Congress has sometimes scheduled other substances through legislation such as the Hillory J. Farias and Samantha Reid Date-Rape Prevention Act of 2000, which placed gamma hydroxybutyrate (GHB) in Schedule I and sodium oxybate (the isolated sodium salt in GHB) in Schedule III when used under an FDA NDA or IND. Examples include: Cannabis is considered a Schedule I drug, but extracts such as CBD oil have medicinal properties. Title II, Part F of the Comprehensive Drug Abuse Prevention and Control Act of 1970 established the National Commission on Marijuana and Drug Abuse[13]known as the Shafer Commission after its chairman, Raymond P. Shaferto study cannabis abuse in the United States. Although some states have allowed use of marijuana in various ways, this has not changed federal law. The CSA creates a closed system of distribution[28] for those authorized to handle controlled substances. The Drug Enforcement Administration (DEA) implements the Controlled Substances Act and is empowered to prosecute violators of these laws. Schedule II includes substances that have medical uses, but also have potential to create substance dependence, and a high potential for abuse. That bill was then superseded by the Combat Methamphetamine Epidemic Act of 2005, which was passed as an amendment to the Patriot Act renewal and included wider and more comprehensive restrictions on the sale of PSE-containing products. Dependence refers to a state of being fully acclimated to a substance where the absence of the substance causes withdrawal, while addiction indicts a compulsion to use a substance that interferes with an individual's ability to function normally. Thirty days' notice is required before the order can be issued, and the scheduling expires after a year. Title II of the Comprehensive Drug Abuse Prevention and Control Act of 1970, commonly known as the Controlled Substance Act (CSA), establishes a federal policy to regulate the manufacturing, distributing, importing/exporting, and use of regulated substances. Temporary Reauthorization and Study of the Emergency Scheduling of Fentanyl Analogues Act of 2020, Expansion of the role of the United States Attorney General, The Psychotropic Substances Act of 1978 - allowed substances to be added to meet UN obligations under the Convention on Psychotropic Substances, The Anabolic Steroids Act (part of Crime Control Act of 1990) - made anabolic steroids a controlled substance (schedule III), The Domestic Chemical Diversion and Control Act of 1993 - response to methamphetamine trafficking, The Federal Analog Act, placing newly developed substances into the schedule category of the chemical that they most resemble. These criteria include: Dependence is distinct from, and should not be confused with, addiction. When a petition is received by the DEA, the agency begins its own investigation of the drug. Doses of less than 90mg of codeine also fall into this category - for example, you might be treated with a combination of acetaminophen and codeine (known by the trade name Tylenol #3) for your pain. Examples include: This list includes chemicals that have legitimate purposes, but are also used in creating substances in Schedule I as well as a lower schedule. [25] Proceedings to add, delete, or change the schedule of a drug or other substance may be initiated by the DEA, the Department of Health and Human Services (HHS), or by petition from any interested party, including the manufacturer of a drug, a medical society or association, a pharmacy association, a public interest group concerned with drug abuse, a state or local government agency, or an individual citizen. [65][66][67] One of those substances is cannabis, which is either decriminalized or legalized in 33 states of the United States.[68]. enforcement of the Controlled Substances Act, alongside the Drug Enforcement Agency. (Courtwright noted that the Act became, not libertarian, but instead repressionistic to the point of tyrannical, in its intent.) More information can be found inTitle 21 United States Code (USC) Controlled Substances Act. To increase the use of drugs in the United States O C. To help protect citizens from harmful substances O D. To ban the use of all drugs in the United States This Court has regularly and uniformly recognized the supremacy of the Constitution over a treaty. Encyclopaedia Britannica's editors oversee subject areas in which they have extensive knowledge, whether from years of experience gained by working on that content or via study for an advanced degree. The 2010 Secure and Responsible Drug Disposal Act (effective on October 12, 2010), to allow pharmacies to operate. Drugs listed in this control schedule include: In addition to the named substance, usually all possible ethers, esters, salts and stereo isomers of these substances are also controlled and also 'analogues', which are chemically similar chemicals. The Controlled Substance Act lists the different substances that are regulated by the federal government into five schedules of decreasing restrictions. 