A controlled substance is one that is included in Schedule I, II, III, IV or V of the federal Controlled Drugs and Substances Act. Controlled substances are used in health care to treat a wide variety of conditions including, but not limited to, pain, anxiety, epilepsy and sleep disorders. They include opioids, benzodiazepines, amphetamines, sedatives, anti-emetics and hormonal therapies, among others. Controlled substances are restricted because they present a high risk for potential misuse, addiction and diversion.

Only NPs who have successfully completed College approved controlled substances education are authorized to prescribe controlled substances in Ontario. For more information about the education, read Q&As: Controlled Substances Education Requirement.

Yes, regulations under the federal law prohibit NPs from prescribing the following controlled substances:

• opium (such as opium and belladonna suppository)
• coca leaves (such as cocaine) and
• anabolic steroids except testosterone (NPs are authorized to prescribe testosterone.)

On May 19, 2018, the Government of Canada made changes to the Controlled Drug and Substances Act (CDSA) giving NPs to the authority to prescribe and administer methadone without an exemption. NPs also gained the authority to prescribe diacetylmorphine.

Only NPs who have successfully completed College approved controlled substances education are authorized to prescribe controlled substances in Ontario, this includes methadone and diacetylmorphine. Additional resources are also available to support NPs continuing competence and clinical decision-making. 

Activities associated with controlled substances are high risk. As with any other activity or procedure NPs engage in, they are expected to have the knowledge, skill and judgment to prescribe methadone and diacetylmorphine in a safe, competent and ethical manner. NPs are expected to understand the unique risks associated with prescribing any controlled substance and incorporate relevant evidence-informed strategies to mitigate these risks.  

NPs are also expected to meet the accountabilities outlined in the Nurse Practitioner practice standard and ensure they have the competence to prescribe methadone and diacetylmorphine.

Additional resources:

Controlled Substances – Resources and References

You can use the College’s register Find a Nurse to check whether an NP is authorized to prescribe controlled substances. NPs who are not authorized to prescribe controlled substances are identified on the register as “Entitled to practice. Cannot prescribe controlled substances until specialized education is completed.”

A significant amount of policy work was done to inform decision-making, including:

• an analysis of relevant legislation
• literature reviews
• a review of other regulators’ policies

A national working group under the Canadian Council of Registered Nurse Regulators established a national approach to regulating this new area of practice. Joint work included a literature review, identifying education competencies and courses, as well as next steps to be taken within each jurisdiction (for example, integrating into program approval).

In 2013, the College conducted a survey of Ontario NPs to better understand practice realities associated with the use of controlled substances (for example, relevance of specific controlled substances to their practice setting/client population, learning needs, existing supports, and attitudes and concerns about the risks associated with controlled substances). In addition, in 2014 and 2016, the College consulted on proposed core competency indicators and practice expectations with several key stakeholders. 

Yes. Activities associated with controlled substances are high risk (e.g., potential for misuse, addiction, diversion). Yet these risks need to be balanced with ensuring clients have access to appropriate treatment. Ontario NPs frequently assess clients with conditions that may require controlled substances for treatment. If NPs can’t prescribe controlled substances, clients may not get the treatment they need or their treatment may be delayed.

Safe, effective and ethical prescribing includes practitioners being able to assess and identify potential and actual medication misuse, addiction and diversion. Education and other regulatory mechanism will address the risks associated with controlled substances so NPs can prescribe safely, effectively and ethically.

Telephone orders and other verbal orders should only be used in limited circumstances as there are inherent risks with using verbal orders. Under federal law, certain controlled substances (most narcotic medications) cannot be ordered without a written prescription. If phoning prescriptions to a pharmacy, NPs should ensure that the medication can be prescribed by phone and should document the rationale for why they needed to do so by telephone.

The Ontario College of Pharmacists provides a resource that may be helpful: Prescription Regulation Summary Chart (Summary of Laws) or visit their website – http://www.ocpinfo.com/.

Under federal law, there are specific requirements about refills for controlled substances.

