FDA Regulation of Cannabidiol (CBD)

Consumer Products: Overview and

Considerations for Congress

Agata Dabrowska, Coordinator

Analyst in Health Policy

Victoria R. Green
Analyst in Health Policy

Renée Johnson
Specialist in Agricultural Policy

Lisa N. Sacco
Analyst in Illicit Drugs and Crime Policy

January 21, 2020

Congressional Research Service

7-....
www.crs.gov
R46189
 SUMMARY

R46189
FDA Regulation of Cannabidiol (CBD)
January 21, 2020
Consumer Products: Overview and Agata Dabrowska,
Considerations for Congress Coordinator
Analyst in Health Policy
Cannabidiol (CBD), a compound in the Cannabis sativa plant, has been promoted as a treatment [email protected]
for a range of conditions, including epileptic seizures, post-traumatic stress disorder, anxiety, Victoria R. Green
inflammation, and sleeplessness. However, limited scientific evidence is available to substantiate Analyst in Health Policy
or disprove the efficacy of CBD in treating these conditions. In the United States, CBD is [email protected]
marketed in food and beverages, dietary supplements, cosmetics, and tobacco products such as
electronic nicotine delivery systems (ENDS)—products that are primarily regulated by the Food Renée Johnson
and Drug Administration (FDA) under the Federal Food, Drug, and Cosmetic Act (FFDCA, 21 Specialist in Agricultural
Policy
U.S.C. §§301 et seq.). CBD is also the active ingredient in Epidiolex, an FDA-approved
[email protected]
pharmaceutical drug.
Lisa N. Sacco
The Regulation of Marijuana and Hemp Analyst in Illicit Drugs and
Crime Policy
CBD is derived from the Cannabis sativa plant (commonly referred to as cannabis), which [email protected]
includes both hemp and marijuana. Marijuana is a Schedule I controlled substance under the
Controlled Substances Act (CSA, 21 U.S.C. §§802 et seq.) and is regulated by the Drug For a copy of the full report,
Enforcement Administration (DEA). Schedule I substances are subject to the most severe CSA please call 7-.... or visit
restrictions and penalties. Except for purposes of federally approved research, it is a federal crime www.crs.gov.
to grow, sell, or possess marijuana.

Until December 2018, hemp was included in the CSA definition of marijuana and was thus subject to the same restrictions.
Legislative changes enacted as part of the 2018 farm bill (Agriculture Improvement Act of 2018, P.L. 115-334) removed
longstanding federal restrictions on the cultivation of hemp. No longer subject to regulation and oversight as a controlled
substance by DEA, hemp production is now subject to regulation and oversight as an agricultural commodity by the U.S.
Department of Agriculture (USDA). The 2018 farm bill expanded the statutory definition of what constitutes hemp to include
“all derivatives, extracts, cannabinoids, isomers, acids, salts, and salts of isomers,” as long as it contains no more than a 0.3%
concentration of delta-9 tetrahydrocannabinol (THC; 7 U.S.C. §1639o). All non-hemp cannabis and cannabis derivatives—
including marijuana-derived CBD—are considered to be marijuana under the CSA and remain regulated by DEA.

Production and Marketing of Hemp Products

Legislative changes related to hemp enacted as part of the 2018 farm bill were widely expected to generate additional market
opportunities for the U.S. hemp market. However, the farm bill explicitly preserved FDA’s authority under the FFDCA and
Section 351 of the Public Health Service Act (PHSA, 42 U.S.C. §262), including for hemp-derived products. Following
enactment of the farm bill, in a December 2018 statement, FDA stated that it is “unlawful under the [FFDCA] to introduce
food containing added CBD or THC into interstate commerce, or to market CBD or THC products as, or in, dietary
supplements, regardless of whether the substances are hemp-derived.” The agency has maintained this view in subsequent
communications.

Despite FDA’s determination, CBD continues to be widely marketed and sold in both food and dietary supplements in the
United States. To date, FDA has generally prioritized enforcement against companies and products that pose the greatest risk
to consumers—for example, CBD products claiming to treat Alzheimer’s or stop cancer cell growth.

In 2014, total U.S. CBD sales were a reported $108 million. In 2018, more than 1,000 companies produced and marketed
CBD for the U.S. market, and U.S. CBD sales were estimated at $534 million, according to the Hemp Business Journal. That
dollar amount is projected to exceed $1 billion in 2020 and to reach nearly $2 billion in 2022. This amount includes sales
from hemp-derived CBD, marijuana-derived CBD (currently a Schedule I controlled substance), and pharmaceutical CBD
(currently only Epidiolex).

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

Congressional Interest
Congress has expressed concern about the proliferation of CBD products marketed in violation of federal law and has called
on FDA to provide guidance on lawful pathways for marketing hemp-derived CBD in food and dietary supplements. In
absence of a regulatory framework for hemp-derived CBD, in the explanatory statement accompanying the FY2020 enacted
appropriation, Congress directed FDA to issue a policy of enforcement discretion with respect to CBD products that meet the
statutory definition of hemp. In addition to the activities directed in the explanatory statement, Congress could also take
further legislative action in the future, such as requiring FDA to issue a regulation, under its FFDCA authorities, expressly
permitting CBD that meets the definition of hemp to be used as a food additive or dietary supplement. Congress also could
amend the FFDCA provisions that FDA has identified as restricting marketing of CBD in food and dietary supplements. In
determining whether a legislative approach is appropriate, Congress may consider the potential for adverse health effects and
other unintended consequences.

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Contents
Background ..................................................................................................................................... 1
FDA Regulation of CBD Products .................................................................................................. 4
Pharmaceutical Drugs ............................................................................................................... 5
Foods and Food Additives ......................................................................................................... 7
Animal Food and Feed Considerations ............................................................................... 8
Dietary Supplements ............................................................................................................... 10
Cosmetics and Personal Care Products ................................................................................... 12
Tobacco Products .................................................................................................................... 13
Alcohol Beverage Products ..................................................................................................... 15
Therapeutic Uses of CBD and Research Considerations .............................................................. 17
Considerations for Congress: Marketing of CBD ......................................................................... 19
What Are the Circumstances Under Which FDA-Regulated Products Containing
CBD Can Be Marketed Currently? ...................................................................................... 19
What Is the Current State of the CBD Market?....................................................................... 20
What Could Congress Do to Allow CBD to Be Marketed as a Food Additive or
Dietary Supplement? ............................................................................................................ 22

Figures
Figure 1. Cannabis sativa ................................................................................................................ 2
Figure 2. Products Derived from Cannabis ..................................................................................... 3
Figure 3. Total U.S. CBD Sales, by Channel................................................................................. 22

Tables
Table 1. Summary of Selected FDA Requirements, by CBD Product Type.................................. 14

Table B-1. Abbreviations Used in this Report ............................................................................... 28

Appendixes
Appendix A. Food Additive Petition Process and GRAS Notification Submission ...................... 25
Appendix B. Abbreviations Used in this Report ........................................................................... 28

Contacts
Author Contact Information .......................................................................................................... 28

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

Background
Cannabidiol (CBD), a compound in the Cannabis sativa plant, has been promoted as a treatment
for a range of conditions, including epileptic seizures, post-traumatic stress disorder, anxiety,
inflammation, and sleeplessness. However, limited scientific evidence exists to substantiate or
disprove the efficacy of CBD in treating these conditions. In the United States, CBD is being
marketed in food and beverages, dietary supplements, cosmetics, and tobacco products such as
electronic nicotine delivery systems (ENDS, the overarching term encompassing electronic
cigarettes)—products that are primarily regulated by the Food and Drug Administration (FDA)
under the Federal Food, Drug, and Cosmetic Act (FFDCA). CBD is also the active ingredient in
Epidiolex, an FDA-approved pharmaceutical drug used to treat seizures associated with two rare
and severe forms of epilepsy.
CBD is derived from the Cannabis sativa plant (commonly referred to as cannabis), which
includes both hemp and marijuana (defined further below). CBD and tetrahydrocannabinol (THC)
are thought to be the most abundant cannabinoids in the cannabis plant and are among the most
researched cannabinoids for their potential medical value.1 THC—a psychoactive2 compound—is
found at high levels in marijuana and low levels in hemp (see Figure 1).3

1 Cannabinoids are the unique chemical compounds found in the plant, which are known to exhibit a range of
psychological and physiological effects.
2 According to the National Institute on Drug Abuse (NIDA) within the National Institutes of Health (NIH),

psychoactive is defined as “having a specific effect on the brain,” https://www.drugabuse.gov/publications/media-

guide/glossary. The World Health Organization (WHO) defines psychoactive substances as “substances that, when
taken in or administered into one’s system, affect mental processes, e.g. cognition or affect. This term and its
equivalent, psychotropic drug, are the most neutral and descriptive term for the whole class of substances, licit and
illicit, of interest to drug policy. ‘Psychoactive’ does not necessarily imply dependence-producing, and in common
parlance, the term is often left unstated, as in ‘drug use’ or ‘substance abuse,’” https://www.who.int/substance_abuse/
terminology/psychoactive_substances/en/.
3 Generally, 1% THC concentration is considered the threshold for cannabis to be considered non-psychotropic;

marijuana plants often have a THC level of 5% or more. The threshold for differentiating between hemp and marijuana
in federal law is 0.3% delta-9 THC. For more background information, see CRS Report R44742, Defining Hemp: A
Fact Sheet.

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Figure 1. Cannabis sativa

Source: Created by CRS.

Notes: This figure is intended to provide a high-level illustration of the relationship between cannabis, marijuana,
and hemp, per the statutory distinction in the Controlled Substances Act (CSA).

CBD, on the other hand, is generally considered to be nonpsychoactive and may be derived from
either hemp or marijuana. As described below, this distinction is relevant for purposes of
oversight by the Drug Enforcement Administration (DEA), but generally not for FDA oversight.
FDA has stated that it “treats products containing cannabis or cannabis-derived compounds as it
does any other FDA-regulated products—meaning they’re subject to the same authorities and
requirements as FDA-regulated products containing any other [non-cannabis] substance.4 This is
true regardless of whether the cannabis or cannabis-derived compounds are classified as hemp
under [7 U.S.C. Section 1639o] as amended by the 2018 [f]arm [b]ill.”5 In contrast, the DEA does
not regulate cannabis or cannabis-derived compounds that meet the statutory definition of hemp.
Botanically, marijuana and hemp are from the same species of plant, Cannabis sativa, but from
different varieties or cultivars.6 Marijuana and hemp have separate definitions in U.S. law and are
subject to different statutory and regulatory requirements.
Marijuana (as defined in statute) generally refers to the cultivated plant used as a psychotropic
drug, either for medicinal or recreational purposes.7 Marijuana is a Schedule I controlled

4 Consistent with FDA’s language, this report uses the term substance instead of ingredient.
5 FDA, “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” Question #2,
https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-products-
including-cannabidiol-cbd#whatare.
6 Plant varieties and cultivars both refer to unique characteristic of a particular plant. For additional information, see

CRS Report R44742, Defining Hemp: A Fact Sheet. See also, “FDA and Cannabis: Research and Drug Approval
Process,” https://www.fda.gov/news-events/public-health-focus/fda-and-cannabis-research-and-drug-approval-process.
7 CSA §102(16) [21 U.S.C. §802(16)]. The CSA generally uses the spelling marihuana to refer to the cannabis plant

and its derivatives, while this report uses the more common spelling marijuana. As defined in statute, marijuana refers
to “all parts of the plant Cannabis sativa L., whether growing or not; the seeds thereof; the resin extracted from any part
of such plant; and every compound, manufacture, salt, derivative, mixture, or preparation of such plant, its seeds or
resin” but does not include “hemp, as defined in section 297A of the Agricultural Marketing Act of 1946; or the mature
stalks of such plant, fiber produced from such stalks, oil or cake made from the seeds of such plant, any other
compound, manufacture, salt, derivative, mixture, or preparation of such mature stalks (except the resin extracted
therefrom), fiber, oil, or cake, or the sterilized seed of such plant which is incapable of germination.”

