The lack of evidence for pharmacological treatments in chronic primary pain, other than for anti-depressants, seems to be a direct consequence of the psychiatric/biopsychosocial approach to its clinical management and to research on it. Comparing the numbers of studies that were included for each type of treatment highlights this issue (section 1.4.1):
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Exercise: 91 studies and 3 Cochrane reviews with 32 comparisons of interventions
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Psychotherapy: 47 studies with 18 comparisons
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Pharmacological management: 34 studies with 11 comparisons, including 22 studies on anti-depressants vs. 5 for NSAIDs, 5 for benzodiazepines, none for opioids
The evidence base was such that the NICE committee got to consider 4 times as many studies on exercise and psychotherapy combined than pharmacological management, and twice as many on anti-depressants than other drugs. A question that comes to mind, then, is that while pharmaceutical laboratories might be content from a financial viewpoint with the recommendation of anti-depressants, would it not also be interesting for them to generate evidence on painkillers for the treatment of chronic primary pain?
Another issue with the evidence base is how trials of painkillers were designed. Their trials were of continuous usage, but this is not sensible nor realistic due to their adverse effects. I reckon that most patients are aware of the risk of harm and many (but not all) try to reserve their usage of painkillers to the most difficult times of a pain flare -- taking them spontaneously, not continually, throughout the course of a few hours to a few weeks --. I would think that, had patients with chronic primary pain been properly involved in research/designing trials, by now we would have trials of spontaneous usage.
Also, therapeutic education on painkillers has an important role to play on their responsible usage, but how consistently is it provided to people with chronic primary pain -- who are often dismissed by MDs --? I am not sure that the NICE guideline proposed this as a harm reduction method (but the old one might have). I do not know the literature on chronic secondary pain (with an identified cause) but I suