4.2 Meaning of "pharmaceutical substance per se"
82 Section 70(2) refers to "one or more pharmaceutical substances per se". The meaning of pharmaceutical substance per se has been addressed in a number of decisions of this Court, and in passing by the High Court.
83 The term "pharmaceutical substance per se" means the pharmaceutical substance "by or in itself, intrinsically, essentially", or "taken alone; essentially; without reference to anything else": Boehringer Ingelheim International GmbH v Commissioner of Patents (2001) 112 FCR 595; [2001] FCA 647 at [34], [37] (Wilcox, Whitlam and Gyles JJ) (Boehringer FC).
84 The Full Court in Boehringer FC stated at [37] that the decision of Heerey J, the primary judge, was "correct, substantially for the [following] reasons", which reasons were reproduced at [17] of its decision:
The 1990 Act in its present form manifests a policy which draws a distinction between, on the one hand, a pharmaceutical substance that is the subject of a patent claim and, on the other hand, a pharmaceutical substance that forms part of a method or process claim. The specific exception to the latter (an exception which proves the rule) is the provision for recombinant DNA technology in s 70(2)(b).
Broadly speaking, a claim in relation to a pharmaceutical substance can be made in three ways:
(i) a new and inventive product alone;
(ii) an old or known product prepared by a new and inventive process;
(iii) an old or known product used in a new and inventive mode of treatment.
What is clear in s 70 is that only the first type of claim to a pharmaceutical product is to be subject to extension rights. So far as a new process is concerned, it is only when the new process answers the particular description in s 70(2)(b) (recombinant DNA process) that it can be the subject of an extension. As counsel for the Commissioner submitted, the policy to be deduced in the light of the legislative history is that Parliament has decided that what is intended to be fostered is primary research and development in inventive substances, not the way they are made or the way they are used, with the sole (and important) exception of recombinant DNA techniques, this being an area particularly worthy of assistance for research and development.
In the light of this history, the relevance of the expression 'per se' becomes clear. Section 70(2)(a) is only to make extension rights available when the claim is for a pharmaceutical substance as such, as opposed to a substance forming part of a method or process.
(Emphasis added.)
85 The Full Court in Boehringer FC continued at [38]-[40]:
There are serious difficulties about the appellant's argument. One is that it effectively reads out of s 70(2)(a) the words "per se". On the appellant's argument, it is enough that the complete specification disclose one or more pharmaceutical substances, whether as the sole element in an invention or in combination with other elements. If that had been the legislative intention, the paragraph could have read: "one or more pharmaceutical substances must in substance be disclosed". There would have been no need for "per se".
Second, the Second Reading Speech and the Explanatory Memorandum provide no support to the appellant's argument; quite the contrary. The Second Reading Speech speaks about the "development of a new drug" and the research and testing required before "the product" can enter the market. This is plainly a reference to the drug itself; not to the drug in combination with other elements.
Similarly, the Explanatory Memorandum says that claims to "pharmaceutical substances per se, would usually be restricted to new and inventive substances". The Explanatory Memorandum excludes the application of the new provisions to "new processes of making pharmaceutical substances or new methods of using pharmaceutical substances, where the substances themselves are known".
(Emphasis original.)
86 In Prejay Holdings Ltd v Commissioner of Patents (2003) 57 IPR 424; [2003] FCAFC 77, the Full Court concluded that it is not enough to constitute a claim for a pharmaceutical substance per se that a pharmaceutical substance "appears in a claim in combination with other integers or as part of the description of a method (or process) that is the subject of a claim": see [24] (Wilcox and Cooper JJ) and [35]-[36] (Allsop J). At [40] and [42], Allsop J added the following:
… The definition refers to a substance, which must have a purpose or use - therapeutic use, and whose application involves the other matters identified in the definition. The definition is of a particular kind of substance, but it is of a substance, and only a substance.
…
While the secondary materials are not entirely internally consistent, the above result and the above construction accord with what appears to me to be the burden of the secondary materials, exemplified by the following part of the explanatory memorandum, referred to by the Full Court in Boehringer at [24]:
The extension of term provisions will be available for patents that include claims to pharmaceutical substances per se provided the other criteria are met. These claims to pharmaceutical substances per se, would usually be restricted to new and inventive substances. Patents that claims [sic], will not be eligible unless the process involves the use of recombinant DNA technology. Claims which limit the use of a known substance to a particular environment, for example claims to pharmaceutical substances when used in a new and inventive method of treatment, are not considered to be claims to the pharmaceutical substance per se…
(Emphasis original.)
87 In Pharmacia Italia SpA v Mayne Pharma Pty Ltd (2006) 69 IPR 1; [2006] FCA 305, Weinberg J stated at [96]:
…If a claim, properly understood, is, in effect, intended to protect some novel process or method, no extension can be granted. The claim, when read sensibly, and as a whole, must be to a "pharmaceutical substance per se". At least in circumstances where the substance itself is known, the claim must not be, in essence, to a new process of making that substance, or a new method of using it.
88 His Honour also observed at [98] and [101]:
The matter must largely be one of impression, and degree. Reasonable minds may differ as to whether the legitimate boundaries of a "pharmaceutical substance per se" have been crossed.
…
Patent rights, and in particular the right to an extension, are very much dependent upon the language of the claim which defines the invention. When construing a claim, in order to determine whether the requirements set out in s 70(2)(a) are satisfied, it is appropriate to have regard to the reason why any reference to process has been included in the claim as formulated. There is a difference between seeking to protect a process (which can be the subject of a patent, but cannot be the subject of an extension), and merely referring incidentally to some elements of process, that are not themselves novel, in order to better describe the new and inventive substance. Section 70(2)(a) provides that a new and inventive substance that is a "pharmaceutical substance per se" can be the subject of an extension. …
89 In Spirit Pharmaceuticals Pty Ltd v Mundipharma Pty Ltd (2013) 216 FCR 344; [2013] FCA 658 at [45], Rares J approved the approach taken in Pharmacia at [101].
90 In H Lundbeck A/S v Alphapharm Pty Ltd (2009) 177 FCR 151; [2009] FCAFC 70 (Alphapharm FC), Bennett J (with whom Middleton J agreed) referred to the requirements of s 70 at [242] and stated at [243] that:
A patent may be obtained if it discloses and claims, for example, a new method of preparation, or purification that results in greater efficacy, or improvement in the delivery of a known pharmaceutical substance already listed on the ARTG. The scheme of the 1990 Act does not provide for the extension of term of each such patent which relates to the same substance.
91 In Commissioner of Patents v AbbVie Biotechnology Ltd (2017) 253 FCR 436; [2017] FCAFC 129 (Besanko, Yates and Beach JJ), the Full Court at [28] cited the Explanatory Memorandum for the Intellectual Property Laws Amendment Bill 1997 (Cth), which inserted the current s 70 into the Patents Act as follows:
The extension of term provisions will be available for patents that include claims to pharmaceutical substances per se (provided that the other criteria are met) [i.e. a product claim]. These claims to pharmaceutical substances per se would usually be restricted to new and inventive substances. Patents that claim pharmaceutical substances when produced by a particular process (product by process claims) will not be eligible unless that process involves the use of recombinant DNA technology. Claims which limit the use of a known substance to a particular environment, for example claims to pharmaceutical substances when used in a new and inventive method of treatment, are not considered to be claims to pharmaceutical substances per se.
92 The Full Court in AbbVie emphasised at [49] that the "cases have recognised that the [concern of s 70(2)(a)] is with inventions that are products, not inventions that are methods or processes" and referred to Boehringer Ingelheim International v Commissioner of Patents (2000) AIPC 91-670; [2000] FCA 1918, before stating at [53]-[57]:
In Prejay Holdings Ltd v Commissioner of Patents (2003) 57 IPR 424 (Prejay), Wilcox and Cooper JJ commented on the Full Court's observation in Boehringer Ingelheim [International GmbH v Commissioner of Patents (2001) 112 FCR 595], saying (at [24]):
As is apparent from the context of these words, especially the Full Court's references to the legislative history of s 70, the Full Court was saying that, for a substance to fall within s 70(2)(a) it must itself be the subject of a claim in the relevant patent. It is not enough that the substance appears in a claim in combination with other integers or as part of the description of a method (or process) that is the subject of a claim. The policy adopted in s 70 was to confine extensions to patents that claim invention of the substance itself.
Once again, their Honours were addressing one policy objective. Importantly, their Honours went on to consider the significance of s 70(2)(b) in that regard, saying (at [25]):
This conclusion is not negatived by the terms of s 70(2)(b) of the Act … that paragraph does not require disclosure of a process. Rather, it requires the disclosure of "one or more pharmaceutical substances" that are produced by a particular process.
(Emphasis in original.)
This observation is significant because it acknowledges that s 70(2)(a) and s 70(2)(b) address the same concern - extensions of term in relation to claims directed to pharmaceutical substances, not methods or processes involving pharmaceutical substances. The only exception is the one specifically acknowledged by s 70(2)(b), where pharmaceutical substances can be produced by a process that involves recombinant DNA technology. But, even so, the matter claimed must be the pharmaceutical substance or substances so produced, not other methods or processes involving those substances.
…Nonetheless, each provision's concern is with pharmaceutical substances, not additional or other matter concerning or involving the use of pharmaceutical substances. In this way, s 70(2)(b) can be construed conformably with s 70(2)(a), and both provisions can be given an harmonious operation, directed to the same end.
This understanding is consistent with the passage in the Explanatory Memorandum quoted at [28] above. The passage emphasises that the extension of term provisions are directed to new and inventive substances - not the method or process by which they are produced (other than involving recombinant DNA technology). Of particular significance is the specific acknowledgement that claims to pharmaceutical substances when used in new and inventive methods of treatment are not intended to be part of the extension of term regime. This passage in the Explanatory Memorandum refers to "pharmaceutical substances per se", but its reference to product by process claims, and to recombinant DNA technology in particular, signifies that both limbs of s 70(2) are being discussed: see also Section 8 on p 9 of the Explanatory Memorandum, and [7] and [10] of the Notes on Clauses in Sch 1 thereto.