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substance under the Controlled Substances Act (CSA)8 and is regulated by DEA. Schedule I
substances are subject to the most severe CSA restrictions and penalties; with exceptions for
federally approved research, it is a federal crime to grow, sell, or possess the drug. Thus, under
the CSA, the unauthorized manufacture, distribution, dispensation, and possession of marijuana
and its derivatives (including marijuana-derived CBD) are prohibited.9
Hemp (as defined in statute separately from marijuana), on the other hand, may be legally
cultivated under federal law, subject to oversight by the U.S. Department of Agriculture
(USDA).10 Hemp is generally grown for use in the production of a wide range of products,
including foods and beverages, personal care products, dietary supplements, fabrics and textiles,
paper, construction materials, and other manufactured and industrial goods (see Figure 2).

Figure 2. Products Derived from Cannabis

Source: Created by CRS.

Notes: While marijuana is cultivated to promote the development of flowering tops and leaves of psychoactive
cannabis plant varieties with elevated concentrations of THC, hemp is cultivated depending on its intended use
across three different crops: fiber, seeds, and flower. While not defined in statute, there are additional industry-
developed terms that are used to describe hemp extracts (e.g., full spectrum and broad spectrum). Because
these terms lack standardized definitions, they are not used in this report.

8 Title II of the Comprehensive Drug Abuse Prevention and Control Act of 1970, P.L. 91-513; 21 U.S.C. §801 et. seq.
9 For more information, see CRS Report R44782, The Marijuana Policy Gap and the Path Forward.
10 Section 297A of the Agricultural Marketing Act of 1946 (AMA; 7 U.S.C. §1639o), as amended by the 2018 farm

bill, defines hemp to mean “the plant Cannabis sativa L. and any part of that plant, including the seeds thereof and all
derivatives, extracts, cannabinoids, isomers, acids, salts, and salts of isomers, whether growing or not, with a delta-9
tetrahydrocannabinol concentration of not more than 0.3 percent on a dry weight basis.” Among the identified isomers
of THC, delta-9 THC is considered to be the dominant psychotropic compound in the cannabis plant. Other identified
isomers of THC present in cannabis include delta-8 THC, delta-1 THC, and delta-6 THC.

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Until December 2018, hemp was included in the CSA definition of marijuana and was thus
subject to the same restrictions as marijuana. The Agriculture Improvement Act of 2018 (2018
farm bill; P.L. 115-334) removed hemp and its derivatives (including hemp-derived CBD) from
the CSA definition of marijuana. As a result, hemp is no longer subject to regulation and
oversight as a controlled substance by DEA. Instead, hemp production is now subject to
regulation and oversight as an agricultural commodity by USDA. CBD and CBD-related products
that do not meet the statutory definition of hemp (in 7 U.S.C. §1639o) continue to be prohibited
(aside from lawful use for research purposes) under the CSA and remain regulated by DEA.

Related CRS Products

CRS In Focus IF11250, FDA Regulation of Cannabidiol (CBD) Products
CRS Report R44742, Defining Hemp: A Fact Sheet
CRS In Focus IF10391, Hemp-Derived Cannabidiol (CBD) and Related Hemp Extracts
CRS Report R44782, The Marijuana Policy Gap and the Path Forward
Congressional Distribution memo on cannabis extraction methods is available to
Congressional clients upon request

Changes enacted in the 2018 farm bill related to hemp were expected by many to generate
additional market opportunities for hemp-derived consumer products such as hemp-derived CBD.
However, the farm bill also explicitly preserved FDA’s authorities under the FFDCA and Section
351 of the Public Health Service Act, including for hemp-derived products.11 As mentioned
above, cannabis and cannabis-derived FDA-regulated products are subject to the same authorities
and requirements as FDA-regulated products—including pharmaceutical drugs, food, dietary
supplements, and cosmetics—containing any other substance (whether cannabis-derived or
otherwise). As described below, FDA has determined that it is unlawful to introduce food
containing added CBD into interstate commerce, or to market CBD as or in dietary
supplements.12 FDA has not made similar determinations for other FDA-regulated product
categories (pharmaceutical drugs, cosmetics, and tobacco products).

FDA Regulation of CBD Products

In the United States, CBD is the active ingredient in the prescription drug Epidiolex. CBD is also
being marketed in food and beverages, dietary supplements, cosmetics, and tobacco products
such as ENDS. Each of these product types is governed by different statutory and regulatory
requirements, primarily administered by FDA. The agency also shares regulatory authority with
other entities; for example, the Alcohol and Tobacco Tax and Trade Bureau (TTB), 13 with regard
to alcoholic beverages, and the Federal Trade Commission (FTC), with regard to the advertising
and promotion of certain CBD products. This section provides an overview of how FDA regulates
drugs, food, dietary supplements, cosmetics, and tobacco products, and the applicability of those

11 P.L. 115-334 §10113.

12 FDA, “Statement from FDA Commissioner Scott Gottlieb, M.D., on signing of the Agriculture Improvement Act and
the agency’s regulation of products containing cannabis and cannabis-derived compounds,” December 20, 2018,
https://www.fda.gov/news-events/press-announcements/statement-fda-commissioner-scott-gottlieb-md-signing-
agriculture-improvement-act-and-agencys. For additional information, see CRS In Focus IF11250, FDA Regulation of
Cannabidiol (CBD) Products.
13 Formerly part of the predecessor of the Bureau of Alcohol, Tobacco, Firearms and Explosives, TTB is part of the

U.S. Treasury. TTB does not regulate beverages formulated and sold on-site (e.g., cafés, distilleries, or breweries).

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requirements to products that contain CBD. Table 1 summarizes selected regulatory requirements
by CBD product type.

Pharmaceutical Drugs
FDA, under the FFDCA, regulates the safety and effectiveness of prescription and
nonprescription (over-the-counter, or OTC) drugs sold in the United States. Prescription drugs
require health practitioner supervision to be considered safe for use—due to drug toxicity,
potential harmful effect, or method of use—and may be dispensed only pursuant to a
prescription.14 In contrast, OTC drugs may be used without a prescriber’s authorization, provided
they have an acceptable safety margin, low potential for misuse or abuse, and are adequately
labeled so that consumers can self-diagnose the condition, self-select the medication, and self-
manage the condition.15 The statutory definition of the term drug includes “articles (other than
food) intended to affect the structure or any function of the body of man or other animals” and
“articles intended for use in the diagnosis, cure, mitigation, treatment, or prevention of disease in
man or other animals.”16 In general, a new drug may not be introduced into interstate commerce
without FDA approval.17
For purposes of new drug approval, except under very limited circumstances, FDA requires data
from clinical trials to provide evidence of a drug’s safety and effectiveness. Before testing in
humans—called clinical testing—the drug’s sponsor (usually its manufacturer) must file an
investigational new drug (IND) application with FDA. Once a manufacturer completes clinical
trials, it submits the results of those investigations, along with other information, to FDA in a new
drug application (NDA).18 In reviewing an NDA, FDA considers whether the drug is safe and
effective for its intended use; whether the proposed labeling is appropriate; and whether the
methods used to manufacture the drug and the controls used to maintain the drug’s quality are
adequate to preserve the drug’s identity, strength, quality, and purity.19 The NDA process can be
used to obtain approval of both prescription and OTC drugs. If a sponsor wants to transfer an
approved drug from prescription to OTC status (called an Rx-to-OTC switch), the sponsor must
submit to FDA an NDA (or a supplement20 to an NDA) providing data to support the switch.21 As
part of an NDA for an OTC drug, FDA may require the sponsor to conduct label comprehension
studies assessing the extent to which consumers understand the information in the proposed

14 FFDCA §503(b)(1) [21 U.S.C. §355(b)(1)].

15 FDA, “Regulatory Approaches for Prescription to OTC Switch,” July 2, 2015, https://www.fda.gov/media/93193/
download.
16 FFDCA §201(g)(1) [21 U.S.C. §321(g)(1)].

17 FFDCA §201(p) [21 U.S.C. §321(p)] defines the term “new drug” to mean a drug that “is not generally recognized,

among experts qualified by scientific training and experience to evaluate the safety and effectiveness of drugs, as safe
and effective for use under the conditions prescribed, recommended, or suggested in the labeling thereof” or “any drug
(except a new animal drug or an animal feed bearing or containing a new animal drug) the composition of which is
such that such drug, as a result of investigations to determine its safety and effectiveness for use under such conditions,
has become so recognized, but which has not, otherwise than in such investigations, been used to a material extent or
for a material time under such conditions.” FFDCA §505(a) provides that a new drug may not be introduced into
interstate commerce without an FDA-approved application in effect.
18 FFDCA §505(b) [21 U.S.C. §355(b)] and 21 C.F.R. §314.50.

19 For additional information, see CRS Report R41983, How FDA Approves Drugs and Regulates Their Safety and

Effectiveness.
20 A supplement refers to a request submitted to FDA to approve a change to an approved application. FFDCA §735(2)

[21 U.S.C. §379g(2)].

21 21 C.F.R. §310.200(b).

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labeling.22 FDA also may recommend that the sponsor conduct self-selection studies to assess
whether consumers can appropriately self-select a drug based on the information on the
labeling.23
In June 2018, FDA approved an NDA for the prescription drug Epidiolex, submitted by GW
Pharmaceuticals, for the treatment of seizures associated with Lennox-Gastaut syndrome and
Dravet syndrome in patients two years old and older.24 The active ingredient in Epidiolex is CBD,
although its mechanism of action—that is, the mechanism by which it exerts its anticonvulsant
effects—is not known.25 FDA approved Epidiolex in June 2018; at that time, the drug contained a
chemical constituent of marijuana (CBD) that was considered a Schedule I controlled substance.26
Therefore, it could not be marketed unless rescheduled by the DEA. Upon FDA approval,
Epidiolex no longer met the criteria for placement in Schedule I, as it now had an accepted
medical use in the United States.27 On September 28, 2018, based on a recommendation from
FDA, DEA issued an order placing FDA-approved drugs that contain cannabis-derived CBD and
no more than 0.1% THC in Schedule V.28 Epidiolex is available by prescription and only at
specialty pharmacies.29 It is the first (and only) pharmaceutical formulation of highly purified,
plant-derived CBD available in the United States.30 Because Epidiolex is designated as an orphan
drug (i.e., a drug that treats a rare disease or condition), it was awarded seven years of marketing
exclusivity upon approval.31 This means that FDA cannot approve an NDA for the same drug—in
this case, one that has CBD as its active ingredient—for the same disease or condition (i.e., for
the treatment of seizures associated with Lennox-Gastaut syndrome or Dravet syndrome in
patients two years old and older) for seven years, with limited exceptions.32

22 FDA, Guidance for Industry, “Label Comprehension Studies for Nonprescription Drug Products,” August 2010,
https://www.fda.gov/media/75626/download.
23 FDA, Guidance for Industry, “Self-Selection Studies for Nonprescription Drug Products,” April 2013,

https://www.fda.gov/media/81141/download.
24 FDA, “FDA approves first drug comprised of an active ingredient derived from marijuana to treat rare, severe forms

of epilepsy,” June 25, 2018, https://www.fda.gov/newsevents/newsroom/pressannouncements/ucm611046.htm.

Epidiolex is the proprietary or brand name of the drug, while cannabidiol is the nonproprietary or generic name, which
is the same as the drug’s active ingredient.
25 FDA-approved label for Epidiolex, p. 13, https://www.accessdata.fda.gov/drugsatfda_docs/label/2018/210365lbl.pdf.

