95-18504. Final Rule: Requirements for Child-Resistant Packaging; Packages Containing 250 mg or More of Naproxen  

  • [Federal Register Volume 60, Number 145 (Friday, July 28, 1995)]
    [Rules and Regulations]
    [Pages 38671-38675]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-18504]
    
    
    
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    CONSUMER PRODUCT SAFETY COMMISSION
    
    16 CFR Part 1700
    
    
    Final Rule: Requirements for Child-Resistant Packaging; Packages 
    Containing 250 mg or More of Naproxen
    
    AGENCY: Consumer Product Safety Commission.
    
    ACTION: Final rule.
    
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    SUMMARY: The Commission is issuing a rule to require child-resistant 
    packaging for naproxen preparations containing 250 mg or more of 
    naproxen per retail package. Naproxen is marketed as an anti-
    inflammatory drug. It is used to treat various forms of arthritis, mild 
    to moderate pain, and menstrual pain. The Commission has determined 
    that child-resistant packaging is necessary to protect children under 5 
    years of age from serious personal injury and serious illness resulting 
    from ingesting naproxen. The Commission takes this action under the 
    authority of the Poison Prevention Packaging Act of 1970.
    
    DATES: The rule will become effective on February 6, 1996, and applies 
    to naproxen preparations packaged on or after that date.
    
    FOR FURTHER INFORMATION CONTACT: Michael Bogumill, Division of 
    Regulatory Management, Consumer Product Safety Commission, Washington, 
    DC 20207; telephone (301) 504-0400 ext. 1368.
    
    SUPPLEMENTARY INFORMATION:
    
    A. Background
    
    1. Relevant Statutory and Regulatory Provisions
    
        The Poison Prevention Packaging Act of 1970 (``PPPA''), 15 U.S.C. 
    1471-1476, authorizes the Commission to establish standards for the 
    ``special packaging'' of any household substance if (1) The degree or 
    nature of the hazard to children in the availability of such substance, 
    by reason of its packaging, is such that special packaging is required 
    to protect children from serious personal injury or serious illness 
    resulting from handling, using, or ingesting such substance and (2) the 
    special packaging is technically feasible, practicable, and appropriate 
    for such substance.
        Special packaging, also referred to as ``child-resistant (CR) 
    packaging,'' is packaging that (1) Is designed or constructed to be 
    significantly difficult for children under 5 years of age to open or 
    obtain a toxic or harmful amount of the substance contained therein 
    within a reasonable time and (2) is not difficult for ``normal adults'' 
    to use properly. 15 U.S.C. 1471(4). Household substances for which the 
    Commission may require CR packaging include (among other categories) 
    foods, drugs, or cosmetics as these terms are defined in the Federal 
    Food, Drug, and Cosmetic Act (21 U.S.C. 321). 15 U.S.C. 1471(2)(B). The 
    Commission has performance requirements for special packaging. 16 CFR 
    1700.15, 1700.20.
        Section 4(a) of the PPPA, 15 U.S.C. 1473(a), allows the 
    manufacturer or packer to package a nonprescription product subject to 
    special packaging standards in one size of non-CR packaging only if the 
    manufacturer (or packer) also supplies the substance in CR packages of 
    a popular size, and the non-CR packages bear conspicuous labeling 
    stating: ``This package for households without young children.'' 15 
    U.S.C. 1473(a).
    
    2. Naproxen
    
        Naproxen is a nonsteroidal anti-inflammatory drug (``NSAID''). This 
    class of compounds is used to treat various forms of arthritis, mild to 
    moderate pain, and menstrual pain. As discussed below, the Commission 
    is aware of many reports of poisoning incidents involving naproxen in 
    children under 5 years old.
        Until recently, naproxen was a prescription drug that was required 
    to be in child-resistant packaging by the 
    
