Teva Pharmaceuticals USA, Inc. v. Pfizer, Inc.

United States Court of Appeals for the Federal Circuit

04-1186

TEVA PHARMACEUTICALS USA, INC.,

Plaintiff-Appellant,

v.

PFIZER INC.,

Defendant-Appellee.

Henry C. Dinger, Goodwin Procter LLP, of Boston, Massachusetts, argued for
plaintiff-appellant. Of counsel on the brief was Thomas J. Meloro, Jr., Kenyon &
Kenyon, of New York, New York.

Dimitrios T. Drivas, White & Case LLP, of New York, New York, argued for
defendant-appellee. With him on the brief were Jeffrey J. Oelke and Adam Gahtan.

William A. Rakoczy, Rakoczy Molino Mazzochi LLP, of Chicago, Illinois, for
amicus curiae Generic Pharmaceutical Association. With him on the brief was Lara E.
Monroe-Sampson.

Sarah Lenz Lock, AARP Foundation Litigation, of Washington, DC, for amicus
curiae AARP. With her on the brief was Bruce Vignery. Of counsel on the brief was
Michael Schuster, AARP, of Washington, DC.

William L. Mentlik, Lerner, David, Littenberg, Krumholz & Mentlik, LLP, of
Westfield, New Jersey, for amicus curiae IVAX Pharmaceuticals, Inc. With him on the
brief was Roy H. Wepner.

Lawrence DeMille-Wagman, Attorney, Federal Trade Commission, of
Washington, DC, for amicus curiae Federal Trade Commission. With him on the brief
were William E. Kovacic, General Counsel; Susan A. Creighton, Director, Bureau of
Competition; John F. Daly, Deputy General Counsel for Litigation; and Lore A. Unt,
Counsel for Intellectual Property.

Appealed from: United States District Court for the District of Massachusetts

Judge Richard G. Stearns
 United States Court of Appeals for the Federal Circuit

04-1186

TEVA PHARMACEUTICALS USA, INC.,

Plaintiff-Appellant,

v.

PFIZER, INC.,

Defendant-Appellee.

__________________________

DECIDED: January 21, 2005
__________________________

Before MAYER*, CLEVENGER, and SCHALL, Circuit Judges.

Opinion for the court filed by Circuit Judge SCHALL. Dissenting opinion filed by Circuit
Judge MAYER.

SCHALL, Circuit Judge.

Teva Pharmaceuticals USA, Inc. (“Teva”) is a manufacturer of generic

pharmaceuticals. In July of 2002, it filed an Abbreviated New Drug Application

(“ANDA”) pursuant to the provisions of the Hatch-Waxman Amendments to the Federal

Food, Drug and Cosmetic Act. In its ANDA, Teva sought the approval of the Food and

*
Judge Haldane Robert Mayer vacated the position of Chief Judge on
December 24, 2004.
Drug Administration (“FDA”) to market its generic version of the drug sertraline

hydrochloride. Sertraline hydrochloride is sold under the trade name Zoloft® by Pfizer,

Inc. (“Pfizer”). Pfizer holds two patents relating to Zoloft®: U.S. Patent No. 4,356,518

(the “’518 patent”) and U.S. Patent No. 5,248,699 (the “’699 patent”).

When Teva filed its ANDA, it also filed what is called in Hatch-Waxman parlance

a “paragraph III certification.” In that certification, Teva stated that it would not market

its generic drug until the ’518 patent expires. Simultaneously, Teva filed a Hatch-

Waxman “paragraph IV certification.” In that certification, Teva stated that its generic

drug did not infringe the ’699 patent or, alternatively, that the ’699 patent is invalid. The

’699 patent expires after the ’518 patent. Pursuant to the provisions of the Hatch-

Waxman Amendments, Pfizer had forty-five days from the date it received notice of

Teva’s paragraph IV certification to sue Teva for infringement of the ’699 patent, and

during that period the statute barred Teva from filing a declaratory judgment action

against Pfizer based upon its ANDA.

On January 24, 2003, after Pfizer failed to sue Teva within the forty-five-day

period following Pfizer’s receipt of notice of the paragraph IV certification, Teva filed a

declaratory judgment action against Pfizer in the United States District Court for the

District of Massachusetts. In its suit, Teva sought a determination that its generic drug

did not infringe Pfizer’s ’699 patent or that the claims of the ’699 patent were invalid. On

December 8, 2003, the district court dismissed Teva’s suit for lack of jurisdiction. It did

so on the ground that Teva had failed to establish that an actual controversy existed

between it and Pfizer, as required under the Declaratory Judgment Act, 28 U.S.C.

04-1186 2
§ 2201(a).1 Teva Pharms. USA, Inc. v. Pfizer Inc., No. 03-CV-10167-RGS (D. Mass.

Dec. 8, 2003).

Teva now appeals the decision of the district court, claiming that the court erred

as a matter of law in holding that there was no actual controversy between it and Pfizer.

The court determined that Teva failed to show that Pfizer had taken actions giving rise

to a reasonable apprehension on its part that Pfizer would sue it for infringement of the

’699 patent. Having considered the arguments of the parties and several amici,2 we see

no error in the district court’s ruling that Teva failed to establish that an actual

controversy existed between it and Pfizer. We therefore affirm.

BACKGROUND

I.

A. The Hatch-Waxman Amendments

The Hatch-Waxman Amendments were enacted as part of the Drug Price

Competition and Patent Term Restoration Act of 1984, Pub. L. No. 98-417, 98 Stat.

1585 (codified at 21 U.S.C. §§ 355, 360cc, and 35 U.S.C. §§ 156, 271, 282). In the

Amendments, Congress struck a balance between two competing policy interests: (1)

inducing pioneering research and development of new drugs and (2) enabling

competitors to bring low-cost, generic copies of those drugs to market. Andrx Pharms.,

Inc. v. Biovail Corp., 276 F.3d 1368, 1371 (Fed. Cir. 2002).

1
Unless otherwise indicated, all statutory references are to the 2003
version of the United States Code.
2
Amicus Curiae Ivax Pharmaceuticals, Inc. submitted a brief in support of
Pfizer urging affirmance. Amici Curiae the Federal Trade Commission, the Generic
Pharmaceutical Association, and AARP submitted briefs in support of Teva urging
reversal.

04-1186 3
 In order to speed up the approval process for generic drugs, the Amendments

provide that a generic drug manufacturer may submit an ANDA for approval by the

FDA, rather than a full New Drug Application (“NDA”). The ANDA may rely on the

safety and efficacy studies previously submitted as part of the NDA by demonstrating

the generic drug’s bioequivalence with the previously approved drug product. See 21

U.S.C. § 355(j)(2)(A). Under 35 U.S.C. § 271(e)(1), it is not an act of patent

infringement to engage in otherwise infringing acts necessary to prepare an ANDA.

However, section 271(e)(2) provides that a generic drug manufacturer infringes a patent

by filing an ANDA to obtain approval for a generic drug product claimed by a valid and

unexpired patent. 35 U.S.C. § 271(e)(2).

The Hatch-Waxman Amendments provide that NDA-holders must notify the FDA

of all patents that “claim[ ] the drug for which the [NDA] applicant submitted the

application . . . and with respect to which a claim of patent infringement could

reasonably be asserted . . . .” 21 U.S.C. § 355(b)(1), (c)(2). The FDA lists such patents

in the publication “Approved Drug Products With Therapeutic Equivalence Evaluations”

(commonly referred to as the “Orange Book”). As part of the approval process, an

ANDA applicant must make one of four certifications with respect to each patent listed

in the Orange Book that claims the drug for which it is seeking approval: (I) no such

patent information has been submitted to the FDA; (II) the patent has expired; (III) the

patent is set to expire on a certain date; or (IV) the patent is invalid or will not be

infringed by the manufacture, use, or sale of the new generic drug for which the ANDA

is submitted. 21 U.S.C. § 355(j)(2)(A)(vii)(I-IV). These are commonly referred to as

paragraph I, II, III, and IV certifications.

04-1186 4
 Upon filing a paragraph IV certification as part of an ANDA, an applicant must

give notice to the patentee and the NDA holder. The notice must include a detailed

statement of the factual and legal bases for the opinion of the applicant that the patent

is invalid or will not be infringed. 21 U.S.C. § 355(j)(2)(B)(i). If the patentee files an

infringement action within forty-five days after receiving notice of the paragraph IV

certification, an automatic thirty-month “stay” goes into effect, during which the FDA

cannot approve the ANDA unless the suit is resolved or the patent expires. 21 U.S.C.

§ 355(j)(5)(B)(iii). During this forty-five day period, the ANDA applicant is barred from

filing a declaratory judgment action with respect to the patent at issue. Id. If no

infringement action is filed during this forty-five day period, the FDA may approve the

ANDA. Id.

The first ANDA applicant to file a paragraph IV certification enjoys a 180-day

period of generic marketing exclusivity, during which the FDA may not approve a

subsequent generic applicant’s ANDA for the same drug product. 21 U.S.C.

§ 355(j)(5)(B)(iv). This provision provides an economic incentive for generic

manufacturers to challenge the validity of listed patents and to “design around” patents

to find alternative, non-infringing forms of patented drugs. Federal Trade Commission,

Generic Drug Entry Prior to Patent Expiration: An FTC Study 57 (July 2002). The 180-

day exclusivity period typically begins on the date of the first commercial marketing of

the drug by the first applicant. 21 U.S.C. § 355(j)(5)(B)(iv). The original Hatch-Waxman

Amendments provided that the commencement of the 180-day exclusivity period could

04-1186 5
also be triggered by “the date of a decision of a court . . . holding the patent which is the

subject of the certification to be invalid or not infringed.”3 Id.

B. The 2003 Medicare Amendments

Congress recently enacted the Medicare Prescription Drug, Improvement, and

Modernization Act of 2003, Pub. L. No. 108-173, 117 Stat. 2066. The Act was signed

into law on December 8, 2003. Title XI of the Act, entitled “Access to Affordable

Pharmaceuticals,” makes numerous changes in the Hatch-Waxman Amendments

(“Medicare Amendments”). Among the changes is a provision for a “civil action to

obtain patent certainty.” 21 U.S.C. § 355(j)(5)(C) (Supp. 2004). Pursuant to that

provision, if the patentee or NDA-holder does not bring an infringement action within

forty-five days after receiving notice of a paragraph IV certification, the ANDA applicant

may bring a civil action for a declaratory judgment that the patent at issue is invalid or

will not be infringed by the drug for which the applicant seeks approval. Id. In

exchange, the ANDA applicant must make an offer of confidential access to its ANDA

application so that the patentee or the NDA-holder can evaluate possible infringement.

Id. The Medicare Amendments also provide that when the above circumstances are

met, “courts of the United States shall, to the extent consistent with the Constitution,

have subject matter jurisdiction in any action brought . . . under section 2201 of title 28

for a declaratory judgment that such patent is invalid or not infringed.” 35 U.S.C.

§ 271(e)(5) (Supp. 2004).

3
As discussed in Part I.B., infra, in 2003 Congress enacted a more complex
set of provisions relating to the 180-day exclusivity period. However, these new
provisions do not apply in this case.
04-1186 6
 Congress also addressed the statutory scheme surrounding the 180-day market

exclusivity period. Congress replaced the traditional court decision “trigger” with a more

complex set of 180-day provisions. See 21 U.S.C. § 355(j)(5)(D) (Supp. 2004).

However, the Medicare Amendments provide that these new forfeiture provisions are

effective only with respect to those applications filed after December 8, 2003, for which

no paragraph IV certification was made before December 8, 2003. Medicare

Prescription Drug, Improvement and Modernization Act of 2003, § 1102(b), 117 Stat. at

2460. Thus, the new forfeiture provisions do not apply in this case.

II.

A. The ’518 and ’699 Patents

Pfizer’s ’518 patent, which expires on June 30, 2006, is directed to the chemical

compound sertraline hydrochloride, which is useful for the treatment of mental

depression and anxiety disorders.4 Sertraline hydrochloride operates by interacting with

serotonin, a chemical messenger that participates in the transmission of nerve impulses

in the brain. Sertraline hydrochloride works to selectively block the uptake of serotonin

by synaptic cells, thus reducing its re-entry into nerve cells and allowing serotonin levels

between nerve cells in the brain to build up. Pfizer’s ’699 patent, which expires on

September 28, 2010, is directed to a novel crystalline form of sertraline hydrochloride

and to a method for preparing it.5 The commercial embodiment of the ’518 and ’699

4
The ’518 patent was due to expire on December 30, 2005. However, the
district court opinion explains that the FDA granted Pfizer a six-month pediatric
exclusivity extension for the drug, pursuant to 21 U.S.C. § 355a, making June 30, 2006
the effective expiration date of the patent.
5
The district court’s opinion recites that the ’699 patent expires on
September 29, 2010. We note that the electronic version of the Orange Book located
04-1186 7
patents is the drug Zoloft®, a hugely successful drug which has been approved by the

FDA for treatment of mood and anxiety disorders. According to Pfizer’s Annual Report,

Zoloft® generated revenues for the company in excess of $2 billion in 2002.

B. Ivax Pharmaceuticals USA, Inc.’s ANDA filing relating to generic sertraline
hydrochloride tablets

Ivax Pharmaceuticals USA, Inc. (“Ivax”) is a manufacturer of generic

pharmaceuticals. In 1999, Ivax, then known as Zenith Goldline Pharmaceuticals, Inc.,

submitted an ANDA to the FDA for its generic version of sertraline hydrochloride. Since

Pfizer had listed both the ’518 and ’699 patents in the Orange Book in connection with

its NDA for Zoloft® tablets, Ivax was required to file a certification with respect to each

patent as part of its ANDA. Ivax filed a paragraph III certification as to the ’518 patent,

stating that it was not seeking to market its generic version of sertraline hydrochloride

prior to the expiration of the patent. Simultaneously, Ivax filed a paragraph IV

certification as to the ’699 patent, stating that its generic drug did not infringe the ’699

patent, or alternatively, that the ’699 patent was invalid.

Within forty-five days of its receipt of notice of Ivax’s paragraph IV certification,

Pfizer filed suit against Ivax for infringement of the ’699 patent in the United States

District Court for the District of New Jersey. Pfizer, Inc. v. Ivax Pharms. Inc., Nos. 00-

408, 01-6007 (D.N.J. Jan. 1, 2000). In 2002, Pfizer and Ivax entered into a settlement

agreement whereby Pfizer agreed to grant Ivax a royalty-bearing license on the ’699

patent until its expiration in 2010. As a consequence of the agreement, Ivax is in a

(Cont’d. . . .)
on the FDA’s website indicates that the ’699 patent also was granted a six-month
pediatric exclusivity extension.
04-1186 8
position to begin marketing its generic version of Zoloft® immediately upon expiration of

the ’518 patent on June 30, 2006.

