The legislation would require the Food and Drug Administration (FDA) to establish national standards for monitoring the movement of prescription drugs through the drug distribution system. The "drug distribution system" encompasses the network of companies that produce, handle, distribute, and dispense drug products. The legislation also would require the FDA to establish a licensing program for certain third parties that provide logistic services to support pharmaceutical manufacturers, wholesalers, and dispensers.
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http://www.cbo.gov/sites/default/files/cbofiles/attachments/HR1919_SPAYGO.pdf