26 The CBD in Epidiolex is derived from marijuana and then undergoes a multistep process (e.g., milling,

decarboxylation, crystallization), resulting in pure CBD. Presentation from Angelique Lee-Rowley, Global Chief
Compliance Officer, Greenwich Biosciences.
27 Under the CSA, substances are placed into one of five schedules based on their medical use, potential for abuse, and

safety or dependence liability (21 U.S.C. §812). Schedule I substances have “a high potential for abuse” with “no
currently accepted medical use in treatment in the United States,” whereas substances in Schedules II-V have
recognized medical uses.
28 83 Federal Register 48950, September 28, 2018. Even though Epidiolex contains less than 0.3% THC, it was

approved and re-scheduled prior to the enactment of the 2018 farm bill (i.e., prior to the change in the statutory
definition of marijuana).
29 Epidiolex (cannabidiol), https://www.epidiolex.com/getting-started/prescription.

30 GW Pharmaceuticals, “EPIDIOLEX® (cannabidiol) Oral Solution – the First FDA-approved Plant-derived

Cannabinoid Medicine – Now Available by Prescription in the U.S.,” November 1, 2018, http://ir.gwpharm.com/news-
releases/news-release-details/epidiolexr-cannabidiol-oral-solution-first-fda-approved-plant.
31 FFDCA §526(a)(2) [21 U.S.C. §360bb(a)(2)] defines rare disease or condition to mean “any disease or condition

which (A) affects less than 200,000 persons in the United States, or (B) affects more than 200,000 in the United States
and for which there is no reasonable expectation that the cost of developing and making available in the United States a
drug for such disease or condition will be recovered from sales in the United States of such drug.”
32 FFDCA §527 [21 U.S.C. §360cc]. The term same drug is defined in FDA regulations 21 C.F.R. §316.3(b)(14).

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Foods and Food Additives

The FFDCA defines food to mean “(1) articles used for food or drink for man or other animals,
(2) chewing gum, and (3) articles used for components of any such article.”33 FDA’s Center for
Food Safety and Applied Nutrition (CFSAN) is responsible for oversight of human food, while
FDA’s Center for Veterinary Medicine (CVM) is responsible for oversight of animal food (feed).
The FFDCA requires that all human and animal foods are safe to eat, produced in compliance
with current good manufacturing practices (CGMPS), contain no harmful substances, and are
truthfully labeled, among other things.34 Generally, food intended for human or animal
consumption is not approved by FDA prior to marketing. However, any substance added to food
is a food additive, subject to premarket review and approval by FDA.35 An exception to this is if a
substance is generally recognized as safe (i.e., GRAS) under the conditions of its intended use,
among qualified experts, or unless the use of the substance is otherwise excepted from the
definition of a food additive.36 To obtain approval of a substance as a food additive, a person may
submit to FDA a food additive petition, which proposes the issuance of a regulation prescribing
the conditions under which the additive may be safely used.37 Food additives are approved for
specific uses (e.g., to improve taste, texture, or appearance; to improve or maintain nutritional
value; or to maintain or improve safety and freshness).38 If FDA determines, after reviewing the
data submitted in a petition, that a proposed use of a food additive is safe, the agency issues a
regulation authorizing that specific use of the substance.
The use of a food substance may be determined to be GRAS either through scientific procedures
or, for a substance used in food before 1958, through scientific procedures or experience based on
common use in food.39 FDA established a voluntary GRAS notification process that permits any
person to notify the agency of a conclusion that a substance is GRAS under the conditions of its
intended use in human food.40 A substance is considered GRAS on the basis of common
knowledge about its safety for its intended use, and the data and information relied upon for the
GRAS substance must be generally available.41 This is in contrast to the data and information
used to support a food additive petition, which are generally privately held and submitted to FDA
for evaluation. Additional information about the food additive petition process and submission of
GRAS notifications is available in Appendix A.

33 FFDCA §201(f) [21 U.S.C. §321(f)].

34 FFDCA §402 and §403 [21 U.S.C. §342 and §343]. FDA, “Product Regulation,” https://www.fda.gov/animal-
veterinary/animal-food-feeds/product-regulation.
35 FFDCA §201(s) and §409 [21 U.S.C. §321(s) and §348].

36 Ibid.

37 FFDCA §409(b) [21 U.S.C. §348(b)].

38 FDA, “Overview of Food Ingredients, Additives & Colors,” November 2004, revised April 2010,

https://www.fda.gov/food/food-ingredients-packaging/overview-food-ingredients-additives-colors.
39 21 CFR §170.3(h) defines scientific procedures to include “the application of scientific data (including, as

appropriate, data from human, animal, analytical, or other scientific studies), information, and methods, whether
published or unpublished, as well as the application of scientific principles, appropriate to establish the safety of a
substance under the conditions of its intended use.” 21 CFR §170.3(f) defines common use in food to mean “a
substantial history of consumption of a substance for food use by a significant number of consumers.”
40 21 CFR Part 170 Subpart E. FDA, Frequently Asked Questions About GRAS for Substances Intended for Use in

Human or Animal Food: Guidance for Industry, October 2016, https://www.fda.gov/downloads/Food/

GuidanceRegulation/GuidanceDocumentsRegulatoryInformation/UCM525233.pdf.
41 81 Federal Register 54966, April 17, 2016.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

Under the FFDCA, it is unlawful to introduce into interstate commerce a food (human or animal)
to which a drug has been added—either an approved drug or a drug for which substantial clinical
investigations have been instituted and made public.42 There are several exceptions to this: (1) if
the drug was marketed in food before it was approved as a drug or before clinical drug
investigations were instituted; (2) if the Secretary has issued a regulation, after notice and
comment, approving the use of such drug in the food; (3) if the use of the drug in the food is to
enhance the safety of the food and not to have independent biological or therapeutic effects on
humans, and the use is in conformity with specified requirements; or (4) if the drug is a new
animal drug whose use is not unsafe under FFDCA Section 512.43 FDA has concluded, based on
available evidence, that none of these are the case for CBD, and because CBD is an active
ingredient in an approved drug, FDA has taken the position that it is unlawful to introduce into
interstate commerce food containing added CBD (i.e., to use CBD as a food additive).44
However, according to FDA, cannabis-derived ingredients that do not contain CBD (or THC)
may fall outside the scope of this prohibition.45 Foods containing parts of the hemp plant that
include only trace amounts of CBD (e.g., hemp seed and ingredients derived from hemp seed)
may be lawfully marketed under certain circumstances—pursuant to FDA approval as a food
additive or a GRAS determination. In December 2018, FDA announced that it had completed its
evaluation of three GRAS notices related to hemp seed-derived ingredients (i.e., hulled hemp
seeds, hemp seed protein, and hemp seed oil).46 FDA had no questions regarding the company’s
conclusion that the use of such products as described in the notices is safe. Thus, FDA allowed
them to be marketed in human foods—without food additive approval—for the uses specified in
the GRAS notices, provided they comply with all other applicable requirements. Intended uses of
the hemp seed-derived ingredients include adding them as a source of protein, carbohydrates, oil,
and other nutrients to beverages (e.g., smoothies, protein drinks, and plant-based alternatives to
dairy products), as well as to soups, dressings, baked goods, snacks, and nutrition bars.
While FDA has determined that it is unlawful to introduce into interstate commerce food to which
CBD has been added, independent of CBD’s status as a drug ingredient, CBD has not been
approved as a food additive. FDA also has determined that “[b]ased on a lack of scientific
information supporting the safety of CBD in food … it cannot conclude that CBD is [GRAS]
among qualified experts for its use in human or animal food.”47

Animal Food and Feed Considerations

As previously noted, the FFDCA definition of food includes animal food. Similar to food
intended for human consumption, animal food is not subject to premarket approval by FDA
unless it meets the definition of a food additive. In that case, it would be subject to the premarket

42 FFDCA §301(ll) [21 U.S.C. §331(ll)].

43 Ibid.
44 FDA, “Statement from FDA Commissioner Scott Gottlieb, M.D., on signing of the Agriculture Improvement Act and

the agency’s regulation of products containing cannabis and cannabis-derived compounds,” December 20, 2018,
https://www.fda.gov/newsevents/newsroom/pressAnnouncements/ucm628988.htm.
45 FDA, “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” https://www.fda.gov/

news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-products-questions-and-answers.
46 FDA, “FDA Responds to Three GRAS Notices for Hemp Seed-Derived Ingredients for Use in Human Food,”

December 20, 2018, https://www.fda.gov/Food/NewsEvents/ConstituentUpdates/ucm628910.htm.

47 FDA, “FDA warns 15 companies for illegally selling various products containing cannabidiol as agency details

safety concerns,” November 25, 2019, https://www.fda.gov/news-events/press-announcements/fda-warns-15-

companies-illegally-selling-various-products-containing-cannabidiol-agency-details.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

requirements for food additives (or GRAS exemption). Depending on the claims made, certain
animal feed/food may meet the FFDCA definition of a drug.48 Like human drugs, animal drugs
require FDA approval prior to marketing.49 In some cases, animal food may be considered both a
food and a drug simultaneously.50 Although premarket approval by FDA is not required for most
animal food (excluding animal drugs), other federal and state rules govern their manufacture and
sale. These include, for example, labeling requirements and ingredient definitions.51
As previously noted, it is a prohibited act, with certain exceptions, under the FFDCA to introduce
into interstate commerce animal food to which a drug has been added—either an approved drug
or a drug for which substantial clinical investigations have been instituted and made public.52
Some cannabis-derived ingredients that do not contain CBD or contain only trace amounts of
CBD (e.g., hemp seed and ingredients derived from hemp seed) may fall outside the scope of this
prohibition and may be lawfully marketed pursuant to FDA approval as a food additive or a
GRAS determination.53 However, to date, FDA has not approved any food additive petitions or
evaluated any GRAS notices related to use of hemp seed and hemp-seed derived ingredients in
animal food.54 In addition, as previously mentioned, FDA has stated that “[b]ased on a lack of
scientific information supporting the safety of CBD in food … it cannot conclude that CBD is
[GRAS] among qualified experts for its use in human or animal food.”55
While FDA is the primary federal agency responsible for regulating the safety of food, the agency
works with states and the Association of American Feed Control Officials (AAFCO) in the
implementation of uniform policies for regulating the use of animal food products. For example,
FDA provides scientific and technical assistance to the AAFCO ingredient Definition Request
Process, the purpose of which is to “identify the safety, utility, and identity of ingredients used in
animal feed.”56 CVM recognizes ingredients listed in the Official Publication of the AAFCO as
being acceptable for use in animal food. According to FDA, “there are no approved food additive
petitions or ingredient definitions listed in the AAFCO OP for any substances derived from hemp,

48 As previously noted, FFDCA §201(g) defines the term drug to include, among other things, “articles intended for use
in the diagnosis, cure, mitigation, treatment, or prevention of disease in man or other animals” and “articles (other than
food) intended to affect the structure or function of the body of man or other animals.” An example would be a dog
food containing calcium that may affect an animal’s bone structure.
49 FFDCA §512(a) [21 U.S.C. §360b(a)]. For more information about FDA’s approval process for animal drugs, see

FDA’s website “Frequently Asked Questions about Animal Drugs,” https://www.fda.gov/animal-veterinary/safety-

health/frequently-asked-questions-about-animal-drugs#approval.
50 Center for Veterinary Medicine, “Regulating Animal Foods With Drug Claims Veterinary Feed Directive Drugs,”

Manual Guide 1240.3605, September 18, 1998.

51 Based on guidelines compiled by the Association of American Feed Control Officials (AAFCO).

52 FFDCA §301(ll) [21 U.S.C. §331(ll)].

53 FDA, “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” Question #10,

https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-products-
including-cannabidiol-cbd#food.
54 In December 2018, FDA announced that it had completed its evaluation of three GRAS notices related to hemp seed-

derived ingredients (i.e., hulled hemp seeds, hemp seed protein, and hemp seed oil). See FDA, “FDA Responds to
Three GRAS Notices for Hemp Seed-Derived Ingredients for Use in Human Food,” December 20, 2018. Based on a
review of FDA’s “Current Animal Food GRAS Notices Inventory,” https://www.fda.gov/animal-veterinary/generally-
recognized-safe-gras-notification-program/current-animal-food-gras-notices-inventory.
55 FDA, “FDA warns 15 companies for illegally selling various products containing cannabidiol as agency details

safety concerns,” November 25, 2019, https://www.fda.gov/news-events/press-announcements/fda-warns-15-

companies-illegally-selling-various-products-containing-cannabidiol-agency-details.
56 MOU 225-07-7001, Memorandum of Understanding between the United States Food and Drug Administration and

the Association of American Feed Control Officials, https://www.fda.gov/about-fda/domestic-mous/mou-225-07-7001.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

and we are unaware of any GRAS conclusions regarding the use of any substances derived from
hemp in animal food.”57 AAFCO has issued guidelines on hemp in animal food, which are
generally consistent with FDA’s policy.58 The guidelines also note that, based on discussions with
FDA and the hemp industry,
materials and products that are CBD-infused need to be treated as drugs because the
intended uses are largely associated with drug claims. This means that parts of the hemp
plant will not be appropriate for approval as an animal feed ingredient. As such, products
that contain CBD as a feed ingredient could be labeled adulterated or misbranded and be
subject to regulatory actions by state agencies. 59

Dietary Supplements
A dietary supplement is defined as a product (other than tobacco) that
 is intended to supplement the diet;
 is intended to be taken by mouth as a pill, capsule, powder, tablet, or liquid; and
 contains one or more of the following dietary ingredients: vitamins, minerals,
herbs or other botanicals, amino acids, and other substances or their
constituents.60
Dietary supplements are generally regulated as food under the FFDCA61 and, as such, are not
subject to premarket approval. Dietary supplements must comply with FDA’s regulations
prescribing CGMPs related to manufacturing, packaging, labeling, or holding dietary
supplements to ensure their quality.62 A dietary supplement may not claim to diagnose, cure,
mitigate, treat, or prevent a specific disease or class of diseases.63
FDA does not evaluate the safety and effectiveness of dietary supplements prior to marketing;
however, supplements are subject to various statutory and regulatory requirements. Among other
things, a firm that seeks to market a dietary supplement containing a new dietary ingredient (NDI)
must notify FDA at least 75 days prior to marketing. The manufacturer or distributor of the
dietary supplement that contains an NDI subject to the notification requirements may not market
the supplement until 75 days after the filing date.64 An NDI is defined as a dietary ingredient that
was not marketed as a dietary supplement in the United States before October 15, 1994.65 An
exception to the NDI notification requirement is if the dietary ingredient was “present in the food
supply as an article used for food in a form in which the food has not been chemically altered.”66
In this case, the dietary ingredient would still be considered an NDI because it was not marketed

57 FDA, “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” Question #25,
https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-products-
including-cannabidiol-cbd#hempanimal.
58 AAFCO, “AAFCO Guidelines on Hemp in Animal Food Original Release Date,” p. 3, May 1, 2019; and AAFCO,

“AAFCO Issues Guidelines on Hemp in Animal Food,” May 17, 2019.

59
Ibid.
60 FFDCA §201(ff) [21 U.S.C. §321(ff)].

61 Ibid.

62 21 C.F.R. §111.

63 FFDCA §403(r)(6) [21 U.S.C. §343(r)(6)].

64 21 C.F.R. §190.6(c).

65 FFDCA §413(d) [21 U.S.C. §350b(d)].

66 FFDCA §413(a)(1) [21 U.S.C. §350b(a)(1)].

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prior to October 15, 1994, but it would be exempt from the notification requirement.67 An NDI
notification must include a “history of use or other evidence of safety establishing that the dietary
ingredient, when used under the conditions recommended or suggested in the labeling of the
dietary supplement, will reasonably be expected to be safe,” along with other information.68 FDA
acknowledges receipt of the NDI notification and notifies the submitter of the date of receipt,
which is also the NDI notification filing date. FDA must keep the information in the NDI
notification confidential for the first 90 days after receiving it.69 If the manufacturer or distributor
submits additional information in support of the NDI notification, FDA may reset the 75-day
period and assign a new filing date.70 FDA does not approve NDI notifications. Instead, the
agency generally issues one of four response letters: (1) a letter of acknowledgment without
objection; (2) a letter listing deficiencies that make the notification incomplete; (3) an objection
letter raising safety concerns based on information in the notification or identifying gaps in the
history of use or other evidence of safety; or (4) a letter raising other regulatory issues with the
NDI or dietary supplement (e.g., the NDI or supplement is excluded from the definition of a
dietary supplement).71
Under the FFDCA, an article that is an active ingredient in an approved drug, or that has been
authorized for investigation as a new drug and for which the existence of such clinical
investigations has been made public, is excluded from the definition of a dietary supplement and
may not be marketed as such.72 An exception to this is if FDA issues a regulation finding that the
use of such substance in a dietary supplement is lawful. An article that is approved as a drug or
being investigated as a drug may be marketed in or as a dietary supplement if it was marketed as a
dietary supplement or as a food prior to approval or clinical investigation (before the IND became
effective).73 According to FDA, CBD is an active ingredient in an FDA-approved drug (i.e.,
Epidiolex), and it was authorized for investigation as a new drug for which substantial clinical
investigations had been instituted and made public before its marketing as a dietary supplement.
As such, FDA has determined that CBD may not be sold as a dietary supplement unless FDA
promulgates regulations concluding otherwise, regardless of whether the CBD is hemp-derived or

67 FDA, Draft Guidance, “Dietary Supplements: New Dietary Ingredient Notifications and Related Issues: Guidance for
Industry,” pp. 14-15, https://www.fda.gov/media/99538/download.
68 21 C.F.R. §190.6. An NDI must include (1) the name and complete address of the manufacturer or distributor of the

dietary supplement that contains the NDI, or of the NDI; (2) the name of the NDI subject to the notification, “including
the Latin binomial name (including the author) of any herb or other botanical”; (3) a description of the dietary
supplement(s) that contains the NDI, including the level of the NDI in the supplement and “[t]he conditions of use
recommended or suggested in the labeling of the dietary supplement, or if no conditions of use are recommended or
suggested in the labeling of the dietary supplement, the ordinary conditions of use of the supplement”; (4) “the history
of use or other evidence of safety establishing that the dietary ingredient, when used under the conditions recommended
or suggested in the labeling of the dietary supplement, will reasonably be expected to be safe, including any citation to
published articles or other evidence that is the basis on which the distributor or manufacturer of the dietary supplement
that contains the new dietary ingredient has concluded that the new dietary supplement will reasonably be expected to
be safe. Any reference to published information offered in support of the notification shall be accompanied by reprints
or photostatic copies of such references. If any part of the material submitted is in a foreign language, it shall be
accompanied by an accurate and complete English translation”; and (5) signature of the designated person. FDA’s NDI
draft guidance provides additional detail about the information that should be submitted as part of an NDI. FDA draft
guidance further describes what type of information should be submitted.
69 FFDCA §413(a) [21 U.S.C. §350b(a)].

70 21 C.F.R. §190.6(d).

71 FDA, Draft Guidance, “Dietary Supplements: New Dietary Ingredient Notifications and Related Issues: Guidance for

Industry,” p. 54, https://www.fda.gov/media/99538/download.

72 FFDCA §201(ff)(3)(B) [21 U.S.C. §321(ff)(3)(B)].

73 FFDCA §201(ff)(3)(A) [21 U.S.C. §321(ff)(3)(A)].

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marijuana-derived.74 FDA has issued several public statements maintaining that it is unlawful to
market CBD as, or in, dietary supplements.75
FDA may issue a regulation, after notice and comment, creating an exception that allows CBD to
be marketed as a dietary supplement.76 Such a regulation may be requested by an interested
person through the filing of a citizen petition.77 If an interested party has evidence challenging
FDA’s conclusion excluding CBD from the dietary supplement definition, the party may submit
to FDA a citizen petition asking the agency to issue a regulation, subject to notice and comment,
finding that the ingredient, when used as or in a dietary supplement, would be lawful. To date,
FDA has not issued such a regulation for any substance (whether cannabis-derived or not) that is
an active ingredient in an approved drug or is authorized for investigation as a new drug.78 If FDA
were to issue a regulation allowing CBD to be marketed as a dietary supplement, that product
likely would be expected to comply with the various requirements governing lawful marketing of
supplements, including compliance with CGMPs and NDI notification. Despite FDA’s
determination that marketing CBD as a dietary supplement is unlawful, these products remain on
the market.
On November 14, 2019, the Consumer Healthcare Products Association (CHPA) submitted a
citizen petition to FDA, asking the agency to “exercise its statutory authority and discretion to
engage in rulemaking that establishes a regulatory pathway to legally market dietary supplements
containing [CBD] derived from hemp (as defined in 7 U.S.C. §1639o(1))” and to require that
manufacturers of CBD-containing dietary supplements submit NDI notifications.79 It is unclear
whether other citizen petitions have been submitted to FDA requesting that it issue a regulation
allowing CBD to be marketed as a dietary supplement.

Cosmetics and Personal Care Products

The FFDCA defines cosmetics as “(1) articles intended to be rubbed, poured, sprinkled, or
sprayed on, introduced into, or otherwise applied to the human body or any part thereof for
cleansing, beautifying, promoting attractiveness, or altering the appearance and (2) articles
intended for use as a component of any such articles; except that such term shall not include
soap.”80 FDA has the authority to take certain enforcement action against adulterated or
misbranded cosmetics. A cosmetic is deemed adulterated if, among other things, it contains a

74 FDA, “Warning Letters and Test Results for Cannabidiol-Related Products,” https://www.fda.gov/newsevents/
publichealthfocus/ucm484109.htm.
75 FDA, “Statement from FDA Commissioner Scott Gottlieb, M.D., on signing of the Agriculture Improvement Act and

the agency’s regulation of products containing cannabis and cannabis-derived compounds,” December 20, 2018,
https://www.fda.gov/newsevents/newsroom/pressAnnouncements/ucm628988.htm.
76 FFDCA §201(ff)(3) [21 U.S.C. §321(ff)(3)].

77 FDA, Guidance for Clinical Investigators, Sponsors, and IRBs, Investigational New Drug Applications (INDs)—

Determining Whether Human Research Studies Can Be Conducted Without an IND, p. 11, September 2013,
https://www.fda.gov/media/79386/download.
78 See question 9 in “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” updated

April 2, 2019, https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-

products-questions-and-answers#dietarysupplements.
79 Citizen Petition from Consumer Healthcare Products Association, “Request the FDA to Establish a Regulatory

Pathway to Legally Market Dietary Supplements Containing Cannabidiol (CBD) by Issuing a Regulation Finding that
the Article, CBD, is Lawful,” FDA-2019-P-5394.
80 FFDCA Section 201(i) [21 U.S.C. §321(i)].

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poisonous or deleterious substance, or if it has been made or held in unsanitary conditions.81 A

cosmetic is deemed misbranded if, among other things, “its labeling is false or misleading in any
particular,” or if the label lacks required information.82 In addition, if a product makes therapeutic
claims (i.e., that its intended use is the cure, mitigation, treatment, or prevention of a disease),
FDA generally considers that product to be a drug (or a drug-cosmetic) and subject to the FFDCA
drug requirements. If a company has not obtained approval of a new drug prior to marketing, it is
in violation of the FFDCA. For example, in October 2019, FDA sent a warning letter to a
manufacturer marketing a CBD body butter with therapeutic claims.83
However, FDA’s authority over cosmetic products is generally more limited than for the other
products that the agency regulates. FDA does not have the authority to conduct premarket review
of cosmetic ingredients, nor can FDA require cosmetics manufacturers to submit data
substantiating the safety of their cosmetics. While FDA regulations prohibit or restrict the use of
certain ingredients in cosmetics, the regulations do not apply to any cannabis or cannabis-derived
ingredients (e.g., CBD).84
Legislation has been introduced in the 116th Congress that would expand FDA’s authority to
regulate cosmetic products and would require a safety review of certain ingredients, among other
things.85 If CBD were included in such a review and found to be unsafe for use in cosmetics, that
finding would likely affect whether CBD could be marketed in cosmetics.