As the first-filer of an ANDA for the generic version of Zoloft®, Ivax is entitled,

under 21 U.S.C. § 355(j)(5)(B)(iv), to a 180-day generic market exclusivity period. This

180-day period will be triggered by the earlier of: (1) the first date of commercial

marketing by the first generic applicant or (2) a “decision of a court . . . holding the

patent which is the subject of the [paragraph IV certification] to be invalid or not

infringed.” 21 U.S.C. § 355(j)(5)(B)(iv)(I-II).

C. Teva’s ANDA filing relating to generic sertraline hydrochloride tablets

As noted, in July of 2002, Teva submitted an ANDA to the FDA for its generic

version of Zoloft®. Like Ivax, Teva filed a paragraph III certification as to the ’518 patent

and a paragraph IV certification as to the ’699 patent. Pfizer elected not to file suit

against Teva for infringement of the ’699 patent within the forty-five days following

receipt of notice of Teva’s paragraph IV certification, and to date no such suit has been

filed.

D. Teva’s declaratory judgment action

On January 24, 2003, Teva filed a declaratory judgment action in the United

States District Court for the District of Massachusetts, seeking a declaration that its

generic version of Zoloft® does not infringe the ’699 patent and a declaration that the

’699 patent is invalid. On March 10, 2003, Pfizer moved to dismiss the action, arguing

that the court lacked subject matter jurisdiction because of the absence of an actual

controversy, as required by Article III of the Constitution. On December 8, 2003, the

court granted Pfizer’s motion to dismiss.

04-1186 9
 In addressing Pfizer’s motion, the district court applied the two-part test

formulated by this court to determine whether an actual controversy exists in a patent

infringement suit. Under that test, there must be both (1) an explicit threat or other

action by the patentee which creates a reasonable apprehension on the part of the

declaratory judgment plaintiff that it will face an infringement suit, and (2) present

activity by the declaratory judgment plaintiff which could constitute infringement, or

concrete steps taken by the declaratory judgment plaintiff with the intent to conduct

such activity. See Amana Refrigeration, Inc v. Quadlux, Inc., 172 F.3d 852, 855 (Fed.

Cir. 1999). The district court determined that Teva had satisfied the second prong of

the test by filing its ANDA for generic sertraline hydrochloride. However, the court

concluded that Teva had failed to satisfy the “reasonable apprehension” prong of the

test.

Before the district court, Teva argued that Pfizer had created a reasonable

apprehension of suit based upon the following considerations: (1) Pfizer had listed the

’699 patent in the Orange Book; (2) Pfizer had refused to grant Teva a covenant not to

sue; (3) Pfizer had aggressively asserted its patent rights against alleged infringers of

other patents; (4) Pfizer sued Ivax, the first generic manufacturer of sertraline

hydrochloride; and (5) it was in Pfizer’s self-interest to leave a “cloud of litigation”

hanging over Teva. With respect to the final consideration, Teva argued that Pfizer’s

settlement with Ivax gave Pfizer a vested interest in seeing Ivax preserve its 180-day

exclusivity period.

The district court rejected Teva’s contentions. First, the court noted that a

blanket inference that, by listing a patent in the Orange Book, a patentee has declared

04-1186 10
its intention to sue any potential infringer would virtually eliminate the “reasonable

apprehension” prong of the two-part test. Second, the court stated that there is nothing

in the Federal Food, Drug, and Cosmetic Act that requires Pfizer to respond one way or

another to Teva’s request for a covenant not to sue. Third, the court found that Teva’s

subjective belief that it would be sued because Pfizer sued Ivax does not amount to an

explicit threat indicating the imminence of suit. Finally, the court reasoned that, if

anything, Pfizer’s self-interest in protecting Ivax’s exclusivity period makes the prospect

of an immediate lawsuit against Teva even less likely.

Teva timely appealed the district court’s decision. We have jurisdiction pursuant

to 28 U.S.C. § 1295(a)(1) (2000).

ANALYSIS

I.

Our starting point is the Declaratory Judgment Act, 28 U.S.C. § 2201(a), the

statute under which Teva filed its suit. The Act provides in relevant part as follows:

In a case of actual controversy within its jurisdiction . . . any
court of the United States, upon the filing of an appropriate
pleading, may declare the rights and other legal relations of
any interested party seeking such declaration, whether or
not further relief is or could be sought.

The Act, which parallels Article III of the Constitution, “requires an actual controversy

between the parties before a federal court may exercise jurisdiction over an action for a

declaratory judgment.” EMC Corp. v. Norand Corp., 89 F.3d 807, 810 (Fed. Cir. 1996).

Generally, the presence of an “actual controversy,” within the meaning of the Act,

depends on “whether the facts alleged, under all the circumstances, show that there is a

substantial controversy, between parties having adverse legal interests, of sufficient

04-1186 11
immediacy and reality to warrant the issuance of a declaratory judgment.” Id. (quoting

Md. Cas. Co. v. Pac. Coal & Oil Co., 312 U.S. 270, 273 (1941)). Even if there is an

actual controversy, the district court is not required to exercise declaratory judgment

jurisdiction, but has substantial discretion to decline that jurisdiction. Id.; see also Wilton

v. Seven Falls Co., 515 U.S. 277, 286 (1995) (reaffirming that since its inception, “the

Declaratory Judgment Act has been understood to confer on federal courts unique and

substantial discretion in deciding whether to declare the rights of litigants”). As we

summarized in Spectronics Corp. v. H.B. Fuller Co., 940 F.2d 631, 634 (Fed. Cir. 1991):

“When there is no actual controversy, the court has no discretion to decide the case.

When there is an actual controversy and thus jurisdiction, the exercise of that

jurisdiction is discretionary.”6

As noted, this court has developed a two-part inquiry to determine whether there

is an actual controversy in a suit requesting a declaration of patent non-infringement or

invalidity. EMC Corp., 89 F.3d at 811. The inquiry focuses on the conduct of both the

patentee and the potential infringer. Gen-Probe, Inc. v. Vysis, Inc., 359 F.3d 1376,

1380 (Fed. Cir. 2004). There must be both (1) an explicit threat or other action by the

patentee which creates a reasonable apprehension on the part of the declaratory

judgment plaintiff that it will face an infringement suit; and (2) present activity by the

declaratory judgment plaintiff which could constitute infringement, or concrete steps

taken with the intent to conduct such activity. Id.; Amana Refrigeration, 172 F.3d at

855; BP Chems. Ltd. v. Union Carbide Corp., 4 F.3d 975, 978 (Fed. Cir. 1993).

6
Because the district court dismissed Teva’s suit for lack of jurisdiction, it
did not reach the stage of exercising its jurisdiction to determine whether to entertain the
suit.
04-1186 12
 Teva contends on appeal that the district court erred in ruling that it had failed to

demonstrate the existence of an actual controversy between it and Pfizer under our two-

part test. Teva argues that it had reasonable, objective grounds to fear that Pfizer

would bring an action for infringement of the ‘699 patent. Teva also argues that the

Medicare Amendments establish jurisdiction without regard to the reasonable

apprehension prong of the two-part test.

