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Federal Register / Vol. 70, No.

100 / Wednesday, May 25, 2005 / Rules and Regulations 29949

Amendments 3/25/99 64 FR 13334 § 73.94 Division of Dockets Management (HFA–


(Amended) 305), Food and Drug Administration,
P–67 Kennebunkport, ME
§ 73.89 5630 Fishers Lane, rm. 1061, Rockville,
Boundaries. A circular area of 1-mile
radius centered on lat. 43°20′40″ N., long. MD 20852.
P–47 Amarillo, TX Instructions: All submissions received
70°27′34″ W.
Boundaries. Beginning at lat. 35°21′09″ N., Designated altitudes. Surface to 1,000 feet must include the agency name and
long. 101°37′05″ W.; to lat. 35°21′11″ N., MSL. Docket No. for this rulemaking. All
long. 101°32′29″ W.; to lat. 35°18′09″ N., Time of designation. Continuous. comments received will be posted
long. 101°32′29″ W.; to lat. 35°18′09″ N., Using agency. Administrator, FAA, without change to http://www.fda.gov/
long. 101°34′50″ W.; to lat. 35°17′55″ N., Washington, DC. ohrms/dockets/default.htm, including
long. 101°35′10″ W.; to lat. 35°17′55″ N., * * * * * any personal information provided. For
long. 101°35′39″ W.; to lat. 35°19′05″ N., Issued in Washington, DC on May 16, detailed instructions on submitting
long. 101°35′42″ W.; to lat. 35°19′05″ N., 2005. comments and additional information
long. 101°36′06″ W.; to lat. 35°18′02″ N., Edith V. Parish, on the rulemaking process, see section
long. 101°36′29″ W.; to lat. 35°18′02″ N., Acting Manager, Airspace and Rules. IX in the SUPPLEMENTARY
long. 101°37′05″ W.; to the point of INFORMATIONsection of this document.
[FR Doc. 05–10371 Filed 5–24–05; 8:45 am]
beginning. Docket: For access to the docket to
BILLING CODE 4910–13–P
Designated altitudes. Surface to 4,800 feet read background documents or
MSL (1,200 feet AGL). comments received, go to http://
Time of designation. Continuous.
DEPARTMENT OF HEALTH AND www.fda.gov/ohrms/dockets/
Using agency. Manager, Pantex Field
HUMAN SERVICES default.htm and insert the docket
Office, Department of Energy, Amarillo, TX.
number, found in brackets in the
P–49 Crawford, TX Food and Drug Administration heading of this document, into the
Boundaries. That airspace within a 3 NM ‘‘Search’’ box and follow the prompts
radius of lat. 31°34′45″ N., long. 97°32′00″ W. 21 CFR Part 1271 and/or go to the Division of Dockets
Designated altitudes. Surface to 5,000 feet Management, 5630 Fishers Lane, rm.
[Docket No. 1997N–0484T]
MSL. 1061, Rockville, MD 20852.
Time of designation. Continuous. Human Cells, Tissues, and Cellular and FOR FURTHER INFORMATION CONTACT:
Using agency. United States Secret Service, Tissue-Based Products; Donor Paula S. McKeever, Center for Biologics
Washington, DC. Screening and Testing, and Related Evaluation and Research (HFM–17),
Amendments 5/15/03 68 FR 7917 (Amended) Labeling Food and Drug Administration, 1401
Rockville Pike, suite 200N, Rockville,
§ 73.90 AGENCY: Food and Drug Administration, MD 20852–1448, 301–827–6210.
HHS.
P–40 Thurmont, MD SUPPLEMENTARY INFORMATION:
ACTION: Interim final rule; opportunity
Boundaries. That airspace within a 3 NM for public comment. I. Background
