- Why This Matters
- The Legal Foundation: What Is Pharmaceutical Compounding?
- The Drug Shortage Exception
- What Changed: The FDA's Shortage Determinations
- The Base vs. Salt Controversy
- The Legal Challenges
- Tirzepatide: A Different Timeline
- What This Means for Patients
- The Open Policy Questions
- Frequently Asked Questions
Key Regulatory Events
-
2022FDA adds semaglutide to drug shortage listOzempic supply failures as existing diabetes patients compete with a surging wave of new weight-loss demand. The shortage exception opens the legal basis for compounding.
-
2022–2024Compounded GLP-1 market expands rapidly503A pharmacies and 503B outsourcing facilities begin compounding semaglutide and tirzepatide. Telehealth platforms emerge offering compounded GLP-1s at roughly 1/4 to 1/3 of brand-name cost, serving millions of patients with valid prescriptions.
-
Late 2023Tirzepatide added to shortage listMounjaro and Zepbound join the shortage list as Eli Lilly struggles to meet explosive demand. Legal basis for compounded tirzepatide established.
-
Early 2025FDA removes semaglutide from drug shortage listFDA finds adequate supply of Ozempic and Wegovy available. The shortage exception for semaglutide compounding ends. Compliance deadlines set for 503B facilities. The access-versus-supply legal dispute intensifies.
-
2025Legal challenges filed; base vs. salt dispute surfacesCompounding pharmacies and industry groups challenge FDA's shortage determination under the APA. Separately, FDA issues guidance on semaglutide salt forms; compounders contest the position. Courts issue varying rulings.
-
May 2026Legal landscape unsettled; tirzepatide shortage list continuesSemaglutide compounding availability has narrowed significantly. Multiple cases remain in litigation. Tirzepatide remains on the shortage list. Regulatory status for both drugs continues to evolve.
1. Why This Matters
For roughly two to three years, compounded GLP-1 medications represented the most accessible medically supervised path to semaglutide and tirzepatide for millions of Americans. The brand-name versions — Ozempic, Wegovy, Mounjaro, Zepbound — were priced beyond reach for most patients without insurance coverage, and that coverage was itself unreliable and difficult to obtain. Compounded alternatives, dispensed through telehealth platforms with valid prescriptions from licensed providers, offered the same active ingredient at a fraction of the cost.
Then, beginning in 2025, that path became legally contested — and for many patients, it closed.
Understanding what happened requires understanding a specific corner of federal pharmaceutical law: the compounding framework and the drug shortage exception that sits at its center. This is not abstract regulatory history. The decisions FDA made, the legal arguments compounders advanced, and the courts' responses have had direct consequences for patients — for how much they pay, what they can access, and what happens when the rules change mid-treatment.
This guide explains the legal framework, what FDA did and why, how the industry responded, and where things stand as of May 2026. It does not give legal advice, and it does not predict outcomes in pending litigation. What it does is lay out what the law says, what happened, and what the open questions are.
2. The Legal Foundation: What Is Pharmaceutical Compounding?
Pharmaceutical compounding is the practice of creating customized medications outside the standard drug manufacturing and approval system. A compounding pharmacy takes pharmaceutical-grade active ingredients and formulates them into a specific dosage form for a patient — a particular concentration, a particular delivery mechanism, a particular combination of ingredients — when a commercially available product does not or cannot meet that patient's specific need.
Compounding has a legitimate and longstanding history in pharmacy practice. Before industrial pharmaceutical manufacturing, nearly all medications were compounded by the local pharmacist. Today, compounding serves real clinical needs: a patient who cannot swallow tablets needs a liquid formulation; a pediatric patient needs a dose not available commercially; a patient has an allergy to a standard inactive ingredient and needs a customized preparation.
The federal legal framework governing compounding is found primarily in the Federal Food, Drug, and Cosmetic Act (FDCA), as substantially amended by the Drug Quality and Security Act of 2013 (DQSA). The DQSA created two distinct regulatory pathways for compounding, each with different requirements and oversight structures.
Under Section 503A of the FDCA, traditional compounding pharmacies may compound drugs for individual patients pursuant to valid, patient-specific prescriptions. 503A pharmacies are regulated primarily by state pharmacy boards, not the FDA. They are not subject to federal current Good Manufacturing Practice (cGMP) standards. They cannot compound drugs in anticipation of general demand — the prescription must precede the compounding. And critically: they cannot compound a drug that is "essentially a copy" of a commercially available approved drug, unless an exception applies.
Section 503B, created by the DQSA in 2013, established a higher-tier voluntary registration pathway for compounding facilities that want to operate at greater scale. 503B outsourcing facilities register with the FDA, are subject to regular FDA inspection, must comply with current Good Manufacturing Practice (cGMP) standards, and may produce larger batches without patient-specific prescriptions — distributing compounded drugs to healthcare facilities and prescribers. The 503B framework represents meaningfully stronger federal oversight than the 503A pathway. A public list of registered 503B facilities is maintained by the FDA and is publicly verifiable.
Enacted in the aftermath of a 2012 fungal meningitis outbreak that killed more than 60 people and injured hundreds — caused by contaminated compounded medications from a pharmacy operating far outside appropriate standards — the DQSA was Congress's response to the inadequacy of the existing federal compounding oversight framework. It created the 503B outsourcing facility pathway, clarified FDA's authority over compounding, and strengthened the prohibition on compounding copies of commercially available drugs.
The key limitation common to both 503A and 503B: they cannot compound a drug that is "essentially a copy" of a commercially available FDA-approved drug. This prohibition is the foundation of the entire legal dispute over GLP-1 compounding. Ozempic, Wegovy, Mounjaro, and Zepbound are commercially available FDA-approved drugs. A compounded semaglutide preparation is, on its face, a copy. But the copy prohibition has exceptions — and one of those exceptions changed everything.
| Feature | 503A Pharmacy | 503B Outsourcing Facility |
|---|---|---|
| Primary regulator | State pharmacy board | FDA (federal) |
| Prescription requirement | Valid patient-specific Rx required before compounding | Rx required for patient dispensing; not required for batch production |
| cGMP standards | No federal cGMP requirement | Required — must comply with FDA cGMP |
| FDA inspections | Limited FDA oversight; state-level primary | Regular FDA inspections; public warning letter record |
| Production scale | Limited; patient-specific batches | Larger batches permitted for distribution to healthcare facilities |
| Public registry | No federal public registry | Yes — FDA maintains verifiable public list |
| Quality consistency | Highly variable by state and facility | More consistent; federally audited under cGMP |
3. The Drug Shortage Exception
Both Section 503A and Section 503B contain a statutory exception to the copy prohibition: compounders may produce drugs that appear on FDA's current drug shortage list. This is the provision that made the compounded GLP-1 market legally possible.
Under the FDCA, both 503A pharmacies and 503B outsourcing facilities may compound a drug that appears on FDA's official drug shortage list, even if that drug is commercially available, provided all other applicable requirements are met. The exception is grounded in a straightforward public health rationale: if patients cannot obtain an approved drug because supply is inadequate to meet clinical demand, the competitive and safety policy reasons for prohibiting compounded copies give way to the patient access interest. The exception persists only as long as the drug remains on the shortage list.
Semaglutide — the active ingredient in Ozempic and Wegovy — appeared on FDA's drug shortage list beginning in 2022. The cause was structural: Novo Nordisk's manufacturing capacity had been calibrated to supply an existing diabetes patient population, and it was completely unprepared for the scale of demand that materialized when semaglutide's weight-loss effects became widely known. Patients who needed Ozempic to manage type 2 diabetes were competing for supply with a massive and rapidly growing population seeking the medication for obesity management. Shortages were real and documented.