    [[Page 38672]]
    Commission's regulation of human oral prescription drugs, 16 CFR 
    1700.14(a)(10). By a letter dated January 11, 1994, the Food and Drug 
    Administration (``FDA'') granted nonprescription (``over-the-counter,'' 
    or ``OTC'') status to the sodium salt of naproxen.
        The patent for naproxen expired in 1993. The OTC naproxen product 
    approved by the FDA is currently manufactured by the original patent 
    holder and marketed by another company as a joint venture. In 
    accordance with FDA's regulations, these two companies have sole 
    marketing rights until January 11, 1997. Currently, the companies are 
    voluntarily placing naproxen in CR packaging.
        The OTC formulation of naproxen consists of naproxen sodium and is 
    equivalent to 200 mg of naproxen and 20 mg of sodium per tablet. The 
    recommended dose is 1 tablet every 8 to 12 hours. The maximum daily 
    dose is 3 tablets for patients between the ages of 12 and 65 and 2 
    tablets for those over 65. The drug is not recommended for children 
    under 12 years old except under the supervision of a doctor. However, 
    naproxen is used to treat juvenile arthritis in children over 2 
    years.(5) 1
    
        \1\ Numbers in parentheses refer to documents at the end of this 
    notice.
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        Although the current marketers are voluntarily placing naproxen in 
    child-resistant packaging, a mandatory special packaging standard for 
    naproxen products would ensure that other companies that may market 
    such products in the future would use CR packaging. As discussed below, 
    an increased incidence of accidental ingestions by children under 5 
    involving ibuprofen (another NSAID) after it became available OTC, 
    supports this action. A mandatory standard would also enable the 
    Commission to ensure that the packaging used meets the performance 
    requirements of the PPPA test protocol at 16 CFR 1700.15, 1700.20.
    
    3. The Proposed Rule
    
        On November 14, 1994, the Commission issued a proposed rule that 
    would require CR packaging for OTC drugs containing the equivalent of 
    250 mg or more of naproxen. 59 FR 56445. As discussed below, the 
    Commission received 4 comments in response to the proposed rule. All 
    were in favor of issuing the rule.
        The Commission also received a request to extend the comment period 
    from Syntex Corporation (``Syntex''), one of the companies involved in 
    the joint venture for temporary exclusive marketing rights for 
    naproxen. Syntex stated that it needed additional time to prepare a 
    response to the proposed rule since it had recently been acquired by 
    Roche. The Commission granted the request for an extension of time. 60 
    FR 2716 (January 11, 1995). However, the Commission did not 
    subsequently receive any comments from Syntex.
    