Tobacco Products
FDA regulates the manufacture, marketing, and distribution of tobacco products, per its
authorities in the FFDCA, as amended by the Family Smoking Prevention and Tobacco Control
Act of 2009 (TCA; P.L. 111-31). A tobacco product is defined as “any product made or derived
from tobacco that is intended for human consumption, including any component, part, or
accessory of a tobacco product (except for raw materials other than tobacco used in
manufacturing a component, part, or accessory of a tobacco product)” that is not a drug, device,
or drug-device combination product.86 Nicotine is an addictive chemical compound present in the
tobacco plant. Tobacco products—including cigarettes, cigars, smokeless tobacco, hookah
tobacco, and most ENDS—contain nicotine.87 Tobacco-derived nicotine (as well as any other
tobacco-derived compound) meets the statutory definition of a tobacco product.88
In 2016, FDA promulgated regulations (known as the deeming rule)89 that extend authority over
all products meeting the definition of a tobacco product that were not already subject to the
FFDCA, including ENDS. In the deeming rule, FDA clarified its authority to regulate all

81 FFDCA §601 [21 U.S.C. §361].

82 FFDCA §602 [21 U.S.C. §362].
83 FDA, Warning Letter: Rooted Apothecary LLC, October 10, 2019, https://www.fda.gov/inspections-compliance-

enforcement-and-criminal-investigations/warning-letters/rooted-apothecary-llc-585312-10102019.
84 21 C.F.R. Part 700.

85 For example, S. 726 (116th Congress), the “Personal Care Products Safety Act.”

86 FFDCA §201(rr) [21 U.S.C. §321(rr)].

87 FDA, “Nicotine: The Addictive Chemical in Tobacco Products,” https://www.fda.gov/tobacco-products/products-

guidance-regulations/nicotine-addictive-chemical-tobacco-products.
88 FDA, “Deeming Tobacco Products To Be Subject to the Federal Food, Drug, and Cosmetic Act, as Amended by the

Family Smoking Prevention and Tobacco Control Act; Restrictions on the Sale and Distribution of Tobacco Products
and Required Warning Statements for Tobacco Products,” 81 Federal Register 28980, May 10, 2016.
89 Ibid.

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components and parts associated with ENDS, including e-liquids. E-liquids, which can include
nicotine, flavorings, and other ingredients, are heated in ENDS to create a vapor that a user
inhales. If an e-liquid contains CBD and makes therapeutic claims, it may be considered an
unapproved drug and may be in violation of the FFDCA. In addition, if an e-liquid contains any
tobacco-derived compound (e.g., nicotine) and CBD, but does not make therapeutic claims for
CBD, the product may still meet the statutory definition of a tobacco product because it includes
tobacco-derived compounds. In such case, the product may be subject to FDA’s tobacco
regulatory authorities, although the product might not receive marketing authorization if it is
determined that allowing the product to be marketed would not be appropriate for the protection
of public health.90 However, if the e-liquid contains CBD only, with no tobacco-derived
compounds, and does not make therapeutic claims, FDA’s enforcement options might be limited.
In this case, it would be unclear whether the product meets the statutory definition of a tobacco
product and is therefore subject to FDA’s tobacco regulatory authorities. FDA has stated that it
intends to make a determination about regulating such products as tobacco products on a case-by-
case basis.91

Table 1. Summary of Selected FDA Requirements, by CBD Product Type

Foods and
Pharmaceutical Food Dietary Cosmetic Tobacco
Requirements Drugs Additives Supplements Products Products

Example Epidiolex CBD-infused CBD oil Body lotion E-liquid

honey
Facility Yes Yes Yes No Yes
registration [21 U.S.C. §360; [21 U.S.C. [21 U.S.C. §350d; [21 U.S.C.
21 C.F.R. Part §350d; 21 21 C.F.R. Part 1 §387e]
207] C.F.R. Part 1 Subpart H]
Subpart H]
Product listing Yes No No No Yes
[21 U.S.C. §360(j); [21 U.S.C.
21 C.F.R. Part §387e(i)]
207]
Premarket Yes Noa No No Yes [21 U.S.C.
review [21 U.S.C. §387j]b
§355(a)]
Compliance Yes Yes Yes No Yes
with CGMPs [21 U.S.C. [21 U.S.C. [21 U.S.C. [21 U.S.C.
§351(a)(2)(B); 21 §342(a); 21 §342(g); 21 C.F.R. §387f(e);
C.F.R. Part 210 C.F.R. Part Part 111] regulations not
and 211] 110] promulgated
yet]

90 Generally, new tobacco products need to meet the evidentiary standard “appropriate for the protection of the public
health” to be marketed. Per FFDCA §910(c)(4) [21 U.S.C. §387j(c)(4)], this standard is determined “with respect to the
risks and benefits to the population as a whole, including users and nonusers of the tobacco product, and taking into
account—(A) the increased or decreased likelihood that existing users of tobacco products will stop using such
products; and (B) the increased or decreased likelihood that those who do not use tobacco products will start using such
products.”
91 See question 14 in “Commonly Asked Questions: About the Center for Tobacco Products,” updated June 11, 2019,

https://www.fda.gov/tobacco-products/about-center-tobacco-products-ctp/commonly-asked-questions-about-center-
tobacco-products#14.

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Foods and
Pharmaceutical Food Dietary Cosmetic Tobacco
Requirements Drugs Additives Supplements Products Products

Adverse event Yes No Yes No Yes

reporting [21 U.S.C. §355(k); [21 U.S.C. [21 U.S.C.
21 C.F.R. §314.80] §379aa-1] §387i(a)]
Mandatory No (with the Yes Yes No Yes
recall authority exception of [21 U.S.C. [21 U.S.C. §350l] [21 U.S.C.
controlled §350l] §387h(c)]
substancesc)
Adulteration 21 U.S.C. §351 21 U.S.C. §342 21 U.S.C. §342; 21 U.S.C. §361 21 U.S.C.
provisions 21 U.S.C. §350b §387b
Misbranding 21 U.S.C. §352 21 U.S.C. §343 21 U.S.C. §343 21 U.S.C. §362 21 U.S.C.
provisions §387c

Source: Table created by CRS based on 21 U.S.C. §§301 et. seq.

a. Food is generally not approved by FDA prior to marketing. However, food additives are subject to
premarket review and approval by FDA unless generally recognized as safe (i.e., GRAS).
b. FDA has delayed enforcement of premarket review requirements for certain tobacco products—including
ENDS—providing manufacturers more time to prepare for the review process. Accordingly, manufacturers
may soon need to obtain FDA authorization for such products to remain on the market, or risk
enforcement action.
c. In general, FDA does not have mandatory recall authority over drugs. Instead, FDA can ask a manufacturer
to voluntarily recall a drug. However, the Substance Use-Disorder Prevention that Promotes Opioid
Recovery and Treatment for Patients and Communities Act (P.L. 115-271; the SUPPORT Act) authorized
FDA to order a mandatory recall for a controlled substance that presents a public health risk [21 U.S.C.
§360bbb–8d].

Alcohol Beverage Products

While TTB is the primary federal regulator of alcoholic beverages, FDA plays a role in
determining what ingredients may be used in the production of alcoholic beverages. In general,
before a hemp ingredient may be used in the production of an alcohol beverage product—whether
it be a distilled spirit, wine, or beer—the producer may be required to request formula approval
from TTB. Requirements are outlined in the Federal Alcohol Administration Act (27 U.S.C. §201
et seq.) and in regulation.92 For distilled spirits, for example, an approved formula is required to
“blend, mix, purify, refine, compound, or treat spirits in a manner which results in a change of
character, composition, class or type of the spirits;” any change in an approved formula requires a
new filing.93 For wine, formula approval is required for “special natural wine, agricultural wine,
and other than standard wine (except distilling material or vinegar stock).”94 For beer, formula
approval is required for any fermented product that “is not generally recognized as a traditional
process in the production of a fermented beverage designated as ‘beer,’ ‘ale,’ ‘porter,’ ‘stout,’

92 TTB, “Laws and Regulations under the Federal Alcohol Administration Act and Other Related Provisions of Title
27, United States Code and Title 27, Code of Federal Regulations,” TTB P 5100.8 (5/2007), September 2006. Federal
excise tax rates on alcoholic beverages also apply (26 U.S.C. Internal Revenue Code Chapter 51) but are not addressed
here. For more information, see CRS Report R43350, Alcohol Excise Taxes: Current Law and Economic Analysis.
93 27 CFR Subpart Ca §§5.26-5.28. See also T.D. ATF–62; 44 Federal Register 238 71620, December 11, 1979, as

amended by T.D. ATF–425, 65 Federal Register 11891, March 7, 2000.

94 27 CFR Chapter 1, Subchapter A, §§24.80-24.82. See also T.D. ATF-299, 55 Federal Register 129: 24989, June 19,

1990, as amended by T.D. ATF-409, 64 Federal Register 13684, March 22, 1999.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

‘lager,’ or ‘malt liquor’” or to which certain ingredients are added.95 Specific labeling
requirements also apply, and generally require prior approval.96 In addition, regarding interstate
and foreign commerce in spirits, wine, and beer, it is unlawful for businesses to operate without a
permit.97 Certain states and local jurisdictions might also have their own alcohol product
prohibitions and production requirements, as well as restrictions on interstate commerce.
TTB’s current policy is that the agency “will not approve any formulas for alcohol beverages that
contain ingredients that are controlled substances under the CSA” (e.g., marijuana or marijuana-
derived CBD).98 With regard to CBD derived from hemp, TTB is in the process of updating its
guidance on the use of hemp ingredients to reflect changes in the 2018 farm bill. TTB also states
that it consults with FDA on ingredient safety issues and, in some cases, may “require formula
applicants to obtain documentation from FDA indicating that the proposed use of an ingredient in
an alcohol beverage would not violate [FFDCA].”99 Thus, in general, TTB treats hemp-derived
ingredients for alcohol beverage products as any other product ingredient. As such, any
ingredients added to alcohol beverage products must be either an FDA-approved food additive or
determined to be GRAS. As aforementioned, to date, FDA has evaluated GRAS determinations
for three different hemp seed-derived ingredients that do not contain CBD, although allowed uses
do not include addition to alcoholic beverages.100 With regard to CBD, FDA has determined that
it is unlawful to introduce into interstate commerce food to which certain drug ingredients (e.g.,
CBD) have been added. Additionally, independent of CBD’s status as a drug ingredient, CBD has
not been approved as a food additive, and FDA has determined that “[b]ased on a lack of
scientific information supporting the safety of CBD in food … it cannot conclude that CBD is
[GRAS] among qualified experts for its use in human or animal food.”101
Formulations seeking approval to use other types of hemp extracts as an ingredient—including
but not limited to CBD—would likely not be approved by TTB, since these extracts have not
been authorized for use in food by FDA.102

95 27 C.F.R. §25.55. See TTB Public Guidance, TTB G 2016-1A, October 27, 2017.
96 27 CFR Chapter 1, Subchapter A: spirits (Part 5), wine (Part 4), and beer (Part 7).
97 27 U.S.C. §203.