Tirzepatide — the active ingredient in Mounjaro and Zepbound — joined the shortage list in late 2023 as Eli Lilly faced similar supply challenges.
With both drugs on the shortage list, licensed compounders operating within the applicable legal framework had a clear statutory basis for their activity. 503A pharmacies could compound semaglutide and tirzepatide for individual patients pursuant to valid prescriptions. 503B facilities could produce larger batches for distribution to prescribers and healthcare facilities. Telehealth platforms built programs around these compounded alternatives, offering medically supervised access at roughly a quarter to a third of brand-name prices.
The result was significant: millions of Americans who could not access Ozempic, Wegovy, Mounjaro, or Zepbound at their commercial prices — and who lacked or were denied insurance coverage — obtained the same active pharmaceutical ingredient through a legally grounded compounding pathway. This was not a gray-market workaround. It was a statutory exception functioning as designed.
4. What Changed: The FDA's Shortage Determinations
FDA makes drug shortage determinations based on its assessment of whether supply is adequate to meet demand. When FDA concludes that a shortage has resolved — that the commercial market can supply patients' needs — it removes the drug from the shortage list. At that point, the statutory basis for the shortage exception ends.
In early 2025, FDA removed semaglutide from the drug shortage list, concluding that Novo Nordisk's supply of Ozempic and Wegovy had become adequate to meet patient demand. FDA set compliance deadlines for compounders to wind down semaglutide compounding under the shortage exception. For 503B outsourcing facilities, the deadline was hard: once the exception expired, bulk compounding of semaglutide copies was no longer lawful.
The FDA's determination triggered immediate controversy on a question the shortage framework had not previously been required to answer with such high stakes: what does "adequate supply" mean?
The Access Argument: Supply Is Not the Same as Access
Patients, providers, advocacy organizations, and compounding pharmacies raised a pointed objection to FDA's shortage resolution finding: a drug priced at $1,000 to $1,300 per month — which Ozempic and Wegovy were, absent insurance coverage or manufacturer savings programs — is not "adequately supplied" in any meaningful sense for the patients who need it but cannot afford it.
The argument has both factual and legal dimensions. On the facts: the same supply constraints that drove patients to compounding in the first place — inadequate insurance coverage, manufacturer pricing, limited access to savings programs — continued to exist after Novo Nordisk's manufacturing capacity caught up with demand. From the perspective of a patient who earns $60,000 a year and lacks employer coverage for obesity medications, a drug available at $1,300 per month is not functionally available.
On the law: the question is whether FDA's shortage determination framework requires the agency to consider affordability — not just volume — in assessing whether "adequate supply" exists. The FDCA's shortage provisions do not explicitly define "adequate supply" to include or exclude affordability considerations. This statutory ambiguity became one of the central legal arguments in the challenges that followed.
FDA's position, as reflected in its shortage determination, was that the shortage framework addresses supply — the availability of the drug in commerce — not the pricing or insurance coverage conditions that affect whether individual patients can obtain it. Affordability, FDA's reasoning went, is a separate policy problem that the shortage exception is not designed to solve. It is a substantial legal and policy argument; it is also one that millions of patients experiencing the functional consequences of "resolved" shortage status found difficult to accept.
5. The Base vs. Salt Controversy
Parallel to the shortage determination dispute, a separate legal and scientific argument emerged from within the compounding industry — one that attempted to establish an alternative legal basis for semaglutide compounding that did not depend on the shortage exception at all.
Ozempic and Wegovy use semaglutide in its base form. Some compounding pharmacies and their active pharmaceutical ingredient suppliers were sourcing and using semaglutide sodium — a salt form of semaglutide in which the semaglutide molecule is associated with a sodium counterion. The argument compounders advanced: semaglutide sodium is a chemically distinct compound from base semaglutide. Since it is not the same compound as the active ingredient in Ozempic or Wegovy, it cannot be a "copy" of those products even after the shortage list removal. The prohibition does not apply.
FDA rejected this argument explicitly. The agency's position rests on a well-established principle in pharmaceutical regulation: a drug and its salt forms are treated as the same active ingredient for purposes of drug approval, labeling, and regulatory classification. The same principle that allows a generic manufacturer to produce a salt form of a drug without treating it as a new active ingredient — the same principle that lets pharmacists substitute between salt and base forms under therapeutic equivalence — means that semaglutide and semaglutide sodium are the same active ingredient under FDA's regulatory framework. The copy prohibition attaches to the active ingredient, not to the specific salt form.
Compounders and their legal advocates disputed this framing. They argued that the active ingredient in a finished drug product is the specific molecular entity in that product — not a class of chemically related compounds. On this reading, a preparation using semaglutide sodium as its active ingredient is not a copy of a preparation using semaglutide base, because the active ingredients are chemically distinct.
Courts have been asked to resolve this dispute as part of the broader compounding litigation. As of May 2026, the legal question remains contested, and FDA's enforcement posture continues to treat semaglutide sodium as the same active ingredient as semaglutide for purposes of the copy prohibition.
→ Related: Semaglutide Base vs. Acetate/Sodium Salt: The Science, the FDA's Position, and the Compounders' Argument — a deeper dive into the chemistry question that became central to the legal dispute.
6. The Legal Challenges
The FDA's shortage determination and subsequent enforcement actions against compounders did not go unchallenged. Several compounding pharmacies and industry groups filed legal challenges in federal court, invoking a range of administrative law doctrines.
Administrative Procedure Act Challenges
The primary legal vehicle was the Administrative Procedure Act (APA), which allows courts to review agency action that is "arbitrary and capricious." Under the APA's arbitrary-and-capricious standard, an agency must engage in reasoned decisionmaking — it cannot disregard relevant factors, rely on improper considerations, or reach a conclusion that is not rationally connected to the evidence before it. Challengers argued that FDA's shortage determination was arbitrary and capricious because:
- FDA failed to adequately account for the access and affordability dimensions of "adequate supply" in making its shortage determination;
- FDA's enforcement timeline gave patients insufficient transition time to shift to alternatives that, for many, did not exist at comparable cost;
- FDA's guidance on the salt-form issue departed from prior agency practice without adequate explanation;
- FDA's enforcement posture conflated the legally distinct 503A and 503B frameworks in ways that exceeded its statutory authority.
The Litigation Landscape as of May 2026
The legal proceedings have not followed a single, linear trajectory. Different cases in different courts have produced different results. Some courts granted preliminary injunctive relief, temporarily halting FDA enforcement against specific compounders while the underlying legal questions were briefed and argued. Others declined to issue such relief. Some courts have addressed the APA challenge on the merits; others have been focused on threshold procedural questions. The overall picture as of May 2026 is a landscape in which:
- Multiple cases remain pending in various stages of litigation;
- No binding appellate resolution has settled the core legal questions;
- The practical availability of compounded semaglutide has varied significantly depending on the current procedural posture of relevant cases — in some periods, court orders have temporarily maintained access that FDA's enforcement would otherwise have ended;
- The legal uncertainty has itself been a dominant experience for patients and platforms, with rules that seemed settled being unsettled by new court orders or regulatory guidance.
Any summary of "where things stand" on compounded semaglutide as of a specific date is subject to change. Readers should verify current legal status with their prescriber, their pharmacy, and if relevant, with legal counsel before making decisions. This guide reflects the state of publicly available information as of May 2026.
7. Tirzepatide: A Different Timeline
Tirzepatide — the active ingredient in Mounjaro and Zepbound — has had a different regulatory trajectory than semaglutide, and that difference matters significantly for patients seeking compounded GLP-1 options in 2026.
As of the time of writing, tirzepatide remains on FDA's drug shortage list. Mounjaro and Zepbound have not been removed from shortage status as semaglutide products were. While tirzepatide remains on the list, the drug shortage exception continues to provide legal basis for compounding by both 503A pharmacies and 503B outsourcing facilities. Compounded tirzepatide programs have been meaningfully more stable than compounded semaglutide programs over the 2025–2026 period.