Our task is thus two-fold. First, we must determine whether the district court

erred in holding that Teva failed to establish an actual controversy under Article III

because it did not demonstrate that it was under a reasonable apprehension that Pfizer

would sue it for infringement of the ’699 patent. Second, if we determine that the district

court did not err in applying the law as it existed when it granted Pfizer’s motion to

dismiss, we must determine whether, as Teva argues, the effect of the Medicare

Amendments was to establish jurisdiction in the district court over Teva’s declaratory

judgment action. It is to the former question that we turn first.

II.

The district court’s dismissal of Teva’s declaratory judgment action for lack of

jurisdiction presents a question of law that we review without deference. Gen-Probe,

359 F.3d at 1379. The parties agree that the second prong (present infringing activity)

of our two-part test was met by the filing of Teva’s paragraph IV certification with

respect to the ’699 patent. The case thus turns on the first prong (reasonable

apprehension of suit). Teva argues that the district court erred when it determined that

Pfizer had not created a reasonable apprehension that it would bring suit against Teva

for infringement of the ’699 patent.

04-1186 13
 As it did in the district court, Teva places primary significance on the fact that

Pfizer listed the ’699 patent in the Orange Book, thereby representing that the patent

“could reasonably be asserted” against any generic sertraline product. Teva takes the

position that the requirements of the reasonable apprehension prong of the two-part test

are satisfied in virtually every case in which: (1) the NDA applicant has listed a patent in

the Orange Book; (2) a generic manufacturer has submitted an ANDA which includes a

paragraph IV certification for a drug covered by that patent; and (3) the NDA-holder or

patentee has not brought an infringement suit within 45-days of receiving notice of the

paragraph IV certification. Teva asserts that the only way a patentee in Pfizer’s

situation can defeat jurisdiction over an ANDA filer’s declaratory judgment action is by

affirmatively representing that it will not sue the filer.

Teva’s reliance on Pfizer’s listing of the ’699 patent in the Orange Book is

misplaced. The listing of a patent in the Orange Book by an NDA filer is the result of a

statutory requirement. Without more, Pfizer’s compliance with the Hatch-Waxman

listing requirement should not be construed as a blanket threat to potential infringers as

far as Pfizer’s patent enforcement intentions are concerned. The Orange Book is a

listing of patents with respect to which claims of infringement “could be reasonably

asserted . . . .” 21 U.S.C. § 355(b)(1), (c)(2) (emphasis added). More is required for an

actual controversy than the existence of an adversely held patent, however. See Capo,

Inc. v. Dioptics Med. Prods., 387 F.3d 1352, 1355 (Fed. Cir. 2004) (“More is needed

than knowledge or notice of an adversely held patent. . . . The standard is objective, and

focuses on whether the patentee manifested the intention to enforce the patent, and

would be reasonably expected to enforce the patent against the declaratory plaintiff.”

04-1186 14
(citations omitted)). We are not prepared to hold that listing a patent in the Orange

Book evinces an intent to sue any ANDA filer who submits a paragraph IV certification

with respect to the patent.

In support of its contention that it was under a reasonable apprehension that

Pfizer would sue it for infringement of the ’699 patent, Teva also points to Pfizer’s

history of defending its patents and its refusal to grant Teva a covenant not to sue. We

have stated that, “[w]hen the defendant’s conduct, including its statements falls short of

an express charge, one must consider the ‘totality of the circumstances’ in determining

whether that conduct meets the first prong of the test.” Arrowhead Indus. Water, Inc. v.

Ecolochem, Inc., 846 F.2d 731, 736 (Fed. Cir. 1988) (quoting Goodyear Tire & Rubber

Co. v. Releasomers, Inc., 824 F.2d 953, 955 (Fed. Cir. 1987)). Although relevant to the

analysis, neither of the factors upon which Teva relies is dispositive in this case. See

BP Chems., 4 F.3d at 980 (“Although a patentee’s refusal to give assurances that it will

not enforce its patent is relevant to the determination, this factor is not dispositive.”

(internal citation omitted)); Indium Corp. of Am. v. Semi-Alloys, Inc., 781 F.2d 879, 883

(Fed. Cir. 1985) (“The prior patent litigation initiated by Semi-Alloys in 1975, against two

other parties unconnected with Indium, was too remote to make Indium’s apprehension

of further litigation in 1982 reasonable . . . .”).

In order for this case to be one fit for judicial review, Teva must be able to

demonstrate that it has a reasonable apprehension of imminent suit. Whether there is

an “actual controversy” between parties having adverse legal interests depends upon

whether the facts alleged show that there is a substantial controversy between the

parties “of sufficient immediacy and reality to warrant the issuance of a declaratory

04-1186 15
judgment.” Maryland Casualty, 312 U.S. at 273. This requirement of imminence

reflects the Article III mandate that the injury in fact be “concrete,” and “actual or

imminent, not conjectural or hypothetical.” Steel Co. v. Citizens for a Better Env’t, 523

U.S. 83, 101 (1998). Significantly, Teva virtually concedes that Pfizer will not bring

immediate suit for infringement of the ’699 patent. According to Teva, Pfizer does not

wish to expose the patent to the possibility of a noninfringement or invalidity

determination, either of which would trigger Ivax’s 180-day exclusivity period before Ivax

is in a position to take advantage of the period by beginning commercial marketing of its

generic sertraline drug upon expiration of the ’518 patent. In any event, Pfizer need not

sue Teva immediately, because Teva will not be able to receive FDA approval for its

generic sertraline drug prior to the expiration of Ivax’s 180-day exclusivity period, which

will not begin until expiration of the ’518 patent on June 30, 2006. Because Teva is

unable to demonstrate a reasonable apprehension of imminent suit on the part of Pfizer

for infringement of the ’699 patent, we cannot say that the district court erred in its

application of the two-part test for determining whether an actual controversy exists in a

patent infringement action.

III.

Teva also argues, however, that the Medicare Amendments establish jurisdiction

without regard to the reasonable apprehension prong of the traditional two-part test.

Although the Medicare Amendments were not in place when this case was before the

district court, Congress provided that the provisions dealing with declaratory judgments

would “apply to any proceeding . . . that is pending on or after the date of the enactment

of this Act regardless of the date on which the proceeding was commenced . . . .”

04-1186 16
Medicare Prescription Drug, Improvement and Modernization Act of 2003, § 1101(c)(1),

117 Stat. at 2456. Since the district court did not issue its opinion until December 8,

2003, the date the Medicare Amendments were enacted, the declaratory judgment

provisions apply to this case.

The Medicare Amendments amended 35 U.S.C. § 271(e)(5) so that it reads as

follows:

Where a person has filed an application described in
paragraph (2) that includes a certification under subsection
(b)(2)(A)(iv) or (j)(2)(A)(vii)(IV) of section 505 of the Federal
Food, Drug, and Cosmetic Act (21 U.S.C. 355), and neither
the owner of the patent that is the subject of the certification
nor the holder of the approved application under subsection
(b) of such section for the drug that is claimed by the patent
or a use of which is claimed by the patent brought an action
for infringement of such patent before the expiration of 45
days after the date on which the notice given under
subsection (b)(3) or (j)(2)(B) of such section was received,
the courts of the United States shall, to the extent consistent
with the Constitution, have subject matter jurisdiction in any
action brought by such person under section 2201 of title 28
for a declaratory judgment that such patent is invalid or not
infringed.

35 U.S.C. § 271(e)(5) (Supp. 2004). Thus, the Amendments explicitly state that an

ANDA filer who submits a paragraph IV certification with respect to a patent listed in the

Orange Book may, “consistent with the Constitution,” bring a declaratory judgment

action with respect to the patent if the patent owner does not bring an infringement

action within the statutory forty-five day period.7

7
Prior to the Medicare Amendments, there was no prohibition against an
ANDA filer bringing a declaratory judgment action upon expiration of the forty-five day
period.
04-1186 17
 Teva argues that, in view of the Medicare Amendments, its declaratory judgment

suit presents a justiciable controversy under Article III. In making this argument, Teva

starts from the premise that, in its words, the reasonable apprehension test serves

“primarily prudential not constitutional concerns.” (Br. for Teva at 52.) It then posits

that, in the Medicare Amendments, Congress directed courts to exercise jurisdiction

over declaratory judgment actions such as this to the limits of Article III. Joined by

Amicus Curiae the Federal Trade Commission (“FTC”), Teva urges that it has suffered

injury independent of the threat of an infringement suit because the 180-day exclusivity

period itself has major economic consequences in the case of a drug such as Zoloft®.

Teva and the FTC argue that there is a clear connection between this injury and actions

already taken by Pfizer. They contend that if Pfizer had not obtained the ’699 patent

and listed it in the Orange Book, settled its litigation with Ivax, declined to sue Teva, and

refused Teva’s request for a covenant not to sue, Teva would have the opportunity to

gain access to the Zoloft® market during the 180-day period that will follow the

expiration of the ’518 patent.

As a preliminary matter, we do not agree with Teva that the reasonable

apprehension of suit test represents a prudential rule rather than a constitutional

requirement. In EMC, we squarely stated that we developed the two-part inquiry, of

which the reasonable apprehension of suit test is one of the parts, “to determine

whether there is an actual controversy in suits requesting a declaration of patent non-

infringement or invalidity.” 89 F.3d at 811. Teva, nevertheless, points to statements in

several of our cases that it argues demonstrate that the test is, in fact, merely a

prudential rule. See Arrowhead, 846 F.2d at 736 (stating that the two-part test is a “test

04-1186 18
often useful in evaluating complaints for declaratory judgments in patent cases”); Fina

Oil Chem. Co. v. Ewen, 123 F.3d 1466, 1470 (Fed. Cir. 1997) (“Satisfaction of th[e]

traditional two-part test is not . . . a prerequisite to jurisdiction in every possible patent

declaratory judgment action. Indeed, the two elements merely assure that the

declaratory plaintiff has enough interest in the subject matter of the suit and that the

disagreement between the parties is real and immediate enough to fulfill the ‘actual

controversy’ requirement.”); Hunter Douglas, Inc. v. Harmonic Design, Inc., 153 F.3d

1318, 1327 (Fed. Cir. 1998) (stating that the two-part test “contributes to policing the

boundary between a constitutional controversy . . . and ‘a difference or dispute of a

hypothetical or abstract character.’” (citation omitted)).

We do not think that the cases cited by Teva support the proposition that the

reasonable apprehension of suit prong of our traditional two-part test is not a

constitutional requirement. First, there is nothing in Arrowhead that supports that

proposition. In Arrowhead, the court made clear that although the “actual controversy”

test in suits requesting a declaration of patent noninfringement or invalidity has been

stated in various ways depending on the particular facts at hand, “the test requires two

core elements: (1) acts of defendant indicating an intent to enforce its patent; and (2)

acts of plaintiff that might subject it or its customers to suit for patent infringement.”

Arrowhead, 846 F.2d at 737. At the same time, the statement from Fina Oil upon which

Teva relies follows the court’s recognition of the traditional two-part test. 123 F.3d at

1470. Under these circumstances, the statement at most suggests that the traditional

two-part test is not the only way of determining in all cases that the constitutional

04-1186 19
requirement of an actual case or controversy has been met.8 The statement in no way

suggests that the traditional test does not address the Article III requirement of an actual

case or controversy. Finally, the statement Teva quotes from Hunter Douglas, 153 F.3d

at 1327, is really just another way of saying what we said in EMC in expounding on the

traditional two-part test: “This court’s two-part test for declaratory judgment jurisdiction is

designed to police the sometimes subtle line between cases in which the parties have

adverse interests and cases in which those adverse interests have ripened into a

dispute that may properly be deemed a controversy.” 89 F.3d at 811. We would only

add that we think this case presents just the sort of situation to which the EMC court

alluded: Pfizer and Teva certainly have adverse interests. However, for a variety of

reasons, their adverse interests have not ripened into an actual controversy.

Neither do we think that in the Medicare Amendments Congress intended to

cause courts to alter the present test for determining whether an actual controversy

exists in the Hatch-Waxman setting. The plain language of the amended statute—that

courts shall have subject matter jurisdiction “to the extent consistent with the

Constitution”—compels the conclusion that the Amendments were not meant to

automatically bestow district court jurisdiction over actions such as Teva’s. The

legislative history of the Medicare Prescription Drug, Improvement, and Modernization

Act supports this view. In the version of the legislation originally introduced in the

Senate (S. 1) in the 108th Congress, it was provided that the filing of a paragraph IV

8
In Fina Oil, the plaintiff sought a declaration that the inventors were
properly named on the patent at issue in accordance with 35 U.S.C. § 116 (1994). The
statement relied upon by Teva merely reflects that the precise formulation of the
constitutional inquiry may vary depending on the facts of a given case.
04-1186 20
certification, and the failure of the patentee or NDA-holder to bring an infringement

action within forty-five days after the receipt of notice,

shall establish an actual controversy between the applicant
and the patent owner sufficient to confer subject matter
jurisdiction in the courts of the United States in any action
brought by the applicant under section 2201 of title 28 for a
declaratory judgment that any patent that is the subject of
the certification is invalid or not infringed.

Thus, as introduced, the legislation would have embodied the concurring opinion

of Judge Gajarsa in Minnesota Mining and Manufacturing Co. v. Barr Laboratories, 289

F.3d 775, 784 (Fed. Cir. 2002). Judge Gajarsa suggested that “the two acts of (1) a

patentee listing a patent in the Orange Book through the filing of a NDA, and (2) a

generic manufacturer filing an ANDA, together meet the case or controversy

requirement so as to allow a declaratory judgment action of noninfringement.” Id. at

791. However, after changes made in conference, the legislation that became law in

the 108th Congress (H.R. 1) did not contain language automatically conferring subject

matter jurisdiction in the district courts anytime a patent is listed in the Orange Book, a

paragraph IV certification is filed with respect to the patent, and a patentee fails to bring

suit for infringement within forty-five days of receipt of notice of the certification.

The Conference Committee Report on H.R.1 states as follows:

The conferees expect that courts will find jurisdiction, where
appropriate, to prevent an improper effort to delay
infringement litigation between generic drug manufacturers
and pioneer drug companies. The conferees expect courts to
apply the “reasonable apprehension” test in a manner that
provides generic drug manufacturers appropriate access to
declaratory judgment relief to the extent required by Article
III.

Through the modifications in this Act, the conferees do not
intend for the courts to modify their application of the

04-1186 21
 requirements under Article III that a declaratory judgment
plaintiff must, to the extent required by the Constitution,
demonstrate a “reasonable apprehension” of suit to establish
jurisdiction. See, e.g., Fina Oil and Chemical Co. v. Ewen,
123 F.3d 1466, 1471 (Fed. Cir. 1997). The conferees expect
the courts to examine as part of their analysis the particular
policies served by the Hatch-Waxman Act.

In determining whether a reasonable apprehension of suit
exists where an ANDA has been filed with a paragraph IV
certification and the patentee has not brought an
infringement suit within the 45 days, the conferees expect
courts to examine these specific factors as part of the totality
of the circumstances. See, e.g., Vanguard Research, Inc. v.
Peat, Inc., 304 F.3d 1249, 1254 (Fed. Cir. 2002).9 In any
given case, the conferees expect a court may or may not
find a reasonable apprehension of suit where these two
specific factors are present.

H.R. Conf. Rep. No. 108-391 at 836 (2003).

We conclude that the plain language of the statute, as well as the legislative

history, support the conclusion that Congress did not intend for the Medicare

Amendments to cause courts to alter the requirement of the two-part test that a

declaratory judgment plaintiff must demonstrate a “reasonable apprehension” of suit to

establish Article III jurisdiction. Our traditional two-part test remains good law, and, as

discussed above, we see no error in the district court’s application of the test.

Teva nevertheless points to the statement in the Conference Committee Report

that “the conferees expect the courts to examine as part of their analysis the particular

9
In Vanguard Research, while the patentee, Peat, had not made an
express threat of litigation, it had (1) sought to enjoin the potential infringer, Vanguard,
from production of the potentially infringing technology by filing suit against it on other
grounds, (2) had written Vanguard a letter indicating that it no longer had the right to
market the potentially infringing technology, and (3) had contacted the U.S. Army and
Congress implying to them that Vanguard was using Peat’s technology without Peat’s
permission. 304 F.3d at 1254. The court held that, based on the totality of
circumstances, there was a reasonable apprehension of suit on the part of Vanguard.
04-1186 22
policies served by the Hatch-Waxman Act.” According to Teva, making the declaratory

judgment inquiry turn on the imminence of an infringement suit renders the test subject

to manipulation by the patentee, thereby undermining the goals of the Hatch-Waxman

Amendments to resolve patent disputes promptly once the issues are joined by the

listing of a patent in the Orange Book and the serving of a paragraph IV certification with

respect to the patent. Teva argues that these goals are not being served in this case.

Teva points out that in view of Pfizer’s settlement with Ivax, it is in Pfizer’s interest to not

expose the ’699 patent to litigation, because doing so would raise the possibility of a

determination of invalidity or non-infringement, either of which might trigger the

commencement of Ivax’s 180-day exclusivity period before the expiration of the ’518

patent, in which event the exclusivity period would be useless. Teva asserts, for

example, that if Pfizer can avoid triggering Ivax’s 180-day exclusivity period until the

expiration of the ’518 patent, it can expect to enjoy six months selling Zoloft® with only

one, royalty-paying generic competitor, Ivax. At the same time, if the ’699 patent were

held invalid or not infringed, it would mean that during the six-month period following the

expiration of the ’518 patent on June 30, 2006, Pfizer would face competition in the

Zoloft® market, not only from Ivax, but from other generic manufacturers as well. These

circumstances, Teva urges, constitute injury to it, because the effect of Pfizer’s not

bringing suit against Teva is to prevent Teva from challenging the ’699 patent and

thereby possibly opening the door to its being able to sell generic sertraline

hydrochloride during the 180-day exclusivity period following expiration of the ’518

patent.

04-1186 23
 With these same considerations in mind, the FTC states that “while in a ‘classic

patent declaratory judgment suit,’ the ordinary two-part test is appropriate” (Br. for FTC

at 17 (quoting Fina Oil, 123 F.3d at 1476)), a case such as the present one presents a

different situation: “[I]n the Hatch-Waxman regime, a subsequent ANDA applicant may

suffer direct legal injury and require judicial relief based not on the threat of an

infringement suit, but on the ramifications of actions that a brand-name drug

manufacturer has already taken concerning its patents within the regulatory scheme.”

(Br. for FTC at 17-18.)

We are not persuaded by Teva’s and the FTC’s arguments. Whether an actual

controversy exists between Teva and Pfizer turns on the reasonable apprehension of

suit test, which remains in place under the Medicare Amendments, and we have

concluded that, under that test, Teva has not established that an actual controversy

exists between it and Pfizer. The fact that Teva is disadvantaged from a business

standpoint by Ivax’s 180-day exclusivity period and the fact that Pfizer’s decision not to

sue Teva creates an impediment to Teva’s removing that disadvantage are matters

separate and distinct from whether an Article III controversy exists between Teva and

Pfizer. The injury about which Teva complains is the product of the Hatch-Waxman

scheme and the fact that Pfizer has acted in a manner permitted under that scheme. It

is not the product of a threat of suit by Pfizer. That is the problem that Teva faces in

seeking to establish district court jurisdiction.

If it is the view of Congress that the 180-day exclusivity period for a first ANDA

filer creates inequities, it can amend the Hatch-Waxman Amendments accordingly.

Until it does so, however, we must apply the statutory scheme as written. See Reid v.

04-1186 24
Dep’t of Commerce, 793 F.2d 277, 284 (Fed. Cir. 1986) (“‘The remedy for any

dissatisfaction with the results in a particular case lies with Congress’ and not this court,

‘Congress may amend the statute; we may not.’” (quoting Griffith v. Oceanic

Contractors, Inc., 458 U.S. 564, 576 (1982))). Thus, it is not for us to address any

perceived inequities in the statutory scheme by eliminating the reasonable

apprehension of suit test in Hatch-Waxman cases. That is what we would have to do, in

order to rule in favor of Teva in this case. That is because in order to rule in Teva’s

favor, we would have to hold that the Article III requirement of an actual controversy is

satisfied not because Teva is under an imminent threat of suit by Pfizer, but because

the combined circumstances of the Hatch-Waxman scheme and Pfizer’s lawful conduct

under that scheme have created a situation in which Teva finds itself at a competitive

disadvantage vis-à-vis Ivax. Those circumstances do not amount to an actual

controversy between Teva and Pfizer, however.

CONCLUSION

For the foregoing reasons, we agree with the district court that Teva failed to

establish that an actual controversy existed between it and Pfizer, as required under the

Declaratory Judgment Act, 28 U.S.C. § 2201(a). We therefore affirm the court’s

dismissal of Teva’s declaratory judgment suit for lack of jurisdiction.

AFFIRMED

04-1186 25
 United States Court of Appeals for the Federal Circuit

04-1186

TEVA PHARMACEUTICALS USA, INC.,

Plaintiff-Appellant,

v.

PFIZER INC.,

Defendant-Appellee.

MAYER, Circuit Judge*, dissenting.

Because the filing of a New Drug Application (NDA) and subsequent listing of a

pharmaceutical patent in the publication “Approved Drug Products With Therapeutic

Equivalence Evaluations” (commonly referred to as the “Orange Book”) is conduct

giving rise to a reasonable apprehension that an Abbreviated New Drug Application

(ANDA) filer and declaratory judgment plaintiff will face a patent infringement suit, I

respectfully dissent.

I.

Our traditional two-part test to determine whether an actual controversy exists in

a patent infringement suit requires that “(1) the declaratory plaintiff has acted, or has

made preparations to act, in a way that could constitute infringement, and (2) the

_________________

* Haldane Robert Mayer vacated the position of Chief Judge on December 24,
2004.
patentee has created in the declaratory plaintiff a reasonable apprehension that the

patentee will bring suit if the activity in question continues.” Fina Oil & Chem. Co. v.

Ewen, 123 F.3d 1466, 1470 (Fed. Cir. 1997). Under the Hatch-Waxman Amendments,

which were enacted as part of the Drug Price Competition and Patent Term Restoration

Act of 1984, Pub. L. No. 98-417, 98 Stat. 1585 (codified at 21 U.S.C. §§ 355, 360cc,

and 35 U.S.C. § 156, 271, 282), part one is satisfied in every instance where an ANDA

is filed in accordance with 21 U.S.C. § 355(j), because 35 U.S.C. § 271(e)(2) provides

that such a filing constitutes an act of infringement sufficient to trigger a justiciable case

or controversy. See Eli Lilly and Co. v. Medtronic, Inc., 496 U.S. 661, 676-78 (1990)

(determining that the purpose for creating an act of infringement in 35 U.S.C.

§ 271(e)(2) was to “eliminat[e] the de facto extension at the end of the patent term in the

case of drugs, and to enable new drugs to be marketed more cheaply and quickly”);

Glaxo Inc. v. Novopharm Ltd., 110 F.3d 1562, 1569 (Fed. Cir. 1997).

We have never said that the traditional two-part test must be satisfied in every

instance to find a justiciable case or controversy. Conversely, we have consistently

held that “there is no specific, all-purpose test” for determining the existence of a case

or controversy, either. Arrowhead Indus. Water, Inc. v. Ecolochem, Inc., 846 F.2d 731,

735-36 (Fed. Cir. 1988) (describing the traditional two-part test as “often useful in

evaluating complaints for declaratory judgments” but not mandatory in every instance).

We have clarified that the “[s]atisfaction of this traditional two-part test is not, however, a

prerequisite to jurisdiction in every possible patent declaratory judgment action. Indeed,

the two elements merely assure that the declaratory plaintiff has enough interest in the

04-1186 2
subject matter of the suit and that the disagreement between the parties is real and

immediate enough to fulfill the ‘actual controversy’ requirement.”

Fina Oil, 123 F.3d at 1470.

Regardless of whether the two-part test is a constitutional necessity or not, the

legislative history voices Congress’ intent to apply the “reasonable apprehension”

portion of the test in determining whether a court may determine the rights of an ANDA

filer seeking relief. See H.R. Conf. Rep. No. 108-391, at 836 (2003) (“Through the

modifications in this Act, the conferees do not intend for the courts to modify their

application of the requirements under Article III that a declaratory judgment plaintiff

must, to the extent required by the Constitution, demonstrate a ‘reasonable

apprehension’ of suit to establish jurisdiction.”). “As in all cases our task is to interpret

the words of [the statute] in light of the purposes Congress sought to serve.” Chapman

v. Houston Welfare Rights Org., 441 U.S. 600, 608 (1979).

II.

Because Teva filed an ANDA pursuant to 21 U.S.C. § 355(j) against Pfizer’s ’699

patent listed in the Orange Book, our application of the traditional test for an “actual

controversy” turns solely on whether Pfizer has taken actions that give rise to a

reasonable apprehension that it will sue Teva for infringement. The trial court dismissed

Teva’s declaratory judgment claim saying that no “actual controversy” existed under the

Declaratory Judgment Act because, it concluded, Teva faced no “reasonable

apprehension” that Pfizer would bring suit against it for infringing the ’699 patent. Teva

Pharms. USA, Inc. v. Pfizer, Inc., No. 03-CV-10167, 2003 WL 22888848 (D. Mass. Dec.

8, 2003).

04-1186 3
 The 2003 amendments to the Hatch-Waxman Act provide for declaratory relief

when an owner of a patent listed in the Orange Book fails to bring an infringement suit

within 45 days after the ANDA is filed. Medicare Prescription Drug, Improvement, and

Modernization Act of 2003, Title XI, Access to Affordable Pharmaceuticals, PL 108-173,

117 Stat. 2066 (Dec. 8, 2003) (“Medicare Amendments”) (codified in pertinent part at 21

U.S.C. § 355(j)(5)(C)(i)). These Medicare Amendments also give courts the authority to

exercise jurisdiction over declaratory judgment actions brought by generic infringers “to

the extent consistent with the Constitution.” 35 U.S.C. § 271(e)(5) (2003).

The Declaratory Judgment Act authorizes declaratory relief only in a “case of

actual controversy.” 28 U.S.C. § 2201 (2000). This requirement is the same as the

“case or controversy” requirement of Article III of the Constitution. See Phillips Plastics

Corp. v. Kato Hatsujou Kabushiki Kaisha, 57 F.3d 1051, 1053 (Fed Cir. 1995) (“The

purpose of the declaratory action is to permit a threatened party to resolve its potential

liability, but only when the relationship has progressed to an actual controversy, as

required by Article III of the Constitution.”). The Supreme Court has long held “that

whatever else the ‘case or controversy’ requirement embodied, its essence is a

requirement of ‘injury in fact.’” Schlesinger v. Reservists Comm. to Stop the War, 418

U.S. 208, 218 (1974) (citation omitted).

The Supreme Court also has established criteria for evaluating whether a case

passes the constitutional threshold of being a “case or controversy.” In Nashville,

Chattanooga & St. Louis Railway Co. v. Wallace, 288 U.S. 249, 259 (1933), the Court

determined that it should “look not to the label which the Legislature has attached to the

procedure followed in the state courts, or to the description of the judgment which is

04-1186 4
brought here for review, in popular parlance, as ‘declaratory,’ but to the nature of the

proceeding which the statute authorizes, and the effect of the judgment rendered upon

the rights which the appellant asserts.” Similarly, the Court in Aetna Life Insurance Co.

v. Haworth decided that the federal Declaratory Judgment Act validly conferred

jurisdiction on federal courts to issue declaratory judgments in appropriate cases. 300

U.S. 227 (1937). The Court “observed that the controversy would admit ‘of specific

relief through a decree of a conclusive character, as distinguished from an opinion

advising what the law would be upon a hypothetical state of facts.’” Calderon v.

Ashmus, 523 U.S. 740, 746 (1988) (quoting Aetna, 300 U.S. at 241). Important to this

case, the Court has “thus recognized the potential for declaratory judgment suits to fall

outside the constitutional definition of a ‘case’ in Article III: a claim ‘brought before the

court(s) for determination by such regular proceedings as are established by law or

custom for the protection or enforcement of rights, or the prevention, redress, or

punishment of wrongs.’” Id. (quoting Fairchild v. Hughes, 258 U.S. 126, 129 (1922)).

Such is the scheme created by the jurisdictional directives of Congress in the enactment

of Hatch-Waxman and corresponding Medicare Amendments – the key issue being

whether the courts are capable of achieving a final or conclusive determination that

resolves the entire case or controversy.

Finding an actual controversy within the meaning of the Declaratory Judgment

Act requires an analysis of the totality of the circumstances of each case. Gen-Probe

Inc. v. Vysis, Inc., 359 F.3d 1376, 1379 (Fed. Cir. 2004). The facts alleged must show a

substantial controversy, between parties having adverse legal interests, of sufficient

immediacy and reality to warrant the issuance of a declaratory judgment. Id. “Although

04-1186 5
the best evidence of a reasonable apprehension of suit comes in the form of an express

threat of litigation, an express threat is not required.” Vanguard Research, Inc. v. PEAT,

Inc., 304 F.3d 1249, 1254 (Fed. Cir. 2002) (citations omitted). Determining whether a

reasonable apprehension of suit exists in a case controlled by the statutory and

regulatory scheme of Hatch-Waxman requires a thorough analysis of the consequences

and repercussions of each party’s actions.

The most important basis for finding a reasonable apprehension of suit is Pfizer’s

listing of the ’699 patent in the Orange Book. Pfizer’s listing constituted an affirmative

representation to the FDA and to competitors that “a claim of patent infringement could

reasonably be asserted if a person not licensed by the owner engaged in the

manufacture, use or sale” of any generic sertraline hydrochloride drug covered by the

claims of the ’699 patent. 21 U.S.C. § 355(b)(1) (2003). Although the listing in the

Orange Book is a standard requirement for filing a NDA, it is a requirement that

expresses a party’s future intent to enforce its patent rights against those who

subsequently file an ANDA and infringe. We have explained that the “reasonable

apprehension” test serves to “protect[] quiescent patent owners against unwarranted

litigation.” Arrowhead, 846 F.2d at 736. Pfizer is not a defendant that “has done

nothing but obtain a patent.” Id. By listing its patent in accordance with 21 U.S.C.

§§ 355(b)(1) & (c)(2), Pfizer has informed the world that the ’699 patent likely precludes

anyone from marketing a generic sertraline hydrochloride product until it expires.

In evaluating whether there is a controversy, courts must take into account the

injury that a generic drug manufacturer suffers when, as a result of actions taken by the

brand-name manufacturer, it is delayed from marketing its product. Hatch-Waxman

04-1186 6
establishes that the first generic applicant to file an ANDA containing a Paragraph IV

certification is eligible, in some situations, for 180 days of marketing exclusivity, during

which the FDA may not approve subsequent ANDAs for other generic versions of the

drug. 21 U.S.C. § 355(j)(5)(B)(iv). Under the 1984 version of the Act, the 180-day

period begins to run as of the earlier of: (i) the first day of commercial marketing by the

first generic applicant; or (ii) a “decision of a court . . . holding the patent which is the

subject of the [Paragraph IV certification] to be invalid or not infringed.” Id.

§ 355(j)(5)(B)(iv)(I-II). A court decision has been defined to include any district court

decision obtained either by the first ANDA applicant or a subsequent ANDA applicant,

through declaratory judgment or otherwise. See 3M v. Barr Labs., Inc., 289 F.3d 775,

778 (Fed. Cir. 2002). If the first ANDA applicant triggers the 180-day period and

promptly brings its product to market, then it is permitted, for 180 days, to be the only

generic competitor for the name-brand drug. If, instead, a subsequent ANDA applicant

triggers the 180-day period by obtaining a court decision, and the first ANDA applicant

does not market its drug during that period, then the FDA may approve subsequent

ANDAs, and the first ANDA applicant receives no exclusivity.

Although Congress’ intention was for Hatch-Waxman to promote competition and

speed generic entry into the market, the opposite has occurred as a result of strategies

to “park” the 180-day period. Brand-name drug manufacturers may enter into an

agreement with the first ANDA applicant whereby the first ANDA applicant agrees to

refrain from entering the market for some period of time if the brand-name firm forgoes

suing subsequent ANDA applicants during the statutory 45-day period. Such a course

of conduct precludes the FDA from approving any subsequent ANDA applicants until: (i)

04-1186 7
180 days after the first ANDA applicant enters; (ii) the relevant patent expires; or (iii) a

subsequent ANDA applicant can itself trigger the 180-day period. Essentially, the

framework of Hatch-Waxman, combined with the conduct of the brand-name

manufacturer, creates a cognizable injury to the subsequent generic ANDA filer. The

delay created directly injures the subsequent ANDA applicant by depriving it of the

opportunity to enter the market. The only way to eliminate this problem is for the

subsequent ANDA applicant to bring a declaratory judgment action seeking a court

decision of invalidity or noninfringement of the relevant patent.

Taking into account the specific regulatory context of the Hatch-Waxman regime,

the “reasonable apprehension” test applied “to the extent consistent with the

Constitution” is satisfied by Pfizer’s conduct. See H.R. Conf. Rep. No. 108-391, at 836

(2003) (“[A] declaratory judgment plaintiff must, to the extent required by the

Constitution, demonstrate a ‘reasonable apprehension’ of suit to establish jurisdiction”

and the courts should “examine as part of their analysis the particular policies served by

the Hatch-Waxman Act.”). Cases arising under Hatch-Waxman do not present a classic

patent declaratory judgment suit, and accordingly, the reasonable apprehension test

should not be applied in the traditional manner. See Fina Oil, 123 F.3d at 1470

(discussing classic patent declaratory judgment suits). Typically, a potential competitor

is legally free to market its product in the face of an adversely-held patent. In contrast,

within the Hatch-Waxman regime, a subsequent ANDA applicant is not free to

market─the applicant may suffer direct legal injury and require judicial relief based on

the ramifications of actions that a brand-name drug manufacturer has already taken

04-1186 8
concerning its patents and the likelihood of a future patent suit after the running of the

180-day period.

Against the backdrop of Hatch-Waxman, the totality of Pfizer’s conduct must also

be considered. See H.R. Conf. Rep. No. 108-391, at 836 (2003) (“In any given case,

the conferees expect a court may or may not find a reasonable apprehension of suit

where [an ANDA has been filed with a Paragraph IV certification and the patentee has

not brought an infringement suit within 45 days].”). First, Pfizer sued Ivax, the first

generic manufacturer of sertraline hydrochloride. This shows both Pfizer’s belief that its

’699 patent is valid and its intent to assert the patent against infringers. “Related

litigation may be evidence of a reasonable apprehension.” Shell Oil Co. v. Amoco Oil

Co., 970 F.2d 885, 888 (Fed. Cir. 1992). Pfizer also has a history of asserting its patent

rights against infringers of other patents. Considering that the ’699 patent, which covers

the brand name drug Zoloft®, produced nearly 3 billion dollars in profit in 2002,

economics and common sense dictate that Pfizer may well bring suit. Finally, Pfizer

refused to grant Teva a covenant not to sue for infringement of the ’699 patent.

Allowing Teva’s declaratory judgment action is consistent with the “case or

controversy” requirement of Article III of the Constitution because the suit will achieve a

final determination that resolves the entire controversy between Teva and Pfizer.

Subsequent ANDA applicants suffer a real and defined harm when uncertainty exists as

to their rights to manufacture and sell a generic drug product free from infringement

allegations. By permitting generic companies to bring declaratory judgment claims,

Congress has not sought to create a hypothetical injury-in-fact; it has simply recognized

the harm that exists absent such relief. Consequently, under the Hatch-Waxman

04-1186 9
regime, Teva’s injuries are traceable to Pfizer’s conduct and those injuries could be

redressed by a favorable decision. Therefore, Teva maintains a reasonable

apprehension of suit sufficient to confer jurisdiction under the Declaratory Judgment Act.

04-1186 10