    B. Toxicity of Naproxen
    
        The Commission's Directorate for Health Sciences reviewed the 
    toxicity of naproxen. Side effects commonly associated with naproxen 
    and other NSAID's include dose-related gastrointestinal (GI) 
    complications such as constipation, heartburn, abdominal pain, nausea, 
    and diarrhea. Other adverse effects include headache, dizziness, 
    drowsiness, pruritus (itching), and tinnitus (ringing in the ears).(5)
        Naproxen may also cause liver and kidney toxicity, but these 
    effects are infrequent with routine therapeutic use. Kidney toxicity 
    has been documented in children following naproxen therapy. One report 
    describes a two-year-old male with juvenile arthritis who developed 
    acute renal failure and hyperkalemia (high blood potassium) following 
    treatment with 20 mg/kg/day of naproxen sodium for 1 month.(5)
        Acute overdosage of naproxen may result in mild, transient effects, 
    including drowsiness, GI disturbances, and prolonged clotting times. 
    Life-threatening effects are uncommon, but serious complications such 
    as seizures, apnea (cessation of breathing), metabolic acidosis 
    (reduced blood pH), and impaired kidney function have been documented. 
    The acute lethal dose of naproxen is unknown and the severity of 
    symptoms is not always dose-related.(5)
        The Commission's Directorate for Epidemiology reviewed data from 
    the National Electronic Injury Surveillance System (``NEISS'') 
    involving hospital emergency room treatment of children under 5 years 
    old who ingested naproxen. NEISS is a probability sample based on 
    hospital emergency rooms nationwide. There were nine reported cases 
    from 1980 to 1989 and 26 reported cases from 1990 to 1994. The average 
    annual number of estimated cases during these time periods was 50 and 
    260, respectively. In 1982, one case resulted in the hospitalization of 
    a 2-year-old male. In 1994, the Commission had reports of three 
    emergency room cases, each involving a 2-year-old child who was 
    examined or treated and released following ingestion of naproxen.(7)
        The Commission's Directorate for Health Sciences requested 1993 
    incident data from the American Association of Poison Control Centers 
    (``AAPCC'') related specifically to naproxen in children under 5 years 
    old. (AAPCC data from 1985 to 1992 were unavailable because naproxen 
    poisoning incidents were not categorized separately from other NSAID 
    incidents unless they resulted in death.) Of the 1,413 naproxen 
    ingestions reported for 1993, two resulted in outcomes characterized by 
    AAPCC as ``moderate,'' i.e., pronounced and prolonged symptoms that 
    generally require treatment but are not life-threatening. In addition, 
    53 of the ingestions resulted in outcomes characterized by AAPCC as 
    ``minor,'' i.e., symptoms present, but mild with rapid and complete 
    resolution. Forty-eight cases were documented as potentially toxic, but 
    the ultimate disposition was not reported. From 1985 to 1993, there 
    were no naproxen-related fatalities in children reported to the 
    AAPCC.(5)
        Several cases of naproxen poisoning in children were reported 
    through the FDA's Adverse Reactions Reporting System (``ARRS'') and the 
    Worldwide Safety Surveillance and Reporting division of Syntex, the 
    manufacturer of naproxen. These include: An 8-month-old girl who died 
    following daily treatment for fever and an upper respiratory tract 
    infection with 100 to 400 mg naproxen sodium for 5 days; a 2-year-old 
    boy who recovered after developing drowsiness, ataxia (loss of 
    voluntary muscle coordination), and a prolonged bleeding time following 
    ingestion of naproxen (up to 2 grams), hydrogen peroxide, and 
    eucalyptus oil; a 2-year-old girl who suffered dyspepsia (indigestion) 
    after ingesting 625 mg of naproxen; and a 5-year-old girl who developed 
    convulsions after she accidently ingested an unknown amount of naproxen 
    sodium.(5)
        NEISS data for ingestions of ibuprofen, another popular NSAID that 
    began to be marketed OTC in 1984, show that there was a larger 
    estimated number of children under 5 years old treated in hospital 
    emergency rooms for each year from 1984-1994 after ibuprofen was 
    granted OTC status, than for each year from 1980-1983.(7)
        Most cases of naproxen poisoning described in the literature 
    involve adults. These patients generally developed GI side effects and 
    several experienced seizures. The incidence of side effects may differ 
    in children and adults. Studies involving children taking naproxen 
    showed that, compared to adults, the children's incidence of: rash and 
    prolonged bleeding times were 
    
    [[Page 38673]]
    increased; GI and central nervous system (CNS) reactions were similar; 
    and other reactions decreased.(5)
        The relevant literature shows that naproxen and other NSAID's have 
    adverse fetal effects when used during pregnancy. A newborn delivered 8 
    hours after his mother ingested an overdose of 5 grams of naproxen 
    developed severe hyponatremia (low blood sodium) and water retention 
    with indications of cerebral irritation and paralytic ileus. It was 
    tentatively diagnosed that naproxen adversely affected renal function. 
    Complications were reported in three newborns after maternal naproxen 
    treatment to prevent premature labor. One newborn died, and the autopsy 
    showed a brain hemorrhage, multiple gastric ulcers, extensive GI 
    bleeding, and a cardiovascular birth defect that is a known adverse 
    effect of NSAID's. A 7-day-old breast-fed infant boy developed symptoms 
    associated with naproxen toxicity after his mother was treated with 1 g 
    naproxen and 800 mg of antibiotic for 3 days.(5)
    