Several factors have contributed to tirzepatide's longer shortage status. Eli Lilly's manufacturing scale-up for Mounjaro and Zepbound faced its own constraints. The patient population on tirzepatide therapy has grown rapidly. The supply-demand gap for tirzepatide has been slower to close than for semaglutide.
The contingent nature of this stability
It bears stating clearly: the continued availability of compounded tirzepatide is not an established long-term condition. It is contingent on tirzepatide's shortage list status, which can change when FDA determines that adequate supply exists. The same analytical framework that governed semaglutide — including the contested access-versus-supply debate, the salt-form questions, and the enforcement timeline issues — applies equally to tirzepatide. If and when FDA removes tirzepatide from the shortage list, the same legal dynamics will play out.
FDA has shown awareness of the tirzepatide compounding space and has issued guidance in this area. Patients and prescribers using compounded tirzepatide should not assume that current stability represents a permanent condition. The appropriate approach is to stay current with FDA shortage list determinations, understand that the legal basis for your program depends on that status, and have contingency plans.
8. What This Means for Patients
The legal complexity described in this guide has direct, practical consequences for patients. Here is how to think about your situation depending on where you currently stand.
If you were using compounded semaglutide
Your program's current legal status depends on the regulatory state as of the time you are reading this — which has changed multiple times and may have changed since this guide was written. The appropriate steps are to contact your platform and your prescriber to understand the current basis for your program, whether your pharmacy is continuing to compound semaglutide and on what legal authority, and what your options are if that basis is no longer available. Do not assume that what was true three months ago remains true today.
If you are considering starting a compounded GLP-1 program
Ask your provider directly: What is the current legal basis for this program? Which pharmacy will fill my prescription, and what is its regulatory status (503A or 503B)? Is the drug you plan to compound currently on the FDA shortage list? What happens to my access if that changes? A provider and pharmacy who cannot answer these questions clearly are not in a position to provide you with the informed basis for a treatment decision.
If compounded options are unavailable or uncertain
The remaining medically supervised access pathways for GLP-1 medications are manufacturer savings programs (available to commercially insured patients who meet eligibility requirements), patient assistance programs (for uninsured or underinsured patients who meet income criteria), insurance coverage navigation (prior authorization, appeals, employer plan advocacy), and telehealth programs offering brand-name medications with savings card integration. None of these are as accessible as compounded pricing for most patients, which is precisely the gap the compounding market was filling.
The research peptide gray market
A direct consequence of the compounding crackdown is the growth of the unregulated "research peptide" market — suppliers selling semaglutide and tirzepatide labeled for laboratory use only, without any of the legal, clinical, or quality frameworks that governed compounding pharmacy programs. This market exists in significant part because the regulatory closure of the compounding window pushed patients out of a supervised access pathway with nowhere else to go. The line between the FDA's compounding enforcement and the growth of an unregulated parallel market is not hypothetical — it is a direct causal relationship that anyone analyzing this space honestly must acknowledge.
→ Related: The Mochi Health State Pharmacy Investigation: What Patients Should Know — a case study in how the compounding crackdown context has intersected with platform-level billing and regulatory issues.
9. The Open Policy Questions
The following questions do not have settled legal or policy answers. They represent the genuinely contested issues at the center of this regulatory dispute. They are worth naming not because this guide can resolve them, but because understanding what is actually at stake clarifies what the legal and policy debate is about.
These questions are before courts and, in some form, before Congress and FDA's own rulemaking processes. This guide takes no position on how they should be resolved. The purpose of naming them is to make clear that the legal dispute over compounded GLP-1 medications is not merely a technical regulatory matter — it raises fundamental questions about how U.S. pharmaceutical law should balance drug safety, market exclusivity, patient access, and affordability.