                                              support a reasonable assurance of safety                                   death is imminent.                                             that the risks to health identified can be
                                              and effectiveness of the device for long-                                     The 2014 Panel agreed that FDA’s list                       mitigated by the special controls as
                                              term cardiopulmonary support in adults                                     of special controls were appropriate and                       outlined in Table 1.

                                                                                        TABLE 1—HEALTH RISKS AND MITIGATION MEASURES FOR ECMO DEVICES
                                                                                          Identified risk                                                                                Mitigation measures

                                              Thrombocytopenia ....................................................................................            Technological characteristics; Non-clinical performance evaluation; In
                                                                                                                                                                 vivo evaluation; Labeling.
                                              Hemolysis .................................................................................................      Technological characteristics; Biocompatibility testing; Non-clinical per-
                                                                                                                                                                 formance evaluation; Labeling.
                                              Adverse tissue reaction (including inflammatory response) ....................                                   Biocompatibility testing; Labeling.
                                              Inadequate gas exchange ........................................................................                 Non-clinical performance evaluation; In vivo evaluation; Labeling.
                                              Gas embolism ...........................................................................................         Non-clinical performance evaluation; In vivo evaluation; Labeling.
                                              Mechanical failure .....................................................................................         Technological characteristics; Non-clinical performance evaluation; La-
                                                                                                                                                                 beling.
                                              Hemorrhage ..............................................................................................        In vivo evaluation; Labeling.
                                              Hemodilution .............................................................................................       Non-clinical performance evaluation; In vivo evaluation; Labeling.
                                              Thrombosis/thromboembolism .................................................................                     Non-clinical performance evaluation; In vivo evaluation; Labeling.
                                              Infection ....................................................................................................   Sterility; Shelf life testing.
                                              Mechanical injury to access vessels ........................................................                     Non-clinical performance evaluation; In vivo evaluation; Labeling.



                                                 At both the 2013 Panel and 2014                                         populations and/or conditions) that                               FDA has further evaluated data from
                                              Panel meetings, FDA provided a                                             would fall within this broader intended                        the clinical literature and determined
                                              summary of information from the                                            use and therefore be within the scope of                       that the data available do not support
                                              clinical literature regarding specific                                     this regulation as outlined in this                            labeling ECMO devices for certain
                                              patient populations and conditions to be                                   document.                                                      specific indications (patient populations
                                              treated using ECMO (Refs.1 and 2). Of                                                                                                     and/or conditions) at this time without
                                                                                                                            Specifically, FDA has reviewed the
                                              note, FDA has not cleared any ECMO                                                                                                        additional clinical data from sponsors to
                                                                                                                         clinical literature and has determined
                                              devices that are indicated for specific                                                                                                   support such uses, consistent with the
                                                                                                                         that there are sufficient data available to                    identified special controls, including
                                              patient populations or conditions. As
                                              such, FDA believes that the intended                                       support labeling ECMO devices for the                          but not limited to: High risk
                                              uses included in this final order should                                   following specific indications (patient                        percutaneous coronary intervention;
                                              remain broad to reflect use of ECMO as                                     populations and/or conditions) at this                         trauma resuscitation; failed heart or
                                              a tool to provide extracorporeal                                           time: Meconium aspiration in neonates                          lung transplant; acute respiratory
                                              circulation and physiologic gas                                            and infants; congenital diaphragmatic                          distress syndrome; and/or acute
                                              exchange of blood in patients with acute                                   hernia in neonates and infants;                                decompensation of chronic obstructive
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                                              respiratory failure or acute                                               pulmonary hypertension in neonates                             pulmonary disease.
                                              cardiopulmonary failure, where other                                       and infants; failure to wean from                                 For ECMO devices that have not been
                                              available treatment options have failed,                                   cardiopulmonary bypass following                               legally marketed prior to the effective
                                              and continued clinical deterioration is                                    cardiac surgery in pediatric and adult                         date of the final order, or models (if any)
                                              expected or the risk of death is                                           patients; and ECMO-assisted                                    that have been legally marketed but are
                                              imminent. However, FDA believes that                                       cardiopulmonary resuscitation in                               required to submit a new 510(k) under
                                              there are specific indications (patient                                    adults.                                                        § 807.81(a)(3) because the device is