    C. Level for Regulation
        The Commission is issuing a rule that requires special packaging 
    for OTC naproxen products containing the equivalent of 250 mg or more 
    naproxen per retail package. This level is based on established 
    guidelines for medical treatment following ingestion of NSAID's. It is 
    also based on a known toxic dose of naproxen, reduced by a safety 
    factor to account for biologic variability. (5 and 10)
        The precise toxic level of naproxen in humans is unknown. However, 
    guidelines established for pediatric NSAID overdose suggest medical 
    treatment for young children who ingest five times the maximum single 
    therapeutic dose. Therefore, the dose of naproxen requiring medical 
    intervention would be 5 mg/kg (the maximum single therapeutic dose) 
    times five, or 25 mg/kg. In a 10-kg child, this is equivalent to 250 mg 
    of naproxen, or one and one-quarter OTC tablets. (5 and 10)
        The same level results when calculated using a different approach. 
    When treatment information for poisonings is unavailable, the staff 
    typically uses a known toxic dose divided by a safety factor of 10 to 
    determine the level for regulation. Applying this factor to the 250 mg/
    kg dose of naproxen that caused life-threatening acidosis in a 15-year-
    old girl also results in a level of 25 mg/kg, or 250 mg in a 10-kg 
    child. (5 and 10)
        The Commission emphasizes that the 250 mg level applies to the 
    total amount of the product sold at retail in a single package, 
    regardless of whether the contents of the package are loose or also 
    packaged in non child-resistant envelopes or strip packages. In 
    administering the PPPA regulations for acetaminophen, iron-containing 
    preparations and ibuprofen, the Commission has encountered instances in 
    which product manufacturers package one or two tablets in individual 
    envelopes for sale to consumers seeking medication for immediate use. 
    Because each envelope is an individual retail unit and contains less 
    than the amount of ibuprofen or acetaminophen subject to regulation, 
    the envelopes need not be child-resistant.
        However, the Commission has also encountered instances in which 
    repackagers have packaged multiple non child-resistant envelopes of 
    acetaminophen, iron, or ibuprofen in outer blister packs or clamshell 
    packages that contain a total quantity of these products in excess of 
    the regulatory minimum, but that are also not child-resistant. We note 
    that the regulatory minimum contained in a ``single package'' refers to 
    the total contents of the retail package, not the contents of each 
    individual envelope. To avoid future confusion on this issue, this 
    regulation refers to the contents of the ``retail package'' to clarify 
    that whether a product requires child-resistant packaging is based on 
    the total amount of naproxen packaged for sale at retail.
    
    D. Comments on the Proposed Rule
    
        The Commission received four comments responding to the proposed 
    rule. These came from the American Society of Health-System 
    Pharmacists, the National Association of Pediatric Nurse Associates and 
    Practitioners, and two groups of university students. All agreed that 
    the Commission should require CR packaging for naproxen. In addition, 
    the students argued for an effective date shorter than the 180-day 
    period proposed by the Commission. One group of students advocated a 
    90-day effective date. The argument for the shorter date was that the 
    companies with exclusive marketing rights are voluntarily using CR 
    packaging now.
        The Commission does not agree that a shorter effective date is 
    necessary. In general, the PPPA requires at least 180 days before a 
    regulation takes effect. 15 U.S.C. 1471n. As explained in section F 
    below, the Commission does not believe that a shorter period is 
    justified in this case.
    
    E. Statutory Considerations
    
    1. Hazard to Children
    
        As noted above, the toxicity data concerning children's ingestion 
    of naproxen sodium demonstrate that this compound can cause serious 
    illness and injury to children. Moreover, the preparations are readily 
    available to children.(5) The Commission concludes that a regulation is 
    needed to ensure that products subject to the regulation will be placed 
    in CR packaging by any new manufacturers. In addition, the regulation 
    will enable the Commission to enforce the CR packaging requirement and 
    ensure that effective CR packaging is used.
        Pursuant to section 3(a) of the PPPA, 15 U.S.C. 1472(a), the 
    Commission finds that the degree and nature of the hazard to children 
    from ingesting naproxen is such that special packaging is required to 
    protect children from serious illness. The Commission bases this 
    finding on the toxic nature of these products, described above, and 
    their accessibility to children in the home.
    
    2. Technical Feasibility, Practicability, and Appropriateness
    
        In issuing a standard for special packaging under the PPPA, the 
    Commission is required to find that the special packaging is 
    ``technically feasible, practicable, and appropriate.'' 15 U.S.C. 
    1472(a)(2). Technical feasibility may be found when technology exists 
    or can be readily developed and implemented by the effective date to 
    produce packaging that conforms to the standards. Practicability means 
    that special packaging complying with the standards can utilize modern 
    mass production and assembly line techniques. Packaging is appropriate 
    when complying packaging will adequately protect the integrity of the 
    substance and not interfere with its intended storage or use. (9)
        The current marketers of OTC naproxen use packaging that not only 
    is child resistant, but also is easier for adult consumers to open. 
    Therefore, the Commission concludes that CR packaging for naproxen is 
    technically feasible, practicable, and appropriate.
    
    3. Other Considerations
    
        In establishing a special packaging standard under the PPPA, the 
    Commission must consider the following:
        a. The reasonableness of the standard;
        b. Available scientific, medical, and engineering data concerning 
    special packaging and concerning childhood accidental ingestions, 
    illness, and injury caused by household substances; 
    
    [[Page 38674]]
    
        c. The manufacturing practices of industries affected by the PPPA; 
    and
        d. The nature and use of the household substance. 15 U.S.C. 
    1472(b).
        The Commission has considered these items with respect to the 
    various determinations made in this notice, and finds no reason to 
    conclude that the rule is unreasonable.
    
    F. Effective Date
    
        The PPPA provides that no regulation shall take effect sooner than 
    180 days or later than one year from the date such regulation is 
    issued, except that, for good cause, the Commission may establish an 
    earlier effective date if it determines an earlier date to be in the 
    public interest. 15 U.S.C. 1471n.
        The Commission does not believe that a shorter effective date is 
    necessary to protect the public interest. Naproxen is currently sold in 
    CR packaging by the companies that have exclusive marketing rights 
    until January 11, 1997. The Commission does not have any indication 
    that significant quantities of naproxen will be marketed in non-CR 
    packaging before a 180 day effective date, with the possible exception 
    of a single size non-CR package as allowed under the PPPA. Thus, the 
    Commission finds that a 180 day effective date is consistent with the 
    public interest. The final rule will apply to products that are 
    packaged on or after the effective date.
    
    G. Regulatory Flexibility Act Certification
    
        When an agency undertakes a rulemaking proceeding, the Regulatory 
    Flexibility Act, 5 U.S.C. 601 et seq., generally requires the agency to 
    prepare proposed and final regulatory flexibility analyses describing 
    the impact of the rule on small businesses and other small entities. 
    Section 605 of the Act provides that an agency is not required to 
    prepare a regulatory flexibility analysis if the head of an agency 
    certifies that the rule will not have a significant economic impact on 
    a substantial number of small entities.
        For the proposed rule, the Commission's Directorate for Economics 
    prepared a preliminary economic assessment of a rule to require special 
    packaging for naproxen preparations with 250 mg or more of naproxen in 
    a single package. Based on this assessment, the Commission concluded 
    that such a requirement would not have a significant impact on a 
    substantial number of small businesses or other small entities because 
    the current marketers of naproxen are already using CR packaging and 
    have sole marketing rights for 3 years. Furthermore, the relatively low 
    costs of CR packages should not be an entry burden for future 
    marketers. The Commission received no comments on its preliminary 
    analysis and is not aware of any changes that would affect the 
    Commission's previous conclusion. Thus, the Commission concludes that 
    the rule to require special packaging for naproxen preparations having 
    250 mg or more of naproxen would not have any significant economic 
    effect on a substantial number of small entities. (8)
    
    H. Environmental Considerations
    
        Pursuant to the National Environmental Policy Act, and in 
    accordance with the Council on Environmental Quality regulations and 
    CPSC procedures for environmental review, the Commission has assessed 
    the possible environmental effects associated with the PPPA 
    requirements for naproxen preparations.
        The Commission's regulations state that rules requiring special 
    packaging for consumer products normally have little or no potential 
    for affecting the human environment. 16 CFR 1021.5(c)(3). In connection 
    with the proposed rule, the Commission determined that CR packages for 
    naproxen preparations would have no significant effects on the 
    environment. The Commission is unaware of any developments to change 
    this preliminary assessment. Therefore, because the rule would have no 
    adverse effect on the environment, neither an environmental assessment 
    nor an environmental impact statement is required. (8)
    
    List of Subjects in 16 CFR Part 1700
    
        Consumer protection, Drugs, Infants and children, Packaging and 
    containers, Poison prevention, Toxic substances.
    
        For the reasons given above, 16 CFR part 1700 is amended as 
    follows:
    
    PART 1700--[AMENDED]
    
        1. The authority citation for part 1700 continues to read as 
    follows:
    
        Authority: Pub. L. 91-601, secs. 1-9, 84 Stat. 1670-74, 15 
    U.S.C. 1471-76. Secs 1700.1 and 1700.14 also issued under Pub. L. 
    92-573, sec. 30(a), 88 Stat. 1231. 15 U.S.C. 2079(a).
    