98 TTB Industry Circular 2019-1, April 25, 2019, https://www.ttb.gov/industry-circulars/ttb-industry-circulars-19-1.

99 TTB, “Frequently Asked Question (FAQ): Alcohol Beverage Formulas and Labels,” FAQ # A29, May 23, 2018.

100 FDA, “FDA Responds to Three GRAS Notices for Hemp Seed-Derived Ingredients for Use in Human Food,”

December 20, 2018. Agency Response Letters to GRAS Notice Nos. GRN 000765, GRN 000771, and GRN 000778.
101 FDA, “FDA warns 15 companies for illegally selling various products containing cannabidiol as agency details

safety concerns,” November 25, 2019, https://www.fda.gov/news-events/press-announcements/fda-warns-15-

companies-illegally-selling-various-products-containing-cannabidiol-agency-details.
102
TTB has various additional requirements related to hemp products. For example, “hemp component(s) must be
tested in the U.S. for controlled substance(s) each time it is imported and results must be maintained on your premises
for inspection,” and “a detailed description of the method of analysis used by the U.S. lab to test for controlled
substance must be maintained at your premises for inspection.” Regarding formulas or statements of process for an
alcohol beverage containing hemp or a hemp component, the producer must submit a lab analysis of the hemp
component (oil, seeds, etc.) that would be used in the product, conducted by a qualified laboratory that specifically
addresses the detection THC, specifying the amount detected, or stating that none was detected. The producer must also
submit a detailed description of the method of analysis used by the U.S. lab to test the hemp component. Separate
requirements apply for imported hemp products. See TTB “Alcohol and Tobacco Tax and Trade Bureau Hemp Policy,”
https://www.ttb.gov/formulation/hemp-policy.

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Therapeutic Uses of CBD and

Research Considerations
Cannabinoids such THC and CBD interact with specific cell receptors in the brain and throughout
the body to produce their intended effects. Although THC activates certain receptors that then
produce euphoric or intoxicating effects,103 CBD has low affinity for those same receptors and
therefore does not produce intoxicating effects.104 This property may make CBD an attractive
compound for drug developers. In addition, preclinical (e.g., animal model) research suggests that
CBD may interact with other brain-signaling systems that can produce therapeutic effects, such as
the reduction of seizures, pain, and anxiety.105
The therapeutic benefits, or underlying mechanism of action for therapeutic benefits, of CBD
remain uncertain, even in CBD-containing drugs that have been approved by regulatory agencies.
For example, in the United States, GW Pharmaceuticals’ Epidiolex (CBD) is approved for the
treatment of seizures associated with two rare and severe forms of epilepsy. However, according
to the drug’s labeling, the mechanism by which the drug exerts its anticonvulsant effects is not
known.106 In addition, while not yet approved in the United States, GW Pharmaceuticals’ drug
Sativex (nabiximols)—a cannabis extract spray containing a 1:1 ratio of CBD and delta-9 THC—
has regulatory approval in more than 25 countries for the treatment of spasticity (muscle
stiffness/spasm) due to multiple sclerosis (MS).107 In Canada, Sativex has conditional marketing
authorization as an adjunctive treatment for neuropathic pain in adult patients with MS and “as
adjunctive analgesic [pain relieving] treatment in adult patients with advanced cancer who
experience moderate to severe pain during the highest tolerated dose of strong opioid therapy for
persistent background pain.”108 However, Phase III clinical trials previously conducted by GW
Pharmaceuticals found that Sativex failed to show superiority over placebo in treating the pain of
patients with advanced cancer who experience inadequate analgesia during optimized chronic
opioid therapy.109 Furthermore, while CBD is predicted to have anti-inflammatory properties,
which may play a role in its analgesic effects, preliminary evidence suggests that the analgesia is
mediated by THC, and the extent to which CBD contributes to those therapeutic effects is
unclear.110

103 NASEM, The Health Effects of Cannabis and Cannabinoids: Current State of Evidence and Recommendations for
Research (Washington, DC: National Academies Press).
104 U.S. Congress, Testimony before the United States Senate Caucus on International Narcotics Control, The Biology

and Potential Therapeutic Effects of Cannabidiol, prepared by Dr. Nora Volkow, National Institute on Drug Abuse,
National Institutes of Health, 114th Cong., 1st sess., June 24, 2015.
105 Ibid.

106 FDA-approved label for Epidiolex, p. 13, https://www.accessdata.fda.gov/drugsatfda_docs/label/2018/

210365lbl.pdf.
107 GW Pharmaceuticals, “Information on Sativex,” https://www.gwpharm.com/healthcare-professionals/sativex.

108 Product Monograph for SATIVEX, as authorized for marketing by Health Canada, https://pdf.hres.ca/dpd_pm/

00016162.PDF.
109 GW Pharmaceuticals, “GW Pharmaceuticals and Otsuka Announce Results From Two Remaining Sativex(R) Phase

3 Cancer Pain Trials,” press release, October 27, 2015, http://ir.gwpharm.com/static-files/f2fc7456-a4a3-4d3b-a98c-

47954ec397dd.
110 U.S. Congress, Testimony before the United States Senate Caucus on International Narcotics Control, The Biology

and Potential Therapeutic Effects of Cannabidiol, prepared by Dr. Nora Volkow, National Institute on Drug Abuse,
National Institutes of Health, 114th Cong., 1st sess., June 24, 2015.

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CBD is the subject of numerous ongoing randomized controlled trials (RCTs).111 As of December
2019, a database maintained by the National Library of Medicine (NLM) at the National
Institutes of Health (NIH) lists numerous domestic and international ongoing RCTs involving
cannabinoids—including CBD—as a treatment for a variety of conditions, including chronic
pain, tremors associated with Parkinson’s disease, and anxiety.112 GW Pharmaceuticals is also
studying CBD and CBD variants in clinical trials for autism and schizophrenia.113 Other
pharmaceutical manufacturers are conducting clinical trials with CBD and its variants for other
indications, including severe acne and graft-versus-host disease (GVHD).114 However, until such
studies are completed, conclusive evidence supporting the use of CBD to treat various health
conditions is limited.
In February 2017, the National Academies of Sciences, Engineering, and Medicine (NASEM)
published a comprehensive review of fair- and good-quality systematic reviews of literature and
high-quality primary research on cannabis and cannabinoids.115 NASEM did not make specific
comparisons between cannabinoids derived from hemp versus marijuana, or between
cannabinoids from low versus high THC strains of marijuana. However, for CBD or CBD-
enriched cannabis specifically, the report noted research gaps among existing literature in treating
numerous conditions, including cancer in general, chemotherapy-induced nausea, epilepsy, and
post-traumatic stress disorder (PTSD), among other conditions.116 Nonetheless, CBD is promoted
as treatment for a range of conditions, including PTSD, anxiety, inflammation, and
sleeplessness—despite limited scientific evidence substantiating or disproving these claims.117
These research gaps can be attributed, in part, to the status of marijuana as a Schedule I controlled
substance under the CSA. Individuals who seek to conduct research on any controlled substance
must do so in accordance with the CSA and other federal laws.118 DEA research requirements are
more stringent for Schedule I and Schedule II substances than for substances in Schedules III-V.
For example, for Schedule I substances such as marijuana, even if practitioners have a DEA
registration for a substance in Schedules II-V, they must obtain a separate DEA registration for

111 RCTs are considered the “gold standard” of clinical and epidemiologic research. RCTs randomize patients into
either an intervention group (in this case, CBD) or a placebo group. Randomization allows for differences observed
between the groups to be attributable solely to the intervention, rather than differences between participants. For more
information, see Leon Gordis, Epidemiology, 5th ed. (Philadelphia, PA: Elsevier Saunders, 2014).
112 NIH’s database (https://clinicaltrials.gov/ct2/home), accessed December 3, 2019.

113 N. Florko, “The company behind the first-ever CBD-based drug is now eyeing everything from multiple sclerosis to

autism,” STAT Plus, October 19, 2019.

114 Ibid. GVHD is a potentially life-threatening condition in which a stem cell or bone marrow recipient’s body rejects

donor cells.
115 NASEM, The Health Effects of Cannabis and Cannabinoids: Current State of Evidence and Recommendations for

Research (Washington, DC: National Academies Press). See also J. E. Joy, S. J. Watson Jr., and J. A. Benson Jr., eds.,
Marijuana and Medicine: Assessing the Science Base, Institute of Medicine, 1999. High-quality primary research
includes randomized controlled trials (RCTs).
116 NASEM, The Health Effects of Cannabis and Cannabinoids: Current State of Evidence and Recommendations for

Research (Washington, DC: National Academies Press), p. 126.

117 See, for example, FDA News Release, “FDA, FTC warn company marketing unapproved cannabidiol products with

unsubstantiated claims to treat teething and ear pain in infants, autism, ADHD, Parkinson’s and Alzheimer’s disease,”
October 22, 2019, https://www.fda.gov/inspections-compliance-enforcement-and-criminal-investigations/warning-
letters/rooted-apothecary-llc-585312-10102019. See also, U.S. Congress, Testimony before the United States Senate
Caucus on International Narcotics Control, The Biology and Potential Therapeutic Effects of Cannabidiol, prepared by
Dr. Nora Volkow, National Institute on Drug Abuse, National Institutes of Health, 114 th Cong., 1st sess., June 24, 2015.
118 For regulatory requirements under the CSA, see CRS Report R45948, The Controlled Substances Act (CSA): A

Legal Overview for the 116th Congress.

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researching a Schedule I substance. In addition, due to its Schedule I status, the DEA strictly
limits the quantity of marijuana manufactured each year. These requirements can prolong the
process of acquiring marijuana (including marijuana-derived CBD) for research. As mentioned
previously, the 2018 farm bill removed hemp and hemp derivatives (including hemp-derived
CBD) from the CSA definition of marijuana, making them no longer subject to regulation and
oversight as a controlled substance by DEA. DEA has confirmed that a DEA registration is no
longer required to grow or research hemp plants and CBD preparations that meet the statutory
definition of hemp.119 However, CBD preparations containing above the 0.3% delta-9 THC level
(i.e., meeting the statutory definition of marijuana) continue to be subject to Schedule I CSA
requirements. As a result, conducting research on these substances may continue to be a
challenge.120

Considerations for Congress: Marketing of CBD

What Are the Circumstances Under Which FDA-Regulated
Products Containing CBD Can Be Marketed Currently?
As mentioned previously, FDA has determined that at this time, CBD cannot be added to any
food that is sold in interstate commerce and that CBD cannot be marketed as a dietary
supplement. Although FDA could issue a regulation allowing CBD to be added to food or
allowing its use in dietary supplements, the agency has never issued such a regulation for any
substance (whether cannabis-derived or not) that is an approved drug or authorized for
investigation as a new drug.121 Although FDA has determined that CBD (and THC) may not be
added to food or marketed as a dietary supplement, the agency has not made this same
determination for other compounds derived from cannabis, although those compounds may be
subject to DEA restrictions; FDA’s determination is specific to CBD and THC because both are
active ingredients in FDA-approved drugs.122 FDA also has not determined that CBD may not be
added to cosmetics;123 however, if a CBD-containing cosmetic product makes therapeutic claims
(e.g., that it is intended to diagnose, treat, cure, mitigate, or prevent a disease), FDA would likely
consider the product to be a drug subject to the new drug approval requirements.