79, No. o A health facility or agency if the controlled substance is The act remains the primary legislation for drug control in the United States. The act was created to regulate controlled substance production, distribution, and marketing. To provide relief, in 2007, 21CFR 1306.12 was amended (at 72 FR 64921) to allow practitioners to write up to three prescriptions at once, to provide up to a 90-day supply, specifying on each the earliest date on which it may be filled.[49]. More significantly, they vary in nature. The term "controlled substance" means a drug or other substance, or immediate precursor, included in schedule I, II, III, IV, or V of part B of this subchapter. Many articles in these treatiessuch as Article 35 and Article 36 of the Single Conventionare prefaced with phrases such as "Having due regard to their constitutional, legal and administrative systems, the Parties shall . Create your account. The CSA not only combined existing federal drug laws and expanded their scope, but it also changed the nature of federal drug law policies and expanded federal law enforcement pertaining to controlled substances. It also clarifies the methods of removing, transferring, and adding substances to these schedules. It was originally put in place in 1996 under Prime Minister Jean Chrtien. Introduction Controlled Substance Act (1970 is used as a means of controlling and regulating dangerous and addictive drugs such as heroin and marijuana. He received a Bachelors in History from USU, with minors in Religious Studies and Anthropology. See id. Why is the Controlled Substance Act important? 91-513, 84 Stat. MORE Act reintroduced in U.S. House; SAFE Banking Act moves to U.S. Senate On May 28, 2021, Rep. Jerrold Nadler (D-NY) reintroduced the Marijuana Opportunity, Reinvestment and Expungement (MORE) Act.If enacted, the legislation would end the federal prohibition of cannabis by removing it from the Controlled Substances Act and ending criminal penalties under federal law. Federal Food, Drug, and Cosmetic Act: Definition and History, Psychological Research & Experimental Design, All Teacher Certification Test Prep Courses, Controlled Substances Act of 1970: Overview. 811 of the CSA, that authority is the Secretary of Health and Human Services (HHS). Proceedings to add, delete, or change the schedule of a drug or other substance may be initiated by the Drug Enforcement Administration (DEA), the Department of Health and Human Services (HHS), or by petition from any interested party, including: In determining into which schedule a drug or other substance should be placed, or whether a substance should be decontrolled or rescheduled, certain factors are required to be considered. The Comprehensive Act of 1970 made it possible for the United States to satisfy the obligations set forth by international drug-control treaties. O A. (5) The scope, duration, and significance of abuse. The Controlled Substances Act (CSA) is the statute establishing federal U.S. drug policy under which the manufacture, importation, possession, use, and distribution of certain substances is regulated. [9] Others were the Federal Food, Drug, and Cosmetic Act (1938), and the Kefauver Harris Amendment of 1962. Prescriptions for Schedule IV drugs may be refilled up to five times within a six-month period. Schedule I was the substances not known to have any therapeutic benefit, schedule II was for substances with a high potential for dependency but were valuable for medical use, while schedule III - V were for decreasing potential of dependency while also being valuable for medical use. 25 July, 2018. Schedule I drugs are substances with no legitimate medical use. The drug or other substance has a low potential for abuse relative to the drugs or other substances in Schedule III, The drug or other substance has a currently accepted medical use in treatment in the United States, Abuse of the drug or other substance may lead to limited physical dependence or psychological dependence relative to the drugs or other substances in Schedule III, The drug or other substance has a low potential for abuse relative to the drugs or other substances in schedule IV. Updates? In the context of the Controlled Substances Act, a controlled substance is one that has been placed on one of the five schedules and two lists for government regulation and control. Accessed 3 March, 2023. The Controlled Substances Act of 1970 had three main purposes: By extension, it also paved the way for the Drug Enforcement Administration to enforce its regulations and make decisions on substances based on various criteria. Under certain circumstances, the Government may temporarily schedule[27] a drug without following the normal procedure. [47] Notably no emergency situation provisions exist outside the Controlled Substances Act's "closed system" although this closed system may be unavailable or nonfunctioning in the event of accidents in remote areas or disasters such as hurricanes and earthquakes. It would not be contended that it extends so far as to authorize what the Constitution forbids, or a change in the character of the government, or in that of one of the States, or a cession of any portion of the territory of the latter, without its consent. The Federal Comprehensive Drug Abuse Prevention and Control Act, commonly known as the Controlled Substances Act, is federal legislation that created five schedules for controlled substances that were regulated at the time by the federal government. Once the DEA has collected the necessary data, the Deputy Administrator of DEA,[26]:42220 requests from HHS a scientific and medical evaluation and recommendation as to whether the drug or other substance should be controlled or removed from control. While it was being drafted, the Uniform Controlled Substances Act, to be passed by state legislatures, was also being drafted by the Department of Justice; its wording closely mirrored the Controlled Substances Act.