radius of the Naval Support Facility, lat.
39°38′53″ N., long. 77°28′00″ W. SUMMARY: The Food and Drug We (FDA), have issued three final
Designated altitudes. Surface to but not Administration (FDA) is issuing an rules to implement a comprehensive
including 5,000 feet MSL. interim final rule to amend certain new system for regulating HCT/Ps in
Time of designation. Continuous. regulations regarding the screening and part 1271 (21 CFR part 1271). The final
Using agency. Administrator, FAA, testing of donors of human cells, tissues, rules are as follows:
Washington, DC. and cellular and tissue-based products • Human Cells, Tissues, and Cellular
(HCT/Ps), and related labeling. FDA is and Tissue-Based Products;
§ 73.91 Establishment Registration and Listing
taking this action in response to
P–73 Mount Vernon, VA comments from affected interested (66 FR 5447, January 19, 2001)
Boundaries. That airspace within a 0.5- persons regarding the impracticability of (registration final rule);
mile radius of lat. 38°42′28″ N., long. complying with certain regulations as • Eligibility Determination for Donors
77°05′10″ W. they affect particular HCT/Ps. of Human Cells, Tissues, and Cellular
Designated altitudes. Surface to but not DATES: The interim final rule is effective and Tissue-Based Products (69 FR
including 1,500 feet MSL. May 25, 2005. Submit written or 29786, May 25, 2004) (donor-eligibility
Time of designation. Continuous. electronic comments on the interim final rule); and
Using agency. Administrator, FAA, final rule by August 23, 2005. • Current Good Tissue Practice for
Washington, DC. ADDRESSES: You may submit comments, Human Cell, Tissue, and Cellular and
identified by Docket No. 1997N–0484T, Tissue-Based Product Establishments;
§ 73.93 [New] Inspection and Enforcement (69 FR
by any of the following methods:
P–51 Bangor, WA [Added] • Federal eRulemaking Portal: http:// 68612, November 24, 2004) (CGTP final
Boundaries: Beginning at lat. 47°46′31″ N., www.regulations.gov. Follow the rule).
long. 122°46′12″ W.; to lat. 47°46′29″ N., instructions for submitting comments. This interim final rule is making
long. 122°41′31″ W.; to lat. 47°41′42″ N., • Agency Web site: http:// changes in response to comments from
long. 122°41′27″ W.; to lat. 47°41′40″ N., www.fda.gov/dockets/ecomments. affected interested persons regarding the
long. 122°44′11″ W.; to lat. 47°43′19″ N., Follow the instructions for submitting impracticability of complying with
long. 122°46′09″ W.; to the point of comments on the agency Web site. certain regulations as they affect
beginning. • E-mail: fdadockets@oc.fda.gov. particular HCT/Ps, as well as certain
Designated Altitudes. Surface to but not Include Docket No. 1997N–0484T in the other editorial changes.
including 2,500 MSL. subject line of your e-mail message. II. Legal Authority
Time of designation. Continuous. • FAX: 301–827–6870.
Using agency. Administrator, FAA, • Mail/Hand delivery/Courier [For We are issuing these regulations
Washington, DC. paper, disk, or CD-ROM submissions]: under the authority of section 361 of the

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29950 Federal Register / Vol. 70, No. 100 / Wednesday, May 25, 2005 / Rules and Regulations

Public Health Service Act (PHS Act) (42 • The records that must accompany affect test results. For these reasons, a
U.S.C. 264). By authority delegated the HCT/P at all times once the donor- specimen collected on the day of
under that section, we may make and eligibility determination is made donation from a cadaveric donor may
enforce regulations necessary to prevent (§ 1271.55(a)); not be superior to a specimen collected
the introduction, transmission, or • The summary of records used to within 7 days before death.
spread of communicable diseases make the donor-eligibility The interim final rule also modifies
between the States or from foreign determination (§ 1271.55(b)); the timing of sample collection for
countries into the States. Intrastate • The deletion of personal donors of bone marrow (when
transactions affecting interstate information (§ 1271.55(c)); and considered an HCT/P under § 1271.3(d)
communicable disease transmission • The record retention requirements (21 CFR 1271.3(d))) and oocytes. The
may also be regulated under section 361 (§ 1271.55(d)). change will permit the collection of a
of the PHS Act. (See Louisiana v. Section 1271.55(a)(1) requires you to donor specimen for testing up to 30
Mathews, 427 F. Supp. 174, 176 (E.D. affix a distinct identification code to the days before recovery of the HCT/P for
La. 1977).) This interim final rule HCT/P container, e.g., an alphanumeric, these additional HCT/Ps. In the donor-
addresses the impracticability of that relates the HCT/P to the donor and eligibility final rule we state that we
complying with certain regulations that to all records pertaining to the HCT/P. permit collection of the donor specimen
affect particular HCT/Ps. In the interest of confidentiality, the up to 30 days before recovery for donors
distinct identification code must not of peripheral blood stem/progenitor
III. Issuance of an Interim Final Rule; include an individual’s name, social cells due to the myeloablative treatment
Effective Date security number, or medical record regimen and the need to determine the
Under the provisions of the number. We make an exception to this eligibility of the donor before the
Administrative Procedure Act at 5 prohibition for autologous or directed recipient’s treatment begins (69 FR
U.S.C. 553(b)(B) and FDA’s reproductive donations because in such 29786 at 29808). Because this reasoning
administrative practices and procedures donations, the donor is already known also applies to donors of bone marrow
regulations at § 10.40(e)(1) (21 CFR to the recipient. covered by the HCT/P regulations and
10.40(e)(1)), the Commissioner of Food This interim final rule adds to this donors of oocytes who must undergo
and Drugs (the Commissioner) finds that exception donations made by first- conditioning regimens beginning more
use of prior notice and comment degree or second-degree blood relatives. than 7 days before recovery of oocytes,
procedures for issuing this interim final Donors who are first-degree or second- we have included a reference to bone
rule is contrary to the public interest. In degree blood relatives know and are marrow and oocytes in § 1271.80(b) to
addition, the Commissioner finds good known by the recipient, similar to permit testing up to 30 days before
cause under 5 U.S.C. 553(d)(3) and directed reproductive donations. recovery.
§ 10.40(c)(4)(ii) for making this interim Adding this exception may increase the
comfort of the recipient by helping to C. Section 1271.90
