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From the Center for Devices and Radio- edical devices play a critical role in the lives and health of
logical Health, Food and Drug Adminis- millions of people worldwide. From everyday household items such as
tration, Silver Spring, MD. Address reprint
requests to Dr. Faris at the Center for De- oral thermometers to complex implantables such as deep-brain stimulators,
vices and Radiological Health, Food and patients and the general public rely on regulators to ensure that legally marketed
Drug Administration, 10903 New Hamp- medical devices have been shown to be safe and effective. Regulators expect data
shire Ave., 66-1682, Silver Spring, MD
20993, or at owen.faris@fda.hhs.gov. that are provided by device manufacturers to reflect the risk profile of the device.
For example, a device that most consumers can use without instruction, such as
N Engl J Med 2017;376:1350-7.
DOI: 10.1056/NEJMra1512592 reading glasses or elastic bandages, will require a very different evidence profile
Copyright 2017 Massachusetts Medical Society. than a device, such a portable ventilator, on which a patients life could depend.
Although devices are manufactured and marketed worldwide, this review focuses
on the strategy used by the U.S. Food and Drug Administration (FDA); special at-
tention is paid to the ways in which the evaluation of devices is distinct from that
of drugs. The entry of the FDA into the device arena was largely prompted by
several deaths and claims by an estimated 200,000 women that they were harmed
by the use of the Dalkon Shield, an intrauterine device (IUD) intended for contra-
ception. Women who used this device had five times the risk of pelvic inflamma-
tory disease as those using other IUD types, and several had uterine rupture or
septic pregnancies. Congress responded by passing the Medical Device Amend-
ments to the Food, Drug, and Cosmetic Act.1,2 These 1976 amendments established
a risk-based regulatory framework for evaluating medical devices in the United
States. Under this framework, the requirements that a device must meet to be law-
fully marketed depend on the risk classification of the product, with risk being
assessed as the potential for the device to present harm to the patient, including in
circumstances in which the device could malfunction or be used improperly.
Most low-risk devices, which present a minimal potential for harm to the user
(e.g., prescription eyeglasses, elastic bandages, and dental floss), are exempt from
FDA review before marketing, although manufacturers are still subject to certain
requirements. Manufacturers of most moderate-risk devices, such as condoms,
nebulizers, and blood glucose meters, generally need to show that their device is
substantially equivalent to another device already cleared by the FDA; in most
cases, this is achieved through bench (nonclinical laboratory) testing and without
clinical data.3 Higher-risk and innovative moderate-risk devices (approximately 4%
of all medical devices), which are the primary focus of this article, generally require
clinical evidence to show that the benefits of a technology outweigh its risks. Such
information is often critical not only for showing the safety and effectiveness of
the device but also for informing clinicians and patients about the preferred use
of the device in the marketed clinical setting. This article seeks to illustrate the
broad array of trial designs and clinical data sources that may be used to support
the safety and effectiveness of these critical products.
* In addition to the considerations described in the table, modeling data, registry data, and electronic-health-record data may reduce or re-
place requirements for clinical-trial data.
Given that heating would be most likely to oc- In the future, computer-based modeling may
cur in rare, worst-case conditions that would be change the way we think about device validation
difficult to predict clinically, relying on a clinical in other ways, allowing for much smaller clinical
trial as the primary validation of safety would have trials, or may change the way we think about
required many thousands of participants. Instead, running trials, in that some clinical information
FDA approval rested primarily on robust math- may be derived from simulations. Device manu-
ematical modeling that was validated with bench facturers are increasingly developing stochastic
studies and studies in animals. The modeling data, engineering models that may have the capability
which simulated thousands of combinations of to simulate clinical outcomes for virtual patients
device and patient geometries and MRI scan condi- by modeling a relationship between bench out-
tions, provided strong evidence that even worst- comes and clinical end points. If it can be shown
case conditions would be very unlikely to result in that these virtual patients are similar, in a pre-
detrimental lead heating. Owing to the novelty of cisely defined way, to real patients, future trials
this approach, Medtronic conducted a confirma- may be able to rely partially on virtual-patient
tory unblinded clinical trial in which 464 partici- information, thus lessening the burden of enroll-
pants with an indication to receive a pacemaker ing additional real patients. The Medical Device
were implanted with the device and randomly as- Innovation Consortium, a publicprivate partner-
signed to receive a protocol-defined MRI or not. ship among industry, nonprofit organizations,
As expected from the modeling results, the and federal agencies (including the FDA), is ex-
clinical trial showed no evidence of clinically ploring ways to facilitate how computer model-
relevant MRI-induced lead heating, as assessed ing and simulation may become a validated and
by changes in the pacing capture threshold. The accepted part of a clinical trial.18 For devices for
clinical trial was not focused on the primary which some uncertainty remains after such pre-
safety and effectiveness aspects of the device marketing studies, postapproval registries may
that is, whether the device paces and senses be a helpful tool to provide additional confirma-
appropriately (independent of MRI exposure) and tion of device performance, as discussed below.