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                                                                Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations                                             7451

                                              about to be significantly changed or                    or acute cardiopulmonary failure, where               deterioration is expected or the risk of
                                              modified, manufacturers must obtain                     other available treatment options have                death is imminent into class II (special
                                              510(k) clearance, among other relevant                  failed, and continued clinical                        controls).
                                              requirements, and demonstrate                           deterioration is expected or the risk of
                                                                                                                                                            IX. References
                                              compliance with the special controls                    death is imminent, and, therefore, this
                                              included in the final order, before                     device type is not exempt from                          The following references are on
                                              marketing the new or changed device.                    premarket notification requirements.                  display in the Division of Dockets
                                              V. The Final Order                                      VI. Analysis of Environmental Impact                  Management (HFA–305), Food and Drug
                                                                                                                                                            Administration, 5630 Fishers Lane, Rm.
                                                 Under section 513(e) of the FD&C Act,                   The Agency has determined under 21
                                                                                                                                                            1061, Rockville, MD 20852, and are
                                              FDA is adopting its findings as                         CFR 25.34(b) that this action is of a type
                                                                                                                                                            available for viewing by interested
                                              published in the preamble to the                        that does not individually or
                                                                                                                                                            persons between 9 a.m. and 4 p.m.,
                                              proposed order (78 FR 1158) with                        cumulatively have a significant effect on
                                                                                                                                                            Monday through Friday; they are also
                                              modifications as discussed in section IV                the human environment. Therefore,
                                                                                                                                                            available electronically at http://
                                              of this final order. FDA is issuing this                neither an environmental assessment
                                                                                                                                                            www.regulations.gov. FDA has verified
                                              final order to reclassify the membrane                  nor an environmental impact statement
                                              lung devices for long-term pulmonary                    is required.                                          the Web site addresses, as of the date
                                              support from class III to class II for use                                                                    this document publishes in the Federal
                                                                                                      VII. Paperwork Reduction Act of 1995                  Register, but Web sites are subject to
                                              in patients with acute respiratory failure
                                              or acute cardiopulmonary failure, where                   This final order refers to previously               change over time.
                                              other available treatment options have                  approved collections of information                   1. The panel transcript and other meeting
                                              failed and continued clinical                           found in FDA regulations. These                           materials for the September 12, 2013,
                                              deterioration is expected or the risk of                collections of information are subject to                 Circulatory System Devices Panel are
                                              death is imminent, and to establish                     review by the Office of Management and                    available on FDA’s Web site at http://
                                                                                                      Budget (OMB) under the Paperwork                          www.fda.gov/AdvisoryCommittees/
                                              special controls. FDA is removing the
                                                                                                      Reduction Act of 1995 (44 U.S.C. 3501–                    CommitteesMeetingMaterials/Medical
                                              regulation from 21 CFR part 868                                                                                   Devices/MedicalDevicesAdvisory
                                              (Anesthesiology Devices) and adding it                  3520). The collections of information in
                                                                                                                                                                Committee/CirculatorySystemDevices
                                              to 21 CFR part 870 (Cardiovascular                      21 CFR part 812 have been approved                        Panel/ucm342357.htm.
                                              Devices) to better align this device type               under OMB control number 0910–0078;                   2. The panel transcript and other meeting
                                              (and the review thereof) with other                     the collections of information in 21 CFR                  materials for the May 7, 2014,
                                              similar types of cardiovascular devices.                part 807, subpart E, have been approved                   Circulatory System Devices Panel are