[16]. The handling, storage, and distribution of controlled substances in the custody of your pharmacy is regulated by the DEA and the Controlled Substances Act (CSA). It also created two lists of chemicals that can be used to create substances on Schedule I. More information on the Drug Scheduling process, DEA. Up to 1000 milligrams of opium per 100 grams of a compound or mixture, altering the controlled substance schedules alongside the Department of Health and Human Services, and. In any case, once these proceedings are complete, the temporary order is automatically vacated. Controlled Substances Evaluation Program but referred to throughout this document as the "database"), but makes a number of changes regarding database reporting, checking and access to information. The Controlled Substances Act of 1970 (CSA) was a federal act passed by the United States Congress that placed comprehensive drug control policy under federal control. In Reid v. Covert the Supreme Court of the United States addressed both these issues directly and clearly holding: [N]o agreement with a foreign nation can confer power on the Congress, or on any other branch of Government, which is free from the restraints of the Constitution. Her area of clinical focus is the impact of infectious disease on pregnancy. Retailers now commonly require PSE-containing products to be sold behind the pharmacy or service counter. The 2017 Protecting Patient Access to Emergency Medications Act (PPAEMA) amended Section 33 of the CSA to include DEA registration for Emergency Medical Service (EMS) agencies, approved uses of standing orders, and requirements for the maintenance and administration of controlled substances used by EMS agencies. ) or https:// means youve safely connected to the .gov website. . While every effort has been made to follow citation style rules, there may be some discrepancies. Controlled Substances Act. Depending on what category a drug is . More information can be found in Title 21 United . Both the CSA and the treaties set out a system for classifying controlled substances in several schedules in accordance with the binding scientific and medical findings of a public health authority. If control of a substance is mandated by the Single Convention, the Attorney General is required to "issue an order controlling such drug under the schedule he deems most appropriate to carry out such obligations," without regard to the normal scheduling procedure or the findings of the HHS Secretary. The drug or other substance has a currently accepted medical use in treatment in the United States. [34] The specific classification of any given drug or other substance is usually a source of controversy, as is the purpose and effectiveness of the entire regulatory scheme. The Controlled Drugs and Substances Act is Canada's federal policy on all things related to illegal substances. The act paved the way for future legislation related to drugs and other substances. What Did the Controlled Substances Act Do? These chemical space, chemical family, generic statements or markush statements (depending on the legislation terminology) have widely been used for many year's by other countries,[64] notably the UK in the Misuse of Drugs Act. Examples: heroin, LSD, MDMA (a.k.a. Health professionals' licenses include specific license . Study with Quizlet and memorize flashcards containing terms like Federal Comprehensive Drug Abuse Prevention and Control Act of 1970 (Controlled Substances Act), What do they mean by closed system when talking about the controlled substances acts, Why would a drug be a schedule 1? Reed Hepler received an M.L.I.S. Dependence indicates that a patient will experience withdrawal without a substance as they have become habituated to it. Because refills of prescriptions for Schedule II substances are not allowed, it can be burdensome to both the practitioner and the patient if the substances are to be used on a long-term basis. "(1) In general. The Congress finds that the abuse of illicit gamma hydroxybutyric acid is an imminent hazard to the public safety. These psychoactive drugs are not controlled by the act, and are also allowed for sale intended for recreational use at the federal level (others are allowed for sale as dietary supplements, but not specifically regulated or intended for recreational use): The Controlled Substances Act also provides for federal regulation of precursors used to manufacture some of the controlled substances. Previous legislation was difficult to enforce because of loopholes that companies found. The charges for which are set out in the I