119 Drug Enforcement Administration, “Bulk Manufacturer of Controlled Substances Applications: Bulk Manufacturers
of Marihuana,” 84 Federal Register 44920-44923, August 27, 2019.
120 For more information on challenges and barriers in conducting cannabis research, see Chapter 15, National

Academies of Sciences, Engineering, and Medicine, The Health Effects of Cannabis and Cannabinoids: The Current
State of Evidence and Recommendations for Research, Washington, DC, 2017, doi: 10.17226/24625.
121 See questions 9 and 10 in “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,”

updated April 2, 2019, https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-

derived-products-questions-and-answers#dietarysupplements.
122 Although a discussion of THC is beyond the scope of this report, FDA has determined that THC also may not be

added to food or marketed as a dietary supplement because it is an active ingredient in at least one FDA-approved drug.
Specifically, THC (dronabinol) is the active ingredient in Marinol capsules (and its generics), as well as Syndros oral
solution. See question 11 in “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,”
updated April 2, 2019, https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-
derived-products-including-cannabidiol-cbd#food.
123 See question 13 in “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,”

updated April 2, 2019, https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-

derived-products-including-cannabidiol-cbd#cosmetics.

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CBD may be lawfully marketed as a drug, pursuant to FDA approval, and in compliance with
applicable statutory and regulatory requirements. If a firm seeks to market CBD as a treatment or
an otherwise therapeutic product, the firm generally would need to obtain premarket approval
from FDA via the new drug approval pathway. To date, FDA has approved one CBD-containing
drug, Epidiolex, which is available by prescription for the treatment of seizures associated with
Lennox-Gastaut syndrome or Dravet syndrome in patients two years old and older. Epidiolex is
marketed by GW Pharmaceuticals.
On May 31, 2019, FDA held a public hearing “to obtain scientific data and information about the
safety, manufacturing, product quality, marketing, labeling, and sale of products containing
cannabis or cannabis-derived compounds.”124 Prior to the hearing, FDA had opened a docket to
which interested stakeholders could submit a request for FDA to review scientific data and
information about products containing cannabis or cannabis-derived compounds.125 Although
FDA has maintained that it is unlawful to add CBD to food or to market CBD as a dietary
supplement, CBD continues to be marketed in violation of this determination. The agency has
generally prioritized enforcement against companies and products that pose the greatest risk to
consumers—for example, products making claims that CBD can treat Alzheimer’s or stop cancer
cell growth.126 FDA has said that it “does not have a policy of enforcement discretion with respect
to any CBD products,”127 although this is expected to change in light of language included in the
explanatory statement accompanying the FY2020 enacted appropriation (see “What Could
Congress Do to Allow CBD to Be Marketed as a Food Additive or Dietary Supplement?”).
Some industry stakeholders are recommending that, absent an FDA regulatory framework for
CBD products, manufacturers and marketers of dietary supplements or foods that contain hemp or
CBD comply with federal regulations for supplements and food in the interim to help ensure the
quality of these CBD products. Such compliance would include facility registration, adherence to
CGMPs, and meeting labeling requirements.128 In an effort to establish industry-wide standards,
one organization has established its own third-party certification program designed for hemp
food, dietary supplements, and cosmetic companies.129 This certification program is independent
of federal requirements, and FDA has not validated or verified any third-party certification
program for hemp.

What Is the Current State of the CBD Market?

At the retail level, consumer products labeled as containing CBD are being marketed and sold in
food and beverages, cosmetics and personal care products, certain tobacco products, and dietary

124 FDA, “Scientific Data and Information about Products Containing Cannabis or Cannabis-Derived Compounds;
Public Hearing,” https://www.fda.gov/news-events/fda-meetings-conferences-and-workshops/scientific-data-and-
information-about-products-containing-cannabis-or-cannabis-derived-compounds.
125 84 Federal Register 12969, April 3, 2019 (Docket No: FDA-2019-N-1482).

126 FDA Statement, “Statement from FDA Commissioner Scott Gottlieb, M.D., on new steps to advance agency’s

continued evaluation of potential regulatory pathways for cannabis-containing and cannabis-derived products,” April 2,
2019, https://www.fda.gov/NewsEvents/Newsroom/PressAnnouncements/ucm635048.htm.
127 FDA, “Remarks by Dr. Sharpless at the FDA Public Hearing on Scientific Data and Information about Products

Containing Cannabis or Cannabis-Derived Compounds,” May 31, 2019, https://www.fda.gov/news-events/speeches-

fda-officials/remarks-dr-sharpless-fda-public-hearing-scientific-data-and-information-about-products-containing.
128 For example, see the guidance developed by the American Herbal Products Association (AHPA),

http://www.ahpa.org/Portals/0/PDFs/Policies/Guidance-Policies/AHPA_Supplements___Food_Hemp_CBD.pdf.
129 For example, the U.S. Hemp Authority has developed a private certification program

(https://www.ushempauthority.org/docs/FAQ_US-Hemp-Authority_1-4-19.pdf).

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supplements—despite FDA’s position that CBD may not be sold in food and beverages or dietary
supplements. CBD-containing products that claim to meet the definition of hemp are sold through
specialty retailers, such as natural/organic grocery stores, tobacco (or smoke) shops, yoga studios,
and farmers’ markets; through direct-to-consumer and online sales; from herbal practitioners; and
by large retailers such as CVS and Walgreens.
Although some industry analysts foresee a strong market for marijuana-derived CBD, it remains
prohibited (aside for lawful research purposes) under the CSA if the product does not meet the
statutory definition of hemp in 7 U.S.C. §1639o. The DEA has confirmed that a DEA registration
is not required to grow or research hemp plants and CBD preparations that meet the statutory
definition of hemp.130 Despite the federal prohibition on growing, selling, or possessing
marijuana, marijuana-derived CBD products that have not been approved by FDA have been
made available in states where medical and/or recreational cannabis is legal under state law, in
violation of federal law. Depending on where a CBD product is manufactured and sold, it may
primarily be produced using only drug-grade cannabis and marketed as a medicinal or therapeutic
product, in violation of FDA requirements. To date, most of the CBD products sold in states
where medical and/or recreational cannabis is legal do not meet the statutory definition of hemp.
Typically, these products contain 0.45% to 1.5% THC, with some products containing up to 9%
THC—levels that could result in psychoactive effects by the user.131
In 2018, CBD sales in the United States were estimated at $534 million, according to the Hemp
Business Journal.132 This amount includes sales from hemp-derived CBD products, marijuana-
derived CBD products (currently a Schedule I controlled substance), and the FDA-approved drug
Epidiolex. In 2018, more than 1,000 companies were producing and marketing CBD products for
the U.S. market.133 Since 2014, when total CBD sales were a reported $108 million, U.S. sales of
CBD have risen fivefold (Figure 3). In 2018, hemp- and marijuana-derived CBD sales were $240
million and $264 million, respectively, while sales of Epidiolex were estimated at $30 million
(Figure 3).
Current projections of U.S. sales of CBD indicate expected growth over the next few years. Such
sales are expected to exceed $1 billion in 2020 and reach nearly $2 billion in 2022, roughly split
between the three markets (hemp-derived, marijuana-derived, and pharmaceutical CBD; see
Figure 3). Others forecast sales well beyond these levels, with some predicting that sales of
hemp-derived CBD will eventually dominate the cannabis market, since hemp-derived CBD does
not tend to carry the stigma associated with marijuana.134 An ATKearney survey shows that U.S.
consumers, regardless of age, strongly believe that cannabis can “offer wellness and therapeutic
benefits,” ranging from 74% to 83% of those surveyed across all age demographics.135 Some
global markets where cannabis is legal are already reporting product shortages of CBD medicinal

130 Drug Enforcement Administration, “Bulk Manufacturer of Controlled Substances Applications: Bulk Manufacturers
of Marihuana,” 84 Federal Register 44920-44923, August 27, 2019.
131 Based on fourteen (14) CBD products in the marketplace reviewed in Leinow, L. and J. Birnbaum, CBD: A

Patient’s Guide to Medical Cannabis, North Atlantic Books, 2018, Chapter 8, pp. 207-226.
132 Hemp Business Journal, The CBD Report: 2018 Industry Outlook, 2019 (New Frontier Data).

133 Comments by presenters at the 7th Annual Botanical Congress, November 10, 2018.

134 For example, the Chicago-based Brightfield Group predicts the CBD market could reach $22 billion by 2022

(https://www.brightfieldgroup.com/).
135 ATKearney, “The Cannabis Opportunity: Research Overview,” 2019.

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cannabis products.136 In the United States, growth in CBD sales is expected despite continued
regulatory and legal uncertainty, given continued FDA, DEA, and state and local restrictions.

Figure 3.Total U.S. CBD Sales, by Channel

Source: Hemp Business Journal, The CBD Report: 2018 Industry Outlook, 2019 (New
Frontier Data).
Notes: All pharmaceutical channel sales are represented by the drug Epidiolex.

What Could Congress Do to Allow CBD to Be Marketed as a Food

Additive or Dietary Supplement?
Despite FDA’s current determination that CBD cannot be marketed as a food additive or a dietary
supplement, these products continue to be sold. In response, some members of Congress have
expressed support for a regulatory framework for hemp-derived CBD in certain FDA-regulated
consumer products. In absence of a regulatory framework for hemp-derived CBD products,
Congress has directed FDA to issue a policy of enforcement discretion with respect to CBD
products that meet the statutory definition of hemp that also come under FDA jurisdiction. More
specifically, the explanatory statement accompanying the enacted FY2020 appropriation states
that
[t]he agreement includes $2,000,000 for research, policy evaluation, market surveillance,
issuance of an enforcement discretion policy, and appropriate regulatory activities with
respect to products under the jurisdiction of the FDA which contain CBD and meet the
definition of hemp, as set forth in section 297A of the Agricultural Marketing Act of 1946
(7 U.S.C. 16390). Within 60 days of enactment of this Act, the FDA shall provide the
Committees with a report regarding the agency’s progress toward obtaining and analyzing
data to help determine a policy of enforcement discretion and the process in which CBD
meeting the definition of hemp will be evaluated for use in products. The FDA is further
directed to perform a sampling study of the current CBD marketplace to determine the
extent to which products are mislabeled or adulterated and report to the Committees within
180 days of enactment of this Act. 137

136 See, for example, Lamers, M., “Canadian Cannabis Wholesalers Report CBD Shortage, While Imports Lag Far
Behind,” Marijuana Business Daily, April 9, 2019.
137 Joint Explanatory Statement on Division B—Agriculture, Rural Development, Food and Drug Administration and

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

The statement does not explicitly require FDA to set a safe level or threshold for CBD in
consumer products. However, the activities conducted pursuant to this directive may inform the
establishment of such a level in the future. In addition to the activities directed in the explanatory
statement, Congress also could take further legislative action, such as requiring FDA to issue a
regulation, under its FFDCA authorities, expressly permitting CBD that meets the definition of
hemp to be used as a food additive or dietary supplement. For example, such a regulation could
prescribe the conditions under which CBD may be safely used as a food additive (e.g., to add
flavor or nutritional value to food, in specified quantities, subject to specified labeling
requirements). However, because FDA has never before issued such a regulation allowing an
approved drug or a substance authorized for investigation as a new drug to be a food additive or
added to a dietary supplement, it is not clear what such a regulation would look like.
Congress also could consider amending the FFDCA provisions that FDA has identified as
restricting marketing of CBD in food and dietary supplements.138 For example, Congress could
exclude from these provisions CBD that meets the statutory definition of hemp.139 However, even
if the marketing of CBD-containing products were no longer restricted by these provisions, CBD-
containing products may still be subject to other FFDCA requirements. For example, to lawfully
market a CBD product as a dietary supplement, a firm may need to submit an NDI notification to
FDA, in addition to meeting other statutory and regulatory requirements for supplements. To
lawfully market CBD as a food additive, a firm would be expected to either obtain approval via a
food additive petition or pursuant to a GRAS determination. As FDA has said that the agency “is
not aware of any basis to conclude that CBD is GRAS among qualified experts for its use in
human or animal food,”140 a food additive petition may be necessary.
As mentioned above, food and dietary supplements are not evaluated by FDA for safety and
effectiveness prior to marketing. Given this fact, in determining whether a legislative approach is
appropriate, Congress may consider the potential for adverse health effects and other unintended
consequences. For example, clinical trials to support the approval of Epidiolex demonstrated the
potential for liver injury at certain doses, and CBD may interact with other drugs or dietary
supplements.141 Other concerns include the potential dosing and cumulative effects of exposure to
CBD from multiple sources (e.g., food, supplements, and cosmetics); whether there are
populations for whom CBD is not appropriate (e.g., pregnant or lactating women); and whether
allowing CBD to be marketed as a supplement or food additive could undermine incentives for

Related Agencies Appropriations Act, 2020, p.29, https://docs.house.gov/billsthisweek/20191216/BILLS-

116HR1865SA-JES-DIVISION-B.pdf.
138 As discussed throughout the report, under the FFDCA, it is a prohibited act to introduce into interstate commerce a

food to which has been added an approved drug or a drug for which substantial clinical investigations have been
instituted and made public (FFDCA Section 301(ll)). While there are several statutory exceptions to this prohibition,
FDA has thus far concluded that these do not apply to CBD. Second, the dietary supplement definition in the FFDCA
explicitly excludes a substance that is an active ingredient in an approved drug, or a drug for which substantial clinical
investigations have been instituted and made public, unless FDA promulgates a regulation that use of such substance in
a dietary supplement is lawful (FFDCA Section 201(ff)(3)(B).
139 See, for example, H.R. 5587 (116th Congress).