                                              The title and identification of                         under OMB control number 0910–0120;                       available on FDA’s Web site at. http://
                                              § 870.4100 (21 CFR 870.4100) reflects                   the collections of information in 21 CFR                  www.fda.gov/AdvisoryCommittees/
                                              the Agency’s intent to regulate ECMO                    part 814, subpart B, have been approved                   CommitteesMeetingMaterials/Medical
                                                                                                      under OMB control number 0910–0231;                       Devices/MedicalDevicesAdvisory
                                              and the accessories used in ECMO
                                                                                                                                                                Committee/CirculatorySystemDevices
                                              under the same set of regulatory                        and the collections of information under
                                                                                                                                                                Panel/ucm395638.htm
                                              controls. However, an individual device                 21 CFR part 801 have been approved
                                              or accessory in an ECMO circuit may                     under OMB control number 0910–0485.                   List of Subjects in 21 CFR Parts 868 and
                                              already have its own classification                     VIII. Codification of Orders                          870
                                              regulation when intended for short-term
                                              use (≤6 hours) and, in those instances,                    Prior to the amendments by FDASIA,                     Medical devices.
                                              such device or accessory is subject to                  section 513(e) of the FD&C Act provided
                                                                                                      for FDA to issue regulations to reclassify              Therefore, under the Federal Food,
                                              the preexisting regulation(s).
                                                 Following the effective date of this                 devices. Although section 513(e) of the               Drug, and Cosmetic Act and under
                                              final order, firms marketing membrane                   FD&C Act as amended requires FDA to                   authority delegated to the Commissioner
                                              lung devices for long-term pulmonary                    issue final orders rather than                        of Food and Drugs, 21 CFR parts 868
                                              support for use in patients with acute                  regulations, FDASIA also provides for                 and 870 are amended as follows:
                                              respiratory failure or acute                            FDA to revoke previously issued
                                                                                                                                                            PART 868—ANESTHESIOLOGY
                                              cardiopulmonary failure, where other                    regulations by order. FDA will continue
                                                                                                                                                            DEVICES
                                              available treatment options have failed                 to codify classifications and
                                              and continued clinical deterioration is                 reclassifications in the Code of Federal
                                              expected or the risk of death is                        Regulations (CFR). Changes resulting                  ■ 1. The authority citation for 21 CFR
                                              imminent, must comply with the                          from final orders will appear in the CFR              part 868 continues to read as follows:
                                              particular mitigation measures set forth                as changes to codified classification                   Authority: 21 U.S.C. 351, 360, 360c, 360e,
                                              in the special controls.                                determinations or as newly codified                   360j, 371.
                                                 Section 510(m) of the FD&C Act                       orders. Therefore, under section                      § 868.5610    [Removed]
                                              provides that FDA may exempt a class                    513(e)(1)(A)(i) of the FD&C Act, as
                                              II device from the premarket notification               amended by FDASIA, in this final order,               ■   2. Remove § 868.5610.
                                              requirements under section 510(k) of the                we are revoking the requirements in 21
                                              FD&C Act if FDA determines that                         CFR 868.5610 related to the                           PART 870—CARDIOVASCULAR
                                              premarket notification is not necessary                 classification of membrane lung for                   DEVICES
                                              to provide reasonable assurance of the                  long-term pulmonary support as class III
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                                              safety and effectiveness of the devices.                devices and codifying under § 870.4100                ■ 1. The authority citation for 21 CFR
                                              FDA has determined that premarket                       the reclassification of membrane lung                 part 870 continues to read as follows:
                                              notification is necessary to provide                    for long-term pulmonary support for use                 Authority: 21 U.S.C. 351, 360, 360c, 360e,
                                              reasonable assurance of safety and                      in patients with acute respiratory failure            360j, 371.
                                              effectiveness of membrane lung devices                  or acute cardiopulmonary failure, where
                                              for long-term pulmonary support for use                 other available treatment options have                ■ 2. Add § 870.4100 to subpart E to read
                                              in patients with acute respiratory failure              failed, and continued clinical                        as follows:


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                                              7452              Federal Register / Vol. 81, No. 29 / Friday, February 12, 2016 / Rules and Regulations