maintains its mechanical integrity. Given FDA
and industry experience with basic pacemaker Example 2 Use of Evidence from Clinical
technology, these elements were leveraged from Experience
similar approved devices from the same manu- Registry studies have the potential to play a criti-
facturer and confirmed with standard electrical cal role in device-approval decisions as a source
and mechanical bench testing. Given that the new of evidence from clinical experience (real-world
lead design had the potential to affect lead dura- clinical data). An example is the Transcatheter
bility, a 5-year study of lead performance involv- Valve Therapy (TVT) Registry, which is managed
ing 1810 patients was required after approval. by the Society of Thoracic Surgeons and the
This approach of gathering a modest clinical American College of Cardiology.19,20 This registry
data set to confirm robust bench and modeling collects data on nearly all transcatheter aortic-
data has been used to support a number of sub- valve replacement (TAVR) procedures performed
sequent approvals for pacemakers and ICDs that in the United States in order to study the short-
allow MRI. As our experience with relying on term and intermediate-term outcomes of such
modeling as a primary data set grows, premarket- procedures. Data quality is maintained through
ing clinical studies for next-generation devices both an automated data-assessment system and an
may not even be necessary. audit program.21 The SAPIEN transcatheter heart
In this context, patients who participate in a valve (THV) from Edwards Lifesciences (Fig.2)
postapproval study would be informed about the was initially approved, on the basis of the results
reasons for the study as part of the consent pro- of a 358-patient randomized, controlled trial,22
cess for participation. However, as an approved for transfemoral insertion in patients considered
device, the pacemaker was considered to have to be inoperable for open-heart surgery and sub-
already shown a reasonable assurance of safety sequently, on the basis of a second, 699-patient
and effectiveness sufficient to support approval, randomized, controlled trial,23 for transfemoral
and there is not an expectation of specific infor- or transapical insertion in high-risk candidates
mation to be provided to the patient regarding for open-heart surgery.
the fact that the device is new. After approval, clinical data from the TVT
Table 2. Intervertebral Body Spinal Fusion Devices (Spinal Cages) Historical Perspective.
Device Trial or
Data Requirement Rationale Example
Extensive (full) The original devices, which are permanent implants, Approval of the original devices was based on prospective trials
clinical trial were considered to be high risk. Unknown safety that generally studied fusion in patients with degenerative spi-
and effectiveness profiles of these devices and nal pathologic features at one or two adjacent spinal levels, as
lack of previous-generation devices necessitated compared with standard-of-care treatments. Today, prospec-
prospective clinical studies. tive trials are still generally expected for new spinal cages that
combine the use of a drug or biologic component, because
the risk profile of those devices may be complex.
Limited clinical Today, we have a much better understanding of the Manufacturers have leveraged existing clinical data (e.g., literature
information risk profile for spinal cages that do not include a and clinical experience) to support expansions to the indica-
new drug or biologic component, and the FDA tions for use. For example, the indications for intervertebral
now considers these devices to be moderate risk. body spinal fusion devices approved for use with autograft
Generally, a manufacturer can show that a new bone graft have been expanded to allograft bone graft (i.e., can-
spinal cage is substantially equivalent to a cur- cellous or corticocancellous bone) on the basis of such data.
rently marketed device without conducting a new
clinical trial. However, some clinical data may be
required to support a new element of the device
design or a change to the indicated population.
Information with In some cases, minor changes and iterative improve- Today, minor changes to the device designs, such as anatomical
respect to ments in a device that is fundamentally well under- footprint and implant orientation, can be supported through
previous- stood can be supported solely through nonclinical nonclinical testing. Some changes to the fixation mechanism
generation testing and experience with similar devices. have been based on information with respect to previous-
devices generation devices in conjunction with mechanical testing
that shows that the new device performs equivalently.
Registry and other sources indicated that a con- also serve as the basis for statistically derived ob-
siderable number of inoperable patients who did jective performance criteria. Future devices may
not have suitable anatomy for transfemoral inser- be compared with those criteria to show accept-
tion could benefit from TAVR through alternative able clinical performance, thereby eliminating the
access (i.e., nontransfemoral access). In 2013, need for a control group. In the longer term, we
Edwards Lifesciences submitted deidentified data expect to see randomized studies embedded with-
from the TVT Registry, along with data from in registries, leveraging that existing infrastruc-
peer-reviewed medical journals and THV regis- ture and minimizing the burden for study start-up
tries in Europe, to support an expansion of the and execution. For example, a next-generation un-
approved indication by removing references to approved device that requires a clinical trial to
specific anatomical access points. The data in- support approval could be studied under a proto-
cluded several thousand procedures performed col designed to have its data requirements aligned
with the use of alternative access points and with an existing registry that gathers high-quality
clearly supported the conclusion that there were outcomes data for approved devices of that type.