        2. Section 1700.14 is amended by republishing paragraph (a) 
    introductory text and adding new paragraph (a)(25), to read as follows:
    
    
    Sec. 1700.14  Substances requiring special packaging.
    
        (a) Substances. The Commission has determined that the degree or 
    nature of the hazard to children in the availability of the following 
    substances, by reason of their packaging, is such that special 
    packaging is required to protect children from serious personal injury 
    or serious illness resulting from handling, using, or ingesting such 
    substances, and the special packaging herein required is technically 
    feasible, practicable, and appropriate for these substances:
    * * * * *
        (25) Naproxen. Naproxen preparations for human use and containing 
    the equivalent of 250 mg or more of naproxen in a single retail package 
    shall be packaged in accordance with the provisions of Sec. 1700.15 
    (a), (b), and (c).
    
        Dated: July 24, 1995.
    Sadye E. Dunn,
    Secretary, Consumer Product Safety Commission.
    
    List of Relevant Documents
    
    (Note. This list of relevant documents will not be printed in the 
    Code of Federal Regulations.)
    
        1. Vale, J.A. and Meredith, T.J., Acute poisoning due to non-
    steroidal anti-inflammatory drugs: clinical features and management. 
    Medical Toxicology 1:12-31, 1986.
        2. Memorandum from Terry Kissinger, Ph.D., EPHA, to Jacqueline 
    Ferrante, Ph.D., HSPS, ``Injury Data on Naproxen and Ibuprofen for 
    the 1980-1993 Period,'' May 27, 1994.
        3. Memorandum from Charles Wilbur, HSPS, to Jacqueline Ferrante, 
    Ph.D., HSPS, ``Technical Feasibility, Practicability, and 
    Appropriateness Determination for the Proposal to Require Child-
    Resistant Packaging for OTC Preparations Containing Naproxen,'' June 
    7, 1994.
        4. Memorandum from Marcia P. Robins, ECSS, to Jacqueline 
    Ferrante, Ph.D., HSPS, ``Preliminary Assessment of Economic and 
    Environmental Effects of a Proposal to Require Child-Resistant 
    Packaging,'' September 28, 1994.
        5. Memorandum from Sandra Inkster, Ph.D., HSHE, to Jacqueline 
    Ferrante, Ph.D., HSPS, ``Review of Naproxen Toxicity,'' July 17, 
    1994.
        6. Briefing memorandum from Jacqueline Ferrante, Ph.D., HSPS, to 
    the Commission, ``Proposed Special Packaging Standard for 
    Naproxen,'' September 29, 1994.
        7. Memorandum from Terry Kissinger, Ph.D., EPHA, to Jacqueline 
    Ferrante, Ph.D., HSPS, ``Update of Injury Data Involving Naproxen 
    and Ibuprofen,'' May 4, 1995.
        8. Memorandum from Marcia P. Robins, ECSS, to Jacqueline 
    Ferrante, Ph.D., HSPS, ``Final Regulatory Flexibility Act Analysis: 
    Child-Resistant Packaging for OTC Packages Containing 250 mg or more 
    of Naproxen,'' June 12, 1995.
        9. Memorandum from Charles Wilbur, HSPS, to Jacqueline Ferrante, 
    Ph.D., HSPS, ``Technical Feasibility, Practicability, and 
    Appropriateness Determination for the Final Rule to Require Child-
    Resistant Packaging for OTC Preparations Containing Naproxen,'' May 
    4, 1995. 
    
    [[Page 38675]]
    
        10. Briefing memorandum from Jacqueline Ferrante, Ph.D., HSPS, 
    to the Commission, ``Final Special Packaging Standard for 
    Naproxen,'' June 29, 1995.
    
    [FR Doc. 95-18504 Filed 7-27-95; 8:45 am]
    BILLING CODE 6355-01-P
    
    

Document Information

Effective Date:
2/6/1996
Published:
07/28/1995
Department:
Consumer Product Safety Commission
Entry Type:
Rule
Action:
Final rule.
Document Number:
95-18504
Dates:
The rule will become effective on February 6, 1996, and applies to naproxen preparations packaged on or after that date.
Pages:
38671-38675 (5 pages)
PDF File:
95-18504.pdf
CFR: (1)
16 CFR 1700.14