                                              § 870.4100 Extracorporeal circuit and                   and accessories in the circuit, and                   into class I or II, or FDA issues an order
                                              accessories for long-term respiratory/                  maintenance during a procedure.                       finding the device to be substantially
                                              cardiopulmonary failure.                                                                                      equivalent, in accordance with section
                                                                                                        Dated: February 8, 2016.
                                                (a) Identification. An extracorporeal                                                                       513(i) of the FD&C Act, to a predicate
                                              circuit and accessories for long-term                   Leslie Kux,
                                                                                                                                                            device that does not require premarket
                                              respiratory/cardiopulmonary support                     Associate Commissioner for Policy.
                                                                                                                                                            approval. The Agency determines
                                              (>6 hours) is a system of devices and                   [FR Doc. 2016–02876 Filed 2–11–16; 8:45 am]           whether new devices are substantially
                                              accessories that provides assisted                      BILLING CODE 4164–01–P                                equivalent to predicate devices by
                                              extracorporeal circulation and                                                                                means of premarket notification
                                              physiologic gas exchange of the                                                                               procedures in section 510(k) of the
                                              patient’s blood in patients with acute                  DEPARTMENT OF HEALTH AND                              FD&C Act (21 U.S.C. 360(k)) and part
                                              respiratory failure or acute                            HUMAN SERVICES                                        807 (21 CFR part 807) of the regulations.
                                              cardiopulmonary failure, where other                                                                             Section 513(f)(2) of the FD&C Act, as
                                              available treatment options have failed,                Food and Drug Administration
                                                                                                                                                            amended by section 607 of the Food and
                                              and continued clinical deterioration is                                                                       Drug Administration Safety and
                                              expected or the risk of death is                        21 CFR Part 878                                       Innovation Act (Pub. L. 112–144),
                                              imminent. The main devices and                          [Docket No. FDA–2016–N–0237]                          provides two procedures by which a
                                              accessories of the system include, but                                                                        person may request FDA to classify a
                                              are not limited to, the console                         Medical Devices; General and Plastic                  device under the criteria set forth in
                                              (hardware), software, and disposables,                  Surgery Devices; Classification of the                section 513(a)(1) of the FD&C Act.
                                              including, but not limited to, an                       Scalp Cooling System To Reduce the                    Under the first procedure, the person
                                              oxygenator, blood pump, heat                            Likelihood of Chemotherapy-Induced                    submits a premarket notification under
                                              exchanger, cannulae, tubing, filters, and               Alopecia                                              section 510(k) of the FD&C Act for a
                                              other accessories (e.g., monitors,                      AGENCY:    Food and Drug Administration,              device that has not previously been
                                              detectors, sensors, connectors).                        HHS.                                                  classified and, within 30 days of
                                                (b) Classification—Class II (special                                                                        receiving an order classifying the device
                                              controls). The special controls for this                ACTION:   Final order.                                into class III under section 513(f)(1) of
                                              device are:                                             SUMMARY:   The Food and Drug                          the FD&C Act, the person requests a
                                                (1) The technological characteristics                 Administration (FDA) is classifying the               classification under section 513(f)(2).
                                              of the device must ensure that the                      scalp cooling system to reduce the                    Under the second procedure, rather than
                                              geometry and design parameters are                      likelihood of chemotherapy-induced                    first submitting a premarket notification
                                              consistent with the intended use, and                   alopecia into class II (special controls).            under section 510(k) of the FD&C Act
                                              that the devices and accessories in the                 The special controls that will apply to               and then a request for classification
                                              circuit are compatible;                                 the device are identified in this order               under the first procedure, the person
                                                (2) The devices and accessories in the                and will be part of the codified language             determines that there is no legally
                                              circuit must be demonstrated to be                      for the scalp cooling system to reduce                marketed device upon which to base a
                                              biocompatible;                                          the likelihood of chemotherapy-induced                determination of substantial