no adverse effects of the use of THVs on either Investigational sites already participating in the
device performance or the overall benefitrisk registry could leverage their experience and exist-
profile on the basis of the access point. Use of ing processes to easily participate in the premar-
this extensive real-world clinical data was in- keting trial. Such an approach could simplify
strumental in allowing the FDA to rapidly ap- data gathering, auditing, and analysis by relying
prove this label expansion, avoiding the time on methods already in place for the registry.
delay of a randomized, controlled trial for this
substantial group of patients with an otherwise
F u t ur e Ch a l l enge s
fatal disease and an unmet clinical need.24 a nd Opp or t uni t ie s
High-quality registries and electronic health
records hold enormous potential to serve as effi- The most important factor for successful market-
cient tools to answer premarketing and post- ing approval, practitioner adoption, and safe use
marketing questions. For example, registry data of higher-risk and innovative moderate-risk medi-
have been used as historical controls and have cal devices is robust clinical evidence. However,
also allowed the FDA to reduce or replace post- the most appropriate, least burdensome paths for
approval study requirements. Registry data may gathering clinical data to support marketing ap-
LEFT
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IVC
proval for medical devices are as varied as the port U.S. marketing approval. The FDA works with
devices themselves. Because the U.S. regulatory sponsors to develop a clinical trial design and
standard for approval is reasonable assurance of statistical analysis approach that is best tailored
safety and effectiveness whereas most other coun- to the technology, the medical need being ad-
tries use a safety and performance standard, gen- dressed, the feasibility of data collection, and
erally more clinical data must be collected and the benefits and risks to affected patients. In
larger clinical studies must be conducted to sup- some cases, the FDA expects and is provided
Valve compressed
on balloon (about
the width of a pencil)
with clinical data from trials that are similar in The FDA has taken a number of actions to
design to a gold standard drug trial large, expedite the safe initiation of clinical trials in
blinded, randomized, controlled trials. For many the United States and to collaborate with trial
devices, however, such designs are impractical sponsors, the professionalprovider community,
or unnecessary. Often, the clinical data are con- and patients to design better trials ones that
firmatory to extensive bench studies, studies in are robust, reasonable, and efficient. However,
animals, and modeling studies that provide es- to make well-informed decisions, practitioners,
sential information on safety and effectiveness. patients, and payers often need additional data
The FDA also recognizes that, for some tech- on the benefitrisk profile of the device as com-
nologies intended to address important unmet pared with available alternatives, as well as a
needs, it may be appropriate to accept a greater deeper understanding of the device derived from
degree of uncertainty in order to expedite the greater patient exposure in clinical practice. Be-
availability of the device for patients, relying on cause generating such evidence before market-
postmarketing data to provide greater certainty ing may inappropriately delay patient access to
about the safety or effectiveness of a device. This important technologies in some cases or may
is the concept behind the FDA Expedited Access not be within FDA authority to require, it is
Pathway for breakthrough medical devices.25 critical that other stakeholders, such as the in-
For other devices that are already available in dustry and the practitioner communities, sup-
other geographic locations or for other indica- port and provide additional evidence in the form
tions, there may be existing data from regis- of trials, registries, or analyses of data from
tries or studies outside the United States health records. This challenge is not unique to
available to support approval. Advancements in the United States. Strategic investments and col-
the science of patient input are also needed to laboration to establish a medical-device national
help ensure that clinical trials are designed to evaluation system that are currently under way
assess what matters most to patients and to fa- could improve the efficiency, timeliness, and
cilitate patient enrollment in studies. In this comprehensiveness of postmarketing evidence
spirit, we have been working with patient groups generation.28-30 Such partnerships on a national
and other groups to foster the evaluation of pa- and an international level are needed to ensure
tient preferences for benefits and acceptability of that appropriate data collection continues through-
risks of devices for particular diseases to inform out the life cycle of a medical device as part of a
device-approval decisions. In the future, we see learning health care system so that patients and
such data generation helping to inform the de- practitioners are fully informed as to how best
velopment of medical-device clinical trials and to use these technologies to support improved
becoming a routine part of those trials.26,27 patient health and quality of life.
Disclosure forms provided by the authors are available with Changfu Wu, and Xiaolin Zheng; Anne M. Gillis, M.D., of the
the full text of this article at NEJM.org. Libin Cardiovascular Institute of Alberta and Alfred E. Buxton,
We thank the following FDA scientists for their contributions M.D., of Beth Israel Deaconess Medical Center in Boston for
to the information provided in this article: Martha Betz, Robert advice regarding the information presented in Figure1; and
Califf, Erin Cutts, Vincent Devlin, Andrew Farb, Steve Kurtzman, Ryan Mathre and Melanie Vincent of Medtronic and Sylvia
John Laschinger, Bernard Lepri, Herbert Lerner, Mark Melkerson, Wrobel of Edwards Lifesciences for providing images to sup-
Pablo Morales, Caroline Rhim, Laura Thompson, Ingmar Viohl, port this article.
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