29 January 2026

Is repeated use of Art. 10(b) Directive 2001/83 for fixed-dose combinations allowed? Preliminary questions to CJEU

29 January 2026

On 24 December 2025, the Council of State (the highest administrative body in NL, hereafter: “Council”) issued its judgment in the administrative appeal proceedings between the Dutch Medicines Evaluation Board (‘‘CBG’’) and several generic companies incl. Laboratorios Cinfa S.A. (‘‘Cinfa’’) against Organon N.V. (‘‘Organon’’). The case concerns fixed-dose combination (“FDC”) products containing ezetimibe and atorvastatin and the use of the simplified procedure for obtaining a marketing authorisation (“MA”) based on Art. 10(b) of Directive 2001/83 (the “Directive”). In the NL version of the Directive, Art. 10(b) is article is referred to as Art. 10ter). The Council stayed the proceedings and referred two preliminary questions to the Court of Justice of the European Union (“CJEU”). The answers to these questions are particularly important, as they may determine whether Art. 10(b) of the Directive can be relied on more than once for the same FDC, allowing subsequent applicants to obtain an MA without submitting a full dossier on the mono products and instead to provide new data only on the FDC itself.

What preceded

Cinfa applied in NL for several MAs for FDC products containing ezetimibe and atorvastatin. The CBG granted these MAs under the simplified requirements of Art. 10(b) of the Directive. For the same combination, the CBG had already granted an MA to Organon for its product Atozet. This MA was also based on the Art. 10(b) procedure. Both Organon and Cinfa submitted their own dossier for the FDC, relying on the existing mono product dossiers for the respective individual active substances, which were no longer protected by data/market exclusivity. Furthermore, the indications do not fully overlap. Cinfa’s products are indicated as a substitution therapy.

Organon objected to the MAs granted to Cinfa. The CBG dismissed Organon’s objections. Organon therefore appealed to Administrative Division of the District Court of Noord Holland (the “Court”). The Court held that the MAs for Cinfa’s FDC could not lawfully be granted using the Art. 10(b) procedure. In the Court’s view, ezetimibe and atorvastatin had already been combined “for therapeutic purposes” in Atozet. On a literal reading, Art. 10(b) only applies where the active substances “have not hitherto been used in combination for therapeutic purposes”. Once an FDC has been authorised under Art. 10(b), thesame combination can therefore no longer benefit fromthat simplified route. Both the CBG and Cinfa appealed to the Council.

Interpretation of Article 10 (b) Directive 2001/83

The Council notes that Art. 10(b) offers a simplified route for FDCs where each active substance is already authorised as a mono product and its data exclusivity has expired. The applicant may rely on the existing mono product dossiers and only has to provide new preclinical and/or clinical data for the combination product itself. The Council states that the primary objective of the Directive is the protection of public health, while it also aims to avoid unnecessary repetition of animal/human testing, but also to create an environment that does not unduly hinder pharmaceutical innovation and competition.

The Council points out that the phrase “have not hitherto been used in combination for therapeutic purposes” could be read as implying that only the first FDC of particular active substances may rely on Art. 10(b). Thus, once an MA has been granted under Art. 10(b) for a given combination, subsequent applicants for the same combination would be excluded from using this provision.

However, the Council observes that this textual reading does not fully align with the objectives and structure of the Directive. In regulatory practice, a substantial majority of Member States allow multiple Art. 10(b) MAs for the same combination, provided each applicant submits its own dossier for the FDC and does not rely on data still under protection. The CMDh has endorsed this approach, and the European Commission has, in several opinions and a 2022 letter, taken the position that multiple Art. 10(b) applications for the same combination are not excluded as long as regulatory data protection is respected. The Council also refers to the decision of the Spanish ‘Tribunal Supremo’, which held that neither national nor EU law precludes repeated use of Art. 10(b) for the same combination, and notes that similar litigation is pending in France. In view of the divergent national case law and administrative practice, the Council concludes that the interpretation of Art. 10(b) is not an acte clair and that there is a risk of inconsistent application across the EU.

The preliminary questions to the CJEU

To ensure a uniform interpretation of Art. 10(b), the Council refers two questions to the CJEU: 1. Whether Art. 10(b) of the Directive must be  nterpreted as allowing a subsequent MA for the same FDC of active substances to be granted under that provision, even where an earlier MA for that combination has already been granted using Art. 10(b)? 2. Whether, when answering the first question, it is relevant that the subsequent combination product is
applied for with a different therapeutic indication from that of the earlier combination product – i.e. whether a different indication implies a different “therapeutic purpose” within the meaning of Art. 10(b)?

Conclusion

The forthcoming CJEU judgment will clarify whether Art. 10(b) can be relied on more than once for the same FDC and whether differences in therapeutic indications are relevant for that assessment. The outcome will clarify the way to go forward with MA applications for FDC products by using the Art 10(b) route, a full-dossier application or a belated generic application.