final rule effective May 25, 2005.
We conclude that this interim final confirm that the HCT/P is from the Section 1271.90(a) describes
rule is necessary to assure that the designated donor. exceptions to the requirement for donor-
changes become effective concurrently The revision to § 1271.290 is a eligibility determination and related
with the donor-eligibility final rule and technical change to reference the labeling requirements. The exceptions
the CGTP final rule on May 25, 2005. In provisions in § 1271.55(a)(1). apply to the following HCT/Ps:
this way, establishments will not be • Cells and tissues for autologous use;
B. Section 1271.80 • Reproductive cells or tissue
required to take steps to comply with
the provisions that will be replaced by Section 1271.80 describes the general donated by a sexually intimate partner
the changes set out in this rule, and requirements for donor testing, such as: of the recipient; and
certain HCT/Ps will continue to be • The requirement to test for relevant • Cryopreserved cells or tissue for
available. If the rule is not effective communicable diseases; reproductive use, other than embryos,
immediately (before the agency could • Timing of specimen collection; intended for directed donation.
take comment on a proposed rule and • What tests to use; and In the donor eligibility final rule at
issue a final rule), delay could result in • Who is an ineligible donor. § 1271.90(a)(2), a donor eligibility
The interim final rule revises the determination is not required for
certain HCT/Ps being unavailable for
requirements regarding timing of the reproductive cells or tissue donated by
donation. Based on existing donation
specimen collection. We deleted the a sexually intimate partner of the
practices, we believe that delay would
statement in § 1271.80(b) regarding recipient for reproductive use. We are
increase the risk that some patients will
specimen collection at the time of now adding a new exemption from
not be able to obtain certain donated
recovery, because we are aware that this screening and testing in § 1271.90(a)(4)
HCT/Ps.
Although we are publishing this has been interpreted to mean that a for cryopreserved embryos that, while
regulation as an interim final rule testing specimen collected from a donor originally exempt from the donor
without prior notice and comment on a on the day of donation is superior. We eligibility requirement because the
proposed rule, we are providing believe that, for a cadaveric donor, donors were sexually intimate partners,
opportunity for comment on this either a pre-mortem specimen collected are later intended for directed or
interim final rule. After reviewing within 7 days before death or a post anonymous donation. When possible,
public comment submitted to the mortem specimen are appropriate appropriate measures should be taken to
docket, we will issue a final rule. specimens. However, the pre-mortem screen and test the semen and oocyte
specimen, if available, may be donors before transfer of the embryo to
IV. Provisions of the Interim Final Rule preferable because it is likely to be less a recipient.
We are making the following changes hemolyzed, and excessive hemolysis This change reflects the fact that
to part 1271. can interfere with the test results. In sexually intimate partners may decide
addition, a cadaveric donor may have to donate their cryopreserved embryos
A. Sections 1271.55 and 1271.290 received fluid infusions prior to death, long after their fertility treatments are
Section 1271.55 describes: resulting in plasma dilution sufficient to completed. Because the embryos were