llinois Controlled Substances Act at 720 ILCS 570/1 et seq. By statutory requirement, a valid . It was passed by the 91st United States Congress as Title II . The Controlled Substances Act created a five-category scheduling system for most legal and illegal drugs (although alcohol and tobacco were notably omitted). (3) The state of current scientific knowledge regarding the drug or other substance. An Employment and Insurance (E&I) Exempt oral fluid drug test is a type of drug test used in workplace drug testing programs and insurance underwriting. A pharmacist may not change the following components of a prescription for a Schedule II controlled substance: i. Concerned people and organizations may petition either of these organizations to change the status of a substance. It was during this time, that marijuana was listed as a Schedule 1 drug under the . When you're leaving the hospital with your prescriptions, one looks different than the others. The Controlled Substances Act. An Act to amend the Public Health Service Act and other laws to provide increased research into, and prevention of, drug abuse and drug dependence; to provide for treatment and rehabilitation of drug abusers and drug dependent persons; and to strengthen existing law enforcement authority in the field of drug abuse. Accepted medical use: Is this drug used as a treatment in the United States? Addiction indicates that an individual's compulsion to use a substance is impacting their ability to function normally. A prescription drug monitoring program (PDMP) is an electronic database that tracks controlled substance prescriptions in a state. Nor is there anything in the debates which accompanied the drafting and ratification of the Constitution which even suggests such a result. Since its enactment in 1970, the Act has been amended numerous times: The Controlled Substances Act consists of two subchapters. There are five different schedules of controlled substances, numbered IV. Also, the counterculture of the 1960s encouraged the proliferation of drugs and drug-like substances. Lock There is nothing in this language which intimates that treaties and laws enacted pursuant to them do not have to comply with the provisions of the Constitution. [4][5] In addition, research shows certain substances on Schedule I, for drugs which have no accepted medical uses and high potential for abuse, actually have accepted medical uses, have low potential for abuse, or both. The Controlled Substances Act (CSA) places all substances which were in some manner regulated under existing federal law into one of five schedules. 49661 - 49682 / Aug 22, 2014 DEA-Final Rule, Effective October 6, 2014, Exempt Anabolic Steroids (21 CFR 1308.33 and 21 CFR 1308.34) 05 February 2015 Drug Enforcement Administration Office of Diversion Control Drug and Chemical Evaluation Section, [Federal Register Volume 76, Number 238 (Monday, December 12, 2011)] [Rules and Regulations] [Pages 77330-77360], Interstate and Foreign Commerce Committee, Hillory J. Farias and Samantha Reid Date-Rape Prevention Act of 2000, United States v. Oakland Cannabis Buyers' Cooperative, Repeal of Prohibition in the United States, Comprehensive Drug Abuse Prevention and Control Act of 1970, National Commission on Marijuana and Drug Abuse, Controlled Substances Penalties Amendments Act of 1984, United Nations Convention Against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, 2012 Synthetic Drug Abuse Prevention Act Subtitle D, amended to describe and control all chemical space related to Fentanyl like chemicals, their constitutional amendment guaranteeing freedom of speech, Bureau of Alcohol, Tobacco, Firearms and Explosives, Combat Methamphetamine Epidemic Act of 2005, Removal of cannabis from Schedule I of the Controlled Substances Act, Drug Trafficking Safe Harbor Elimination Act, "2000 - Addition of Gamma-Hydroxybutyric Acid to Schedule I", "William J. Clinton: Statement on Signing the Hillory J. Farias and Samantha Reid Date-Rape Drug Prohibition Act of 2000", Basis for the Recommendation to Control 5-Methoxy-Dimethyltryptamine (5-MeO-DMT) in Schedule I of the Controlled Substances Act, "Illegal Drugs in America: A Modern History", "The 1912 Hague International Opium Convention", "History of Legislative Control Over Opium, Cocaine, and Their Derivatives", "50 Years: The Kefauver-Harris Amendment", "Part FAdvisory Commission: Establishment of Commission on Marihuana and Drug Abuse", National Commission on Marihuana and Drug Abuse, "NORML - Working to Reform Marijuana Laws", "The 1970 Act: Don't Sit There, Amend Something", "S.510 - An Act to amend the Federal Food, Drug, and Cosmetic Act to provide for the safety and effectiveness of medical devices intended for human use, and for other purposes", "S.3397 - 111th Congress (2009-2010): Secure and Responsible Drug Disposal Act of 2010", "CDC - The Protecting Patient Access to Emergency Medications Act of 2017 - Publications by Topic - Public Health Law", "Title 21 United States Code (USC) Controlled Substances Act", "Final Order: Temporary Placement of Five Synthetic Cannabinoids Into Schedule I", "The Closed System of Controlled Substance Distribution", "Reid v. Covert, 354 