140 FDA, “FDA warns 15 companies for illegally selling various products containing cannabidiol as agency details

safety concerns,” November 25, 2019, https://www.fda.gov/news-events/press-announcements/fda-warns-15-

companies-illegally-selling-various-products-containing-cannabidiol-agency-details.
141 FDA, “What You Need to Know (And What We’re Working to Find Out) About Products Containing Cannabis or

Cannabis-derived Compounds, Including CBD,” current as of November 25, 2019, https://www.fda.gov/consumers/

consumer-updates/what-you-need-know-and-what-were-working-find-out-about-products-containing-cannabis-or-
cannabis.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

conducting clinical trials and obtaining evidence of safety and effectiveness to support drug
approval.142
FDA’s position with respect to the status of CBD impacts other agencies’ and regulatory bodies’
policies and guidance. For example, TTB consults with FDA on alcohol ingredient safety issues
and generally requires that any ingredient added to alcohol beverages must be either an FDA-
approved food additive or determined to be GRAS. CBD is not an approved food additive nor has
it been found to be GRAS for use in alcohol or otherwise. It remains to be seen whether TTB
would allow CBD that meets the definition of hemp to be added to alcoholic beverages if FDA
issues a policy of enforcement discretion as directed by the explanatory statement accompanying
the FY2020 enacted appropriation. Similarly, the AAFCO has issued guidelines on hemp in
animal food, which are generally consistent with FDA’s policy. A new policy of enforcement
discretion issued pursuant to the language in the explanatory statement may affect AAFCO’s
guidelines. Additionally, in May 2019, the U.S. Patent and Trademark Office (USPTO) issued
guidance that limits trademark registrations for CBD products. USPTO’s guidance describes how
it would review marks for cannabis and cannabis-related goods and services, and clarifies that
compliance with federal law is a condition of federal trademark registration, regardless of the
legality of the activities under state law. It further states that a “determination of whether
commerce involving cannabis and cannabis-related goods and services is lawful requires
consultation of several different federal laws,” including the CSA, FFDCA, and the 2018 farm
bill (P.L. 115-334).143 Therefore, “registration of marks for foods, beverages, dietary supplements,
or pet treats containing CBD will still be refused as unlawful under the FDCA, even if derived
from hemp, as such goods may not be introduced lawfully into interstate commerce.”144 Some
claim that because the guidance does not specifically address cosmetic products, this could
suggest that federal USPTO registration could be possible for such products; however, they also
assert that USPTO is looking to FDA to further clarify conditions under which CBD foods,
beverages, dietary supplements or pet treats may be lawfully marketed.145

142 FDA, “Scientific Data and Information About Products Containing Cannabis or Cannabis-Derived Compounds;
Public Hearing; Request for Comments,” Federal Register, vol. 84, no. 64, 12969-12975, April 3, 2019.
143 PTO, “Examination of Marks for Cannabis and Cannabis-Related Goods and Services after Enactment of the 2018

Farm Bill,” Examination Guide 1-19, May 2, 2019, p.1.

144 Ibid, p.2.

145 S. Trigg, K. Cristales and S. Armstrong, “Considering the Current and Future Legality of CBD,” Law 360, August

6, 2019.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

Appendix A. Food Additive Petition Process and

GRAS Notification Submission
Food Additive Petition Process
FDA has determined that CBD cannot be added to any food that is sold in interstate commerce.
FDA is authorized to issue a regulation, after notice and comment, approving the use of a drug
(e.g., CBD) as a food additive,146 although the agency has never done so for any substance.147 The
FFDCA does not specify a process for FDA to issue such a regulation, other than that it must be
after notice and comment.
In regard to the process for food additive approval, FDA is authorized to “by order establish a
regulation” that prescribes the conditions under which a food additive may be safely used.148 The
issuance of such regulation may be proposed by FDA on its own initiative or by an interested
person via submission of a food additive petition.149 A food additive petition must include, in
addition to any explanatory or supporting data, the following information:
 the name and all pertinent information relating to the food additive, including its
chemical identity and composition (if possible);
 a statement of the conditions of its proposed use, including directions,
recommendations, and suggestions, and the proposed labeling;
 “all relevant data bearing on the physical or other technical effect such additive is
intended to produce, and the quantity of such additive required to produce such
effect”;
 a description of methods for determining the quantity of such additive in or on
food, and any substance formed in or on food, because of its use; and
 full reports of safety investigations, including the methods and controls used in
conducting such investigations.150
FDA may request that the petitioner also provide information about the manufacturing methods,
facilities, and controls, as well as samples of the food additive (or articles used as its components)
and samples “of the food in or on which the additive is proposed to be used.”151 Additional
requirements are specified in FDA regulations.152 Within 30 days of the petition filing date, FDA
must publish notice in the Federal Register of the regulation proposed by the petitioner.153 Within
90 days of petition filing, FDA must issue either an order denying the petition or an order
establishing a regulation prescribing the conditions under which the food additive may be used

146 FFDCA §301(ll)(2) [21 U.S.C. §331(ll)(2)].

147 FDA, “FDA Regulation of Cannabis and Cannabis-Derived Products: Questions and Answers,” Question #10,
https://www.fda.gov/news-events/public-health-focus/fda-regulation-cannabis-and-cannabis-derived-products-
questions-and-answers.
148 FFDCA §409(c)(1) [21 U.S.C. §348(c)(1)].

149 FFDCA §409(d) & (b)(1) [21 U.S.C. §348(d) & (b)(1)].

150 FFDCA §409(b)(2) [21 U.S.C. §348(b)(2)].

151 FFDCA §409(b)(3) & (4) [21 U.S.C. §348(b)(3) & (4)].

152 21 C.F.R. Part 171.

153 FFDCA §409(b)(5) [21 U.S.C. §348(b)(5)].

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

safely (e.g., particular foods in which it may be used, maximum quantity, labeling and
directions).154 This 90-day period may be extended by FDA, as specified. FDA may not issue
such a regulation if a fair evaluation of the data “fails to establish that the proposed use of the
food additive, under the conditions of use to be specified in the regulation, will be safe,” subject
to specified limitations, or if a fair evaluation of the data “shows that the proposed use of the
additive would promote deception of the consumer in violation of [the FFDCA] or would
otherwise result in adulteration or in misbranding of food.”155 FDA is authorized to fix a
“tolerance limitation” if necessary to ensure safe use of the additive.156 In considering whether the
use of a food additive is safe, FDA must consider, among other relevant factors, the probable
consumption of the additive and cumulative effect in the diet.157 Any person adversely affected by
such order may file objections with FDA and request a public hearing and may file for judicial
review, as specified.158 Food additive regulations may be amended or repealed.159 An interested
person may, for example, submit a food additive petition requesting issuance of a regulation
allowing a new use of a previously approved additive.
If a food additive is already subject to an FDA regulation for the proposed intended use, it does
not require premarket approval via a petition.160 Instead, that food additive may be marketed by
complying with the applicable food additive regulation.

GRAS Notice Submission161

Any person may submit a notice to FDA expressing the view that a substance is GRAS and not
subject to the premarket review requirements for food additives under FFDCA Section 409. A
GRAS notice has seven parts, each of which must be included in a submission to FDA. If one of
the seven parts of a GRAS notice is omitted, the submission must explain why that part does not
apply. The seven parts of a GRAS notice are as follows:
1. signed statements and certification;
2. identity, method of manufacture, specifications, and physical or technical effect;
3. dietary exposure;
4. self-limiting levels of use;
5. experience based on common use in food before 1958;
6. narrative; and
7. a list of supporting data and information in the GRAS notice.
FDA evaluates the submission to determine whether to file it and then informs the submitter of
the agency’s decision. If FDA decides to file the GRAS notice, the agency sends a letter to the
submitter with the filing date. The regulations do not specify a filing deadline for FDA. The
regulations do state that FDA is required to respond to a GRAS notice within 180 days of filing.

154
FFDCA §409(c)(1) & (2) [21 U.S.C. §348(c)(1) & (2)].
155 FFDCA §409(c)(3) [21 U.S.C. §348(c)(3)].
156 FFDCA §409(c)(4) [21 U.S.C. §348(c)(4)].

157 FFDCA §409(c)(5) [21 U.S.C. §348(c)(5)].

158 FFDCA §409(f) & (g) [21 U.S.C. §348(f) & (g)].

159 FFDCA §409(i) [21 U.S.C. §348(i)].

160 FDA regulations for food additives are found at 21 C.F.R. Parts 170-199.

161 21 C.F.R. Part 170 Subpart E.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

FDA may extend that timeframe by 90 days as needed. Filed GRAS notices are made public by
FDA.162

162 FDA, GRAS Notice Inventory, https://www.accessdata.fda.gov/scripts/fdcc/?set=GRASNotices.

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 FDA Regulation of CBD Consumer Products and Considerations for Congress

Appendix B. Abbreviations Used in this Report

Table B-1. Abbreviations Used in this Report
AAFCO Association of American Feed Control Officials
CBD Cannabidiol
CFSAN Center for Food Safety and Applied Nutrition
CGMPs Current Good Manufacturing Practices
CSA Controlled Substances Act
CVM Center for Veterinary Medicine
DEA Drug Enforcement Administration
ENDS Electronic Nicotine Delivery Systems
FDA Food and Drug Administration
FFDCA Federal Food, Drug, and Cosmetic Act
FTC Federal Trade Commission
GRAS Generally Recognized as Safe
IND Investigational New Drug [application]
NASEM National Academies of Sciences, Engineering, and Medicine
NDA New Drug Application
NDI New Dietary Ingredient
NIH National Institutes of Health
NLM National Library of Medicine
OTC Over-the-counter
RCT Randomized Controlled Trial
TCA Family Smoking Prevention and Tobacco Control Act
THC Tetrahydrocannabinol
TTB Alcohol and Tobacco Tax and Trade Bureau
USDA United States Department of Agriculture
USPTO United States Patent and Trademark Office

Source: Created by CRS.

Author Contact Information

Agata Dabrowska, Coordinator Renée Johnson

Analyst in Health Policy Specialist in Agricultural Policy
[redacted]@crs.loc.gov , 7-.... [redacted]@crs.loc.gov , 7-....
Victoria R. Green Lisa N. Sacco
Analyst in Health Policy Analyst in Illicit Drugs and Crime Policy
[redacted]@crs.loc.gov
, 7-.... [redacted]@crs.loc.gov
, 7-....

Congressional Research Service R46189 · VERSION 1 · NEW 28

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