Author
M.H.J. (Marleen) van den Horst

Attorney at Law & Partner

Author
I. E. H. M. (Iris) Arts

Attorney at Law

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Reasonable expectation of success The LD Munich further assesses whether the skilled person, starting from a realistic starting point and seeking to solve the objective technical problem, would have (and not only could have) arrived at the claimed solution. Taking NHSC’s protocol of the Phase III TROPIC trial as the starting point, the LD Munich notes that it discloses all features of claim 1 in hypothesis form and records that the trial was already well advanced at the priority date. It then weighs the positive and negative pointers in the prior art. The LD Munich finds that a skilled person at the priority date would have had a reasonable expectation of success in view of the clinical Phase III trial and finds the patent invalid based on lack of inventive step. The LD Munich points out that the skilled person does not need to have certainty of success by any means. It adds that, in oncology, Phase III trials are regularly initiated without a Phase II study in the same tumour type, and holds that in this case the absence of a prostate-cancer Phase II trial did not preclude a reasonable expectation of success, No binding effect of EPO decisions Having regard to the deviating decisions of the OD and the BoA, the LD Munich considers that these decisions do not have a binding effect. It specifically emphasises that, while the UPC may, in principle, consider decisions and opinions issued by national courts and the EPO when interpreting the EPC, this does not relieve a UPC panel of its duty as an independent judicial body to interpret and apply the EPC in full. Conclusion The LD Munich revokes EP 466 in its entirety with effect in the following UPC Contracting Member States AT, BE, DE, DK, FR, IT, NL, PT and SE and dismisses the infringement actions. 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Other jurisdictions According to the Provisions Judge (par. 4.24), the SPC applications relating to safinamide have been refused in the UK, Finland and Sweden. These cases concerned SPC applications that were defined as a combination of safinamide and levodopa/PDI, creating a discussion on Art. 3(b) instead of Art. 3(a). In Germany the SPC is also refused on the basis of Art. 3(a) (appeal pending). Conclusion As the Provisions Judge holds the SPC valid, the inclusion of Vivanta’s Products in the G-Standaard constitutes infringement within the meaning of Art. 53 Dutch Patent Act. Therefore, a PI is granted.
1
Marleen van den Horst
Attorney at Law
NL District Court upholds two of Regeneron’s aflibercept patents (Eylea); Samsung Bioepis infringes EP 691
On 1 October 2025, the District Court of The Hague (“Court”) handed down its decision in the accelerated final relief proceedings between Samsung Bioepis NL B.V. (“SB”) and Regeneron Pharmaceuticals, Inc. (“Regeneron”). The Court dismissed SB’s revocation action against the NL part of EP 2 364 691 (“EP 691”) and the NL part of EP 2 944 306 (“EP 306”) and denied the requested Arrow declarations. The Court held that SB’s aflibercept biosimilar (Opuviz) infringes EP 691. It maintained EP 306 in amended form. What preceded Regeneron holds EP 691 and EP 306, which are divisionals of EP 2 209 103. Both patents are entitled: “VEGF antagonist formulations suitable for intravitreal administration”. The medicinal product of Regeneron is marketed under the brand name ‘Eylea’. Eylea is used in the treatment of, amongst others, wet Age-related Macular Degeneration (wAMD). On 13 January 2025, the Opposition Division of the EPO invalidated EP 306, holding that EP 306 was not entitled to priority and contained added matter. Regeneron appealed. In the appeal proceedings Regeneron relied, in its Main Request, on one single claim. No opposition was filed against EP 691. SB started two revocation actions before the Court claiming that both patents are invalid due to added matter, lack of novelty and lack of inventive step based on several prior art documents. It also contested that the patents can claim priority based on US 484. In each case, SB also requested an Arrow declaration. Regeneron filed a counterclaim for infringement of the NL part of EP 691. Moreover, it requested the Court to grant an injunction in all designated states of EP 691 (excluding UK and DE) based on the alleged threat of unlawful acts performed by SB. The decision Added matter and priority In the combined proceedings, the Court rejected SB’s arguments and held that, based on common general knowledge, both US 484 and the applications for EP 691 and EP 306 provide a clear and direct basis for combining aflibercept with the excipients in the claimed amounts or ranges. The formulations were disclosed directly and unambiguously in US 484 and in the applications, including those claims or parts referring to the mature sequence (‘’consisting of”), the sodium phosphate buffer, and the pre-filled syringe. Novelty The Court notes that the skilled person would understand that intravitreal use requires an isotonic formulation. In contrast, the prior art (WO 852 and Fraser) only disclose hypertone formulations, whereas WO 650 does not disclose intravitreal use. Thus, none of these documents discloses directly and unambiguously claims 1 and 6 of EP 691. Therefore, the Court finds EP 691 novel. Inventive step The Court rejects SB’s invalidity arguments regarding inventive step. Based on the common general knowledge a skilled person could have arrived at the formulation claimed in EP 691 on the basis of US 234. However, SB has not sufficiently demonstrated that he would have done so without inventive labour, because he had a reasonable expectation of success. The Court states that there is no try-and-see situation applicable under these circumstances. Infringement of claim 6 The Court finds that claim 6 of EP 691 is infringed. In reaching this conclusion, the Court relies on Regeneron’s expert evidence, including the CEPTER report, which demonstrates that SB’s product corresponds to the claimed aflibercept composition. SB did not submit any experimental data nor did it provide samples to contradict these findings. Unlawful acts of SB Regeneron also requested an injunction in all designated states of EP 691 (excluding UK and DE) as it considers it likely that SB will grant third parties in all designated states the right to use SB’s marketing authorisation (“MA”) for Opuviz. The Court finds it has jurisdiction to hear such claim under article 4 of the Brussels I bis Regulation, but dismisses the request as Regeneron insufficiently substantiated which third parties threaten to make use of the MA of SB in which countries. Other jurisdictions The Court notes that there are ongoing proceedings relating to these (or related) patents in: DE, UK, SK and the US. The proceedings in DE focused on the validity of EP 691. Shortly after the Court handed down its decision on 1 October, the UK High Court rendered its judgement on 8 October in the parallel revocation action filed by Formycon and SB UK. The High Court held that EP 306 was not entitled to priority and thus invalid for added matter. EP 691 was maintained but in an amended form. Contrary to the NL decision, the High Court found that there was no infringement. The UK decision also mentions that there are parallel proceedings in FR, IT, BE and CA. Conclusion The Court holds the NL part of EP 691 valid and infringed. Furthermore, the Court maintained the NL part of EP 306 in amended form.