U. S. 1 at pp 1719", 21 U.S.C. The Controlled Substances Act of 1970 (CSA) was a federal act passed by the United States Congress that placed comprehensive drug control policy under federal control. (6) What, if any, risk there is to the public health. These debates, as well as the history that surrounds the adoption of the treaty provision in Article VI, make it clear that the reason treaties were not limited to those made in "pursuance" of the Constitution was so that agreements made by the United States under the Articles of Confederation, including the important peace treaties which concluded the Revolutionary War, would remain in effect. This was an expansion of the general campaign against substance abuse she had carried out since 1982. and more. The first act established penalties for drug trafficking. Production, distribution, and possession of these substances is illegal except under the regulations of the Controlled Substances Act. . Name of the prescriber, or add a signature; and iv. The Controlled Substances Act was enacted in 1970 in order to regulate dangerous substances in the United States. While schedule I substances are illegal, schedule II substances have stringent prescribing guidelines to prevent counterfeiting. Controlled substance analogues intended for human consumption, as defined by the, The drug or other substance has a high potential for abuse, The drug or other substance has a currently accepted medical use in treatment in the United States, or a currently accepted medical use with severe restrictions. I would definitely recommend Study.com to my colleagues. Electronic Prescribing of Controlled Substances. Besides those prescribed cannabis by physicians for health reasons, it was a drug whose use was primarily associated with hippies and black people. Schedule III - V have less stringent prescribing guidelines including the allowance for refills. OTP Regulations She has experience teaching college allied health classes. Learn about the Controlled Substances Act of 1970. With exceptions, an original prescription is always required even though faxing in a prescription in advance to a pharmacy by a prescriber is allowed. Comprehensive Methamphetamine Control Act of 1996, which altered penalties for manufacturing and distributing methamphetamine. Substance Abuse Insurance Laws. These drugs vary in potency: for example fentanyl is about 80 times as potent as morphine (heroin is roughly two times as potent). (7) Its psychic or physiological dependence liability. (emphasis added)[39]. Contemporary drug policy in America attempted to control the distribution and prevent the use of depressant, stimulant and hallucinogenic compounds that could be abused and determine The Act categorizes drugs into five classifications or "schedules" based on their potential for abuse, status in international treaties, and any medical . This classification means that it is has a high potential . The U.S. has a drug policy that has been at crossroads. Factors in the creation of the Controlled Substances Act include previous legislation on drugs and the resultant counterculture of the 1960s. The Controlled Substances Act ( CSA) is the statute establishing federal U.S. drug policy under which the manufacture, importation, possession, use, and distribution of certain substances is regulated. Let us know if you have suggestions to improve this article (requires login). Controlled substances are organized into five categories - known as schedules. Considered the most dangerous, these drugs don't have . Examples of schedule IV substances include: small amounts of codeine (such as in cough syrup), pregabalin (Lyrica), diphenoxylate and atropine (Lomotil). It would be manifestly contrary to the objectives of those who created the Constitution, as well as those who were responsible for the Bill of Rightslet alone alien to our entire constitutional history and traditionto construe Article VI as permitting the United States to exercise power under an international agreement without observing constitutional prohibitions. The Controlled Substances Act (CSA) was signed into law by President Richard Nixon on October 27, 1970. In 1969, Nixon declared that one of his highest priorities would be the regulation of drug use. 811(a)-(c), 812], shall issue, not later than 60 days after the date of the enactment of this Act [Feb. 18, 2000], a . In the Act, there is a list of punishable offenses that relate to dangerous substances, such as punishment for the importing of a controlled substance from another country. [31], The Cato Institute's Handbook for Congress calls for repealing the CSA, an action that would likely bring the United States into conflict with international law, were the United States not to exercise its sovereign right to withdraw from and/or abrogate the Single Convention on Narcotic Drugs and/or the 1971 Convention on Psychotropic Substances prior to repealing the Controlled Substances Act. c. Except when dispensed directly by a practitioner, other than a pharmacist, to an ultimate user, no controlled substance in schedule II, which is a prescription drug as determined under the Federal Food, Drug, and Cosmetic Act [ 21 U.S.C. 114-198). Every