                                                (3) Sterility and shelf-life testing must                                                                   equivalence and requests a classification
                                                                                                      alopecia’s classification. The Agency is
                                              demonstrate the sterility of any patient-                                                                     under section 513(f)(2) of the FD&C Act.
                                                                                                      classifying the device into class II
                                              contacting devices and accessories in                                                                         If the person submits a request to
                                                                                                      (special controls) in order to provide a
                                              the circuit and the shelf life of these                                                                       classify the device under this second
                                                                                                      reasonable assurance of safety and
                                              devices and accessories;                                                                                      procedure, FDA may decline to
                                                (4) Non-clinical performance                          effectiveness of the device.
                                                                                                                                                            undertake the classification request if
                                              evaluation of the devices and                           DATES: This order is effective February
                                                                                                                                                            FDA identifies a legally marketed device
                                              accessories in the circuit must                         12, 2016. The classification was                      that could provide a reasonable basis for
                                              demonstrate substantial equivalence of                  applicable on December 8, 2015.                       review of substantial equivalence with
                                              the performance characteristics on the                  FOR FURTHER INFORMATION CONTACT: Neil                 the device or if FDA determines that the
                                              bench, mechanical integrity,                            Ogden, Center for Devices and                         device submitted is not of ‘‘low-
                                              electromagnetic compatibility (where                    Radiological Health, Food and Drug                    moderate risk’’ or that general controls
                                              applicable), software, durability, and                  Administration, 10903 New Hampshire                   would be inadequate to control the risks
                                              reliability;                                            Ave., Bldg. 66, Rm. G414, Silver Spring,              and special controls to mitigate the risks
                                                (5) In vivo evaluation of the devices                 MD 20993–0002, 301–796–6397.                          cannot be developed.
                                              and accessories in the circuit must                     SUPPLEMENTARY INFORMATION:                               In response to a request to classify a
                                              demonstrate their performance over the                                                                        device under either procedure provided
                                              intended duration of use, including a                   I. Background
                                                                                                                                                            by section 513(f)(2) of the FD&C Act,
                                              detailed summary of the clinical                           In accordance with section 513(f)(1) of            FDA will classify the device by written
                                              evaluation pertinent to the use of the                  the Federal Food, Drug, and Cosmetic                  order within 120 days. This
                                              devices and accessories to demonstrate                  Act (the FD&C Act) (21 U.S.C.                         classification will be the initial
                                              their effectiveness if a specific                       360c(f)(1)), devices that were not in                 classification of the device.
                                              indication (patient population and/or                   commercial distribution before May 28,                   On March 6, 2015, Target Health, Inc.
                                              condition) is identified; and                           1976 (the date of enactment of the                    (on behalf of Dignitana AB) submitted a
                                                (6) Labeling must include a detailed                  Medical Device Amendments of 1976),                   request for classification of the
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                                              summary of the non-clinical and in vivo                 generally referred to as postamendments               DigniCapTM Scalp Cooling System
                                              evaluations pertinent to use of the                     devices, are classified automatically by              under section 513(f)(2) of the FD&C Act.
                                              devices and accessories in the circuit                  statute into class III without any FDA                The manufacturer recommended that
                                              and adequate instructions with respect                  rulemaking process. These devices                     the device be classified into class II (Ref.
                                              to anticoagulation, circuit setup,                      remain in class III and require                       1).
                                              performance characteristics with respect                premarket approval, unless and until                     In accordance with section 513(f)(2) of
                                              to compatibility among different devices                the device is classified or reclassified              the FD&C Act, FDA reviewed the


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Document Created: 2016-02-12 01:24:12
Document Modified: 2016-02-12 01:24:12
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionFinal order.
DatesThis order is effective February 12, 2016.
ContactFernando Aguel, Center for Devices and Radiological Health, 10903 New Hampshire Ave., Bldg. 66, Rm. 1234, Silver Spring, MD 20993, 301-796-6326, [email protected]
FR Citation81 FR 7446 
CFR Citation21 CFR 868
21 CFR 870

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