FDA rules may not seem common sense to you and many, but they are governed by laws. And, IMO, thats the right approach to approving drugs.
SRPT's fans (including 150 congressmen, who wrote a letter to FDA, and Marco Rubio who gave a speech in Senate) kept on begging FDA to approve SRPT's Eteplirsen. During those times, it seemed like a no-brainer to approve Eteplirsen (it was safe, and kids were dying/losing muscles). BUT --- FDA was very very clear. It was going to do an AA ONLY if the drug studies showed " substantial evidence that the drug expressed/impacted the surrogate marker (dystrophin expression". SRPT's drug was almost almost rejected, but JW put her foot down and went against AdCom as well as staff, and unilaterally (pretty-much) decided to approve Etep.
Note that the bar of substantial evidence is NOT LOWERED for AA (compared to full-approval). The only differences between AA and full-approval are:
1. Use a surrogate market (or intermediate endpoint) as the endpoint to evaluate.
2. Then, do a confirmatory trial to evaluate the clinical/final endpoint.
Safety doesn't really play a critical role. Efficacy does. If a drug is efficacious, then FDA will approve as long as the safety risk is not high. NOT THE OTHER WAY ROUND, i.e., FDA will not approve a perfectly safe drug with non-so-solid evidence of efficacy. The latter may seem against common sense, but thats how it is (IMO, rightly so).