The title to this is poorly named. What the bill does is create a new category of registration under the Controlled Substances Act (CSA) for emergency medical responders and this allows an EMS provider to obtain a license to carry and administer any controlled substances (not just narcotics as the title suggests). They are required to do so under standing orders given by physicians who are themselves registered as prescribers under the CSA. My guess is that currently EMS providers are kind of in a netherland; they are not giving drugs to specific patients under a doctor's instructions so they are carrying controlled substances and distributing them in a fashion that is technically illegal under the current version of the CSA. The DEA has been looking the other way, but given the recent issues with diversion of controlled substances to the black market, Congress thinks it is appropriate to bring this practice under the law rather than leave it in a state of legal limbo.