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Federal Register / Vol. 70, No. 100 / Wednesday, May 25, 2005 / Rules and Regulations 29951

intended for use in a sexually intimate enhance the availability of embryos, and regulatory action under the Executive
relationship, the donors would not have the potential benefits, risks, and any order.
been required to be screened and tested other direct or indirect effects of this The Regulatory Flexibility Act
for communicable disease agents at the change. Section 1271.90(b) contains requires agencies to analyze regulatory
time that oocytes and semen were labeling requirements for the previously options that would minimize any
recovered. The new provision described HCT/Ps excepted from the significant impact of a rule on small
recommends that appropriate measures donor-eligibility determination entities. Because this rule makes certain
be taken to screen and test the semen requirements. We are revising issued regulations affecting
and oocyte donors before transfer of the § 1271.90(b) to clarify when each reproductive and hematopoietic stem
embryo to the recipient, when possible. required label is appropriate for the cell HCT/Ps more practicable, and does
If appropriate screening and testing of HCT/Ps described in § 1271.90(a), i.e., not impose any new requirements, FDA
the semen and oocyte donors are autologous cells and tissues, certifies that the interim final rule will
performed subsequent to reproductive cells and tissues donated not have a significant economic impact
cryopreservation and before transfer of by a sexually intimate partner, and on a substantial number of small
the embryo to the recipient, the labeling cryopreserved reproductive cells and entities.
requirement in § 1271.90(b)(6) applies, tissues, including embryos, where the Section 202(a) of the Unfunded
i.e., ‘‘Advise recipient that screening donor(s) was not screened and tested at Mandates Reform Act of 1995 requires
and testing of the donor(s) were not the time of collection. We have also that agencies prepare a written
performed at the time of clarified § 1271.90(b)(3), that cells and statement, which includes an
cryopreservation of the reproductive tissues for autologous use do not require assessment of anticipated costs and
cells or tissue, but have been performed the label ‘‘Advise patient of benefits, before issuing ‘‘any rule that
subsequently.’’ If screening and testing communicable disease risk’’ because the includes any Federal mandate that may
of the semen and oocyte donors are not patient’s own cells or tissues are being result in the expenditure by State, local,
performed, this rule would not prohibit returned, and in this situation, there is and tribal governments, in the aggregate,
the transfer of the embryo into a minimal, if any, risk. or by the private sector, of $100,000,000
recipient. In such an event, the labeling
D. Section 1271.370 or more (adjusted annually for inflation)
requirements in § 1271.90(b)(2) and
in any one year.’’ The current threshold
(b)(3) are applicable. The HCT/P must Section 1271.370 contains labeling after adjustment for inflation is $115
be labeled with ‘‘NOT EVALUATED requirements in addition to §§ 1271.55,
FOR INFECTIOUS SUBSTANCES’’ and million, using the most current (2003)
1271.60, 1271.65, and 1271.90 for HCT/ Implicit Price Deflator for the Gross
‘‘WARNING: Advise recipient of
Ps regulated solely under section 361 of Domestic Product. FDA does not expect
communicable disease risks.’’ This
the PHS Act and part 1271, e.g., distinct this interim final rule to result in any 1–
labeling would provide information to
identification code, expiration date, and year expenditure that would meet or
the treating physician to permit
warnings. We are revising exceed this amount.
discussion with the recipient of the
§ 1271.370(b)(4) to state that if applying
potential risks. VI. The Paperwork Reduction Act of
Since we issued the donor eligibility the applicable warnings to the container
is physically impossible, then the 1995
rule, we have received letters and
comments in meetings concerning the labeling must, instead, accompany the This interim final rule contains no
importance of cryopreserved embryos to HCT/P. This change is necessary collections of information. Therefore,
individuals seeking access to donated because the container for some HCT/Ps, clearance by OMB under the Paperwork
embryos. Donated embryos may provide such as those used for semen Reduction Act of 1995 is not required.
a very important treatment to some cryopreservation, is so small that it does
not accommodate the warning language. VII. Environmental Impact
individuals. For example, a couple may
not be able to conceive a child because In addition, the use of a tie-tag with The agency has determined under 21
the female partner has had her ovaries warning language is not feasible because CFR 25.30(i) and (j) that this action is of
removed and the male partner has it is difficult to securely attach the tie- a type that does not individually or
undergone chemotherapy and no longer tag to a container stored in liquid cumulatively have a significant effect on
has viable spermatozoa. In order to nitrogen. In such cases, the warning the human environment. Therefore,
assure that such a treatment continues language must accompany the HCT/P. neither an environmental assessment
to be available, we have re-evaluated the V. Analysis of Impacts nor an environmental impact statement
screening and testing requirements is required.
imposed by these rules. Screening and FDA has examined the impacts of the
VIII. Federalism
testing of semen and oocyte donors is interim final rule under Executive Order
recommended given the potential risk 12866 as well as under the Regulatory FDA has analyzed this interim final
that such tissue, like any cell or tissue Flexibility Act (5 U.S.C. 601–612), and rule in accordance with the principles
derived from the human body, could the Unfunded Mandates Reform Act of set forth in Executive Order 13132. FDA
transmit communicable disease. 1995 (Public Law 104–4). Executive has determined that the interim final
However, it is possible that the couple Order 12866 directs agencies to assess rule does not contain policies that have
would not be available for screening and all costs and benefits of available substantial direct effects on the States,
testing due to refusal of a partner or regulatory alternatives and, when on the relationship between the
death. In such instances, the embryo regulation is necessary, to select National Government and the States, or
would be labeled as required under the regulatory approaches that maximize on the distribution of power and
rule, and this rule would not prohibit net benefits (including potential responsibilities among the various
the transfer of the embryo. economic, environmental, public health levels of government. Accordingly, the
We believe this change will enhance and safety, and other advantages; agency has concluded that the interim
the availability of embryos for donation. distributive impacts; and equity). The final rule does not contain policies that
However, we are soliciting comments on agency believes that this interim final have federalism implications as defined
the effectiveness of this change to rule is not an economically significant in the Executive order and,