schedule otherwise requires finding and specifying the "potential for abuse" before a substance can be placed in that schedule. DEA. Second Report of the National Commission on Marihuana and Drug Abuse; Drug Use In America: Problem In Perspective (March 1973), p.13, Federal Register / Vol. . The Controlled Substances Act is the federal statute that regulates the manufacture and distribution of controlled substances such as hallucinogens, narcotics, depressants, and stimulants. (8) Whether the substance is an immediate precursor of a substance already controlled under this subchapter. Nixon influenced international relations to reduce opium production and distribution in Turkey. ." Origin of the Controlled Substances Act. This schedule includes substances that have no known medical benefit or therapeutic usage and that can cause dependency. [1] The CSA was enacted by the 91st United States Congress and signed by President Richard Nixon into law in 1970. "The Controlled Substances Act. Name of the drug. The drug or other substance has a high potential for abuse. He also earned a Certificate in Museum Studies. Then, HHS solicits information from the Commissioner of the Food and Drug Administration and evaluations and recommendations from the National Institute on Drug Abuse and, on occasion, from the scientific and medical community at large. What is a controlled substance? Two federal agencies, the Drug Enforcement Administration (DEA) and the Food and Drug Administration (FDA), determine which substances are added to or removed from the various schedules, although the statute passed by Congress created the initial listing. This schedule is mostly comprised of mixtures of chemicals. Cocaine is a Schedule II controlled substance, which makes it one of the most highly regulated drugs in the U.S. The bill, as introduced by Senator Everett Dirksen, ran to 91 pages. Pharmacology and CSA scheduling have a weak relationship. [30], A provision for automatic compliance with treaty obligations is found at 21 U.S.C. She is also a certified EMT and holds a certificate of added qualification in electronic fetal monitoring. Under 21U.S.C. To regulate who could prescribe medication O B. Read about its classification system. The actual and potential harm of use of the drug is not great enough to justify intrusion by the criminal law into private behavior, a step which our society takes only with the greatest reluctance. Similar legislation outside of the United States: On this Wikipedia the language links are at the top of the page across from the article title. (SB46 of 2021 created a new medical cannabis law enacted on May 17 . Omnibus Budget Reconciliation Act of 1990, Controlled Substances Act of 1970: Definition & History, Health Maintenance Organization Act: History & Summary, Environmental Science 101: Environment and Humanity, Middle School Physical Science: Tutoring Solution, SAT Subject Test Biology: Tutoring Solution, Physics 101 Syllabus Resource & Lesson Plans, 8th Grade Physical Science: Enrichment Program, High School Chemistry Syllabus Resource & Lesson Plans, Fundamentals of Nursing for Teachers: Professional Development, High School Physical Science: Help and Review, Middle School Life Science: Homework Help Resource, Schedule I Drug Classification & Drug List, Schedule IV Drug Classification & Drug List, Schedule II Drug Classification & Drug List, Schedule of Drugs: Classification & Examples, Schedule V Drug Classification & Drug List, Schedule III Drug Classification & Drug List, Accretionary Wedge: Definition & Formation, Working Scholars Bringing Tuition-Free College to the Community, Has no currently accepted medical use in treatment in the United States, Have an accepted medical use in the United States, Abuse of the drug may lead to severe psychological or physical dependence, While having potential for abuse, are less likely to be abused than substances in schedule I and schedule II, Has low to moderate risk for physical dependence or high risk for psychological dependence, Substances that have a lower potential for abuse than schedule III, Substances that have an accepted medical usage, Substances that lead to only limited physical or psychological dependence compared to schedule III, Substances that have low potential for abuse, Substances that have accepted medical usage, Substances that may lead to only limited physical of psychological dependence compared to schedule IV, Federal Food, Drug, and Cosmetic Act of 1938, Drug Abuse Control amendments to various acts in 1965, Create rehabilitation guidelines for controlled substance abusers, Create a five-tiered system to classify controlled substances and list other substances related to the substances in these tiers, Provide ways for substances to be removed, transferred, and added to these schedules, evidence of a drug's claimed medical effects, how well the effects of the drug are known, strength of, impact of, and trends of abuse of the substance, risk that the substance poses to public health, potential for the development of psychic or physiological dependence, and, whether the substance can be altered or used in a mixture to create another controlled substance.