• Refills are not permitted for narcotics
• Refills are permitted for benzodiazepines and targeted substances by either a written or telephone prescription that specifies the number of refills
• Prescriptions (including any refills authorized) for benzodiazepines and targeted substances expire within a year
• Refills for part I controlled drugs (e.g., amphetamines) are permitted by a written prescription only, and must specify the number of refills and refill dates (or intervals between refills)
• Refills for part II controlled drugs (e.g., barbiturates) and part III controlled drugs (e.g., testosterone) are permitted by either a written or telephone prescription, and must specify the number of refills and refill dates (or intervals between refills)

The Ontario College of Pharmacists provides a resource that may be helpful: Prescription Regulation Summary Chart (Summary of Laws).

You must meet the expectations for prescribing controlled substances outlined in the Nurse Practitioner practice standard. These include prescribing a quantity of controlled substances to be dispensed that balances the need to reassess and monitor the client with the risk of harm that may result if the client runs out of medication. NPs providing episodic care should prescribe the minimum amount necessary until the client can be assessed by their regular care provider.

There are legal requirements under the Controlled Drugs and Substances Act related to record-keeping and reporting theft of these medications. You must report the loss or theft of controlled substances to Health Canada’s Office of Controlled Substances within 10 days.

NPs can expect to encounter clients requiring prescriptions for controlled substances, since many medications are controlled substances.  You should plan for this anticipated client care need by establishing strategies consistent with College standards and guidelines. You should also work with your employer to ensure you have access to resources for meeting client needs. In this case, the resource you need is the ability to refer to a health professional such as an NP or physician authorized to prescribe controlled substances. The client’s prescription must be filled out by the authorized prescriber in a manner that is consistent with their regulatory obligations.   

NPs who are not authorized to prescribe controlled substances must not taper a controlled substance or renew a prescription for a controlled substance as these are considered prescribing.

If you commonly encounter clients in your practice that require controlled substances you should consider completing the education requirement that would authorize you to prescribe controlled substances. As expected for any activity, you may have additional learning needs you have to meet, relevant to your setting and client population.

No. Consulting with a physician does not give you the legal authority to prescribe any medication. The authority to prescribe medication comes from the legislation. Therefore, in this case the physician should be asked to prescribe the controlled substance. Physicians have their own professional accountabilities, which may also require them to personally assess the client.

The College does not have guidelines related to weaning clients off high doses of narcotics. Our role and expertise is to provide standards and resources that are applicable to nurses who work in a broad range of roles, across various settings. That being said, the College recognizes the need for NPs to have resources about this new area of NP practice. We have developed a page that points NPs to a variety of resources related to controlled substances, including content about weaning (tapering) controlled substances.

The controlled substances resource page is one source of information. You may need to seek out other sources of information, including information that is specific to your setting and/or client population. You are accountable for using the best evidence to inform your clinical decisions.

NPs are accountable for taking appropriate action to resolve or minimize the risk of harm to a client from a medication adverse reaction (from the Medication practice standard). Implementing a policy that supports weaning clients of high doses of narcotics is one example of meeting this expectation. With client interest and safety in mind, you are expected to work with your interdisciplinary colleagues to identify gaps in available policies, procedures and processes, and if needed, develop them.

First, you should read the Nurse Practitioner practice standard to know your accountabilities when faced with this type of situation. For example, the practice standard says NPs are accountable for incorporating evidence-informed strategies for assessing, managing and monitoring the risks of misuse, addiction and diversion.

A very helpful source of evidence-informed strategies is the College of Physicians and Surgeons of Ontario’s policy document entitled Prescribing Drugs. It contains practical steps to help prevent diversion, misuse and abuse, as well as identifying common aberrant drug-related behaviours. You should also consider if you are the most appropriate care provider for that client and/or whether you need to refer or consult an expert. For example, consider if you have the knowledge, skill and judgment to manage the situation. The Nurse Practitioner practice standard says NPs need to identify when collaboration, consultation and referral are necessary for safe, competent and comprehensive client care. So, you may want to consult another healthcare professional to benefit from their expertise.

The Nurse Practitioner practice standard states that NPs are accountable for using strategies to reduce risk of harm involving controlled substances, including medication misuse, addiction and diversion.

The College does not have guidelines specific to treating clients who are addicted to controlled substances. Our role and expertise is to provide standards and resources that are applicable to nurses who work in a broad range of roles, across various settings. However, we recognize the need for NPs to have informed resources in this new area of NP practice. We have developed a page that points NPs to a variety of resources related to controlled substances, including some resources related to treating opioid dependence. 

The controlled substances resource page is one source of information. You may need to seek out other sources of information, including information that is specific to your setting and/or client population. You are accountable for using the best evidence to inform your clinical decisions. With client interest and safety in mind, you are expected to work with your interdisciplinary colleagues to identify gaps in available policies, procedures and processes, and if needed, develop them.

NPs are accountable for implementing evidence-informed therapeutic interventions (from the NP practice standard).

The College does not have guidelines related to the clinical areas you are inquiring about. Our role and expertise is to provide standards and resources that are applicable to nurses who work in a broad range of roles, across various settings. However, we recognize that to meet the expectation in the Nurse Practitioner practice standard that says NPs are accountable for implementing evidence-informed therapeutic intervention, NPs need resources to inform this new area of their practice. We have developed a page that points NPs to a variety of resources related to controlled substances, including content that will support the areas you mentioned in your question.

The controlled substances resource page is one source of information. You may need to seek out other sources of information, including information that is specific to your setting and/or client population.

As an NP, you are responsible for monitoring the client’s response to the prescribed substance and for assessing, managing and monitoring the risks of misuse, addiction and diversion.  You are also responsible for implementing strategies to mitigate these risks, and should only perform procedures or activities when you have access to the appropriate client information. 

Several factors can contribute to conflict between an NP and a client. For example, this can occur if an NP judges or misunderstands a client (e.g., the client may feel the NP is not listening to, or respecting, their values, opinions or beliefs). NPs may need to reflect on and modify their communication style to meet the needs of the client and find the best possible solution in any complex nurse-client situation.

Ultimately, if the challenges with your client continue and place the client at risk, then you are accountable for acknowledging when there is a diminished therapeutic relationship and for requesting a transfer of care. 

For more information on the accountabilities mentioned above, read the Therapeutic Nurse Client Relationship practice standard, Nurse Practitioner practice standard and Conflict Prevention and Management practice guideline.  

The College does not expect nurses to put their lives or personal safety at risk when caring for clients. As the primary NP, consider if you are the most appropriate care provider for that client and/or whether you need to refer to, or consult, an expert such as an addictions specialist or psychiatrist. For example, consider if you have the knowledge, skill and judgment to continue treating this client. Also, NPs are accountable for identifying when collaboration, consultation and referral are necessary for safe, competent and comprehensive client care.

Employers also have accountabilities under the Occupational Health and Safety Act – they are accountable for establishing a safe work environment and minimizing real or potential risk to employees and clients alike.

The College encourages nurses to work collaboratively with their employers, as well as colleagues, to mitigate real or potential threats. If needed, they should develop policies, procedures and processes that are specific to the practice setting and driven by client interests and safety.

For more information on maintaining a quality practice setting and guidelines for decision-making, read Refusing Assignments and Discontinuing Nursing Services  and Code of Conduct.

Information about Ontario's Narcotics Strategy and the Narcotics Safety and Awareness Act, 2010 can be found on the Ministry of Health's website. As part of the Narcotics Strategy, the province has established the Narcotics Monitoring System (NMS) to monitor the prescribing and dispensing of controlled substances. Although its name implies the monitoring of narcotics, the NMS monitors all controlled substances as well as opioids that are not controlled substances (such as medications containing Tramadol). The main purpose of the NMS is to examine drug-use patterns to inform harm reduction strategies and education initiatives, and improve prescribing and dispensing practices related to monitored drugs. If illegal activity or professional misconduct is suspected, the Ministry may report information from the NMS to law enforcement bodies and regulatory colleges. 

Yes, you can dispense a controlled substance that you prescribed or that was ordered by a physician or dentist with whom you work. The Nurse Practitioner and the Medication practice standards describe the practice expectations for public protection when dispensing medication.

Yes. Now that prescribing controlled substances is part of NPs’ scope of practice, it has been integrated into Ontario NP program curriculum. Students starting in Ontario programs from September 2017 onwards will have the required controlled substances content and will not have to complete a standalone course.

Members and applicants who don’t have this content in their NP program can take Council-approved controlled substances courses to gain foundational competencies that are unique to controlled substances, and meet the education requirement set out in regulation.

This is a one-time requirement to gain foundational competencies that are unique to controlled substances. You may have other learning needs related to controlled substances. As part of commitment to continuing competence and quality improvement, you are expected to engage in practice reflection to identify learning needs, and set and achieve learning goals.