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29952 Federal Register / Vol. 70, No. 100 / Wednesday, May 25, 2005 / Rules and Regulations

consequently, a federalism summary for testing at the time of recovery of (B) Risk factors for or clinical
impact statement is not required. cells or tissue from the donor; or up to evidence of relevant communicable
7 days before or after recovery, except: disease agents or diseases.
IX. Request for Comments
(1) For donors of peripheral blood (4) With the Biohazard legend shown
Interested persons may submit to the stem/progenitor cells, bone marrow (if
Division of Dockets Management (see in § 1271.3(h), if the results of any
not excepted under § 1271.3(d)(4)), or
ADDRESSES) written or electronic screening or testing performed indicate:
oocytes, you may collect the donor
comments regarding this interim final specimen for testing up to 30 days (i) The presence of relevant
rule. Submit a single copy of electronic before recovery; or communicable disease agents and/or
comments or two paper copies of any (2) In the case of a repeat semen donor (ii) Risk factors for or clinical
mailed comments, except that from whom a specimen has already evidence of relevant communicable
individuals may submit one paper copy. been collected and tested, and for whom disease agents or diseases.
Comments are to be identified with the retesting is required under § 1271.85(d),
docket number found in brackets in the you are not required to collect a donor (5) ‘‘WARNING: Reactive test results
heading of this document. Received specimen at the time of each donation. for (name of disease agent or disease),’’
comments may be seen in the Division in the case of reactive test results.
* * * * *
of Dockets Management between 9 a.m. (6) ‘‘Advise recipient that screening
■ 4. Section 1271.90 is amended by
and 4 p.m., Monday through Friday. and testing of the donor(s) were not
revising paragraphs (a)(3) introductory
List of Subjects in 21 CFR 1271 text and (b), and by adding paragraph performed at the time of
(a)(4) to read as follows: cryopreservation of the reproductive
Biological Drugs, Communicable cells or tissue, but have been performed
diseases, HIV/AIDS, Human cells, § 1271.90 Are there exceptions from the subsequently,’’ for paragraphs (a)(3) or
tissues, and cellular and tissue-based requirement of determining donor eligibility, (a)(4) of this section.
products, Medical devices, Reporting and what labeling requirements apply?
and recordkeeping requirements. (a) * * * ■ 5. Section 1271.290 is amended by
■ Therefore, under the Public Health (3) Cryopreserved cells or tissue for revising the second sentence in
Service Act, and under authority reproductive use, other than embryos, paragraph (c) to read as follows:
delegated to the Commissioner of Food originally exempt under paragraphs
and Drugs, Chapter I of title 21 of the § 1271.290 Tracking.
(a)(1) or (a)(2) of this section at the time
Code of Federal Regulations is amended of donation, that are subsequently * * * * *
as follows: intended for directed donation, (c) * * * Except as described in
provided that § 1271.55(a)(1), you must create such a
PART 1271—HUMAN CELLS, TISSUES,
* * * * * code specifically for tracking, and it
AND CELLULAR AND TISSUE-BASED
(4) A cryopreserved embryo, may not include an individual’s name,
PRODUCTS
originally exempt under paragraph (a)(2) social security number, or medical
■ 1. The authority citation for 21 CFR of this section at the time of record number. * * *
part 1271 continues to read as follows: cryopreservation, that is subsequently * * * * *
intended for directed or anonymous
Authority: 42 U.S.C. 216, 243, 263a, 264, ■ 6. Section 1271.370 is amended by
271.
donation. When possible, appropriate
measures should be taken to screen and revising paragraph (b)(4) to read as
■ 2. Section 1271.55 is amended by test the semen and oocyte donors before follows:
revising paragraph (a)(1) to read as transfer of the embryo to the recipient.
follows: (b) Required labeling. As applicable, § 1271.370 Labeling.
§ 1271.55 What records must accompany you must prominently label an HCT/P * * * * *
an HCT/P after the donor-eligibility described in paragraph (a) of this (b) * * *
determination is complete; and what section as follows:
records must I retain? (1) ‘‘FOR AUTOLOGOUS USE (4) Warnings required under
(a) * * * ONLY,’’ if it is stored for autologous § 1271.60(d)(2), § 1271.65(b)(2), or
(1) A distinct identification code use. § 1271.90(b), if applicable and
affixed to the HCT/P container, e.g., (2) ‘‘NOT EVALUATED FOR physically possible. If it is not
alphanumeric, that relates the HCT/P to INFECTIOUS SUBSTANCES,’’ unless physically possible to include these
the donor and to all records pertaining you have performed all otherwise warnings on the label, the warnings
to the HCT/P and, except in the case of applicable screening and testing under must, instead, accompany the HCT/P.
autologous donations, directed §§ 1271.75, 1271.80, and 1271.85. This * * * * *
reproductive donations, or donations paragraph does not apply to
Dated: May 23, 2005.
made by first-degree or second-degree reproductive cells or tissue labeled in
blood relatives, does not include an accordance with paragraph (b)(6) of this Jeffrey Shuren,
individual’s name, social security section. Assistant Commissioner for Policy.
number, or medical record number; (3) Unless the HCT/P is for autologous [FR Doc. 05–10583 Filed 5–24–05; 8:45 am]
* * * * * use only, ‘‘WARNING: Advise recipient BILLING CODE 4160–01–S

■ 3. Section 1271.80 is amended by of communicable disease risks,’’


revising paragraph (b) to read as follows: (i) When the donor-eligibility
determination under § 1271.50(a) is not
§ 1271.80 What are the general performed or is not completed; or
requirements for donor testing? (ii) If the results of any screening or
* * * * * testing performed indicate:
(b) Timing of specimen collection. (A) The presence of relevant
You must collect the donor specimen communicable disease agents and/or

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