93 In Cipla, Perram J summarised the effect of the Full Court authorities, stating at [5]:
…Although not directly relevant to this case, it is useful to know for some of the arguments to be considered that the words 'per se' have been held by the Full Court of this Court to entail that an extension cannot be granted for a patent which discloses claims for a method and is confined (subject to presently immaterial exceptions) to patents claiming products: Boehringer Ingelheim International GmbH v Commissioner of Patents [2001] FCA 647; 112 FCR 595 ('Boehringer (FC)') at [37] per Wilcox, Whitlam and Gyles JJ, affirming the decision of Heerey J in Boehringer Ingelheim International v Commissioner for Patents [2000] FCA 1918 ('Boehringer'); Commissioner of Patents v AbbVie Biotechnology Ltd [2017] FCAFC 129; 253 FCR 436 at [49] per Besanko, Yates and Beach JJ…
94 In the High Court decision of Alphapharm Pty Ltd v H Lundbeck A/S (2014) 254 CLR 247; [2014] HCA 42 (Alphapharm HC at [23], Crennan, Bell and Gageler JJ stated:
A little more needs to be said about the Escitalopram Patent. Lundbeck, a Danish pharmaceutical company, applied for the Escitalopram Patent on 13 June 1989 (the expiry date of which became 13 June 2009), for an invention entitled "(+)-Enantiomer of citalopram and process for the preparation thereof". There are six claims - claims 1 to 5 are product claims and claim 6 is a method claim, which, for present purposes, can be put to one side. Claim 1 claims a compound (an enantiomer) known as "(+)-citalopram" and its non-toxic acid addition salts, and claims 3 and 5 claim a pharmaceutical composition comprising, as an active ingredient, that compound. The pharmaceutical substance disclosed in the complete specification, (+)-citalopram, is used to treat depression.
(Emphasis added; footnotes omitted.)
95 The emphasised sentence in [23] of Alphapharm HC was accompanied by footnote 40:
Relevantly, the extension of term scheme under the Act covers standard patents for pharmaceutical substances per se pursuant to s 70(2)(a), hence patents for pharmaceutical methods or tablets do not fall within the scheme. It can be noted that pharmaceutical substances produced by a process that involves the use of recombinant DNA technology, the subject matter of s 70(2)(b), are not relevant to this case.
96 About these aspects of the reasons in Alphapharm HC, Perram J stated the following in Cipla at [175]-[176]:
The statement that patents for pharmaceutical methods cannot be a patent for a pharmaceutical substance per se accords with the manner in which the words 'per se' has been interpreted in this Court in the authorities noted at [5] above…
…The statement is that tablets cannot be a pharmaceutical substance per se. Since this appears immediately after an explanation of the uncontroversial proposition that a patent for a pharmaceutical method cannot be a pharmaceutical substance per se and since there is no reference to tablets in s 70(2) at all, I read this footnote as exhibiting a conclusion that a patent for a tablet is a patent for a pharmaceutical method of delivery. If not read that way, the reference to 'tablet' seems to come from nowhere although an alternative view may be that it derives from the passage in explanatory memorandum for the Intellectual Property Laws Amendment Act 2006 set out above which also refers to tablets. But wherever the reference to a tablet comes from, it is clear that the conclusion in footnote 40 is about the proposition that a method patent will not disclose a pharmaceutical substance per se within the meaning of s 70(2).
97 Because it was irrelevant to the issue in dispute between the parties in that case, Perram J stated at [178] of Cipla that:
…It is not necessary to consider whether footnote 40 is a seriously considered dicta of the High Court which I am bound to follow (see Hill v Zuda Pty Ltd [2022] HCA 21; 275 CLR 24 at [26] per the Court) or just an obiter dictum made in passing. Given its presence in a footnote in a section headed 'The background facts' in a case having nothing to do with this issue, I would tend to favour the latter characterisation…
98 His Honour concluded that it was not a considered obiter dictum and that he was not legally required to follow it, but noted at [181] that, "[o]bviously, anything said by the High Court, even if a footnote, must be taken into account".
99 The following emerges from these authorities for the purposes of identifying a claim for a pharmaceutical substance per se (which are not mutually exclusive):
(1) only a claim for a pharmaceutical substance as such or alone will qualify;
(2) a pharmaceutical substance which forms part of a method or process does not qualify;
(3) an existing pharmaceutical substance prepared by a new and inventive process does not qualify;
(4) a pharmaceutical substance when produced by a particular process (product by process claim) does not qualify;
(5) a new and inventive method of using an existing pharmaceutical substance (such as in a new method of treatment) does not qualify. This could extend to a new and inventive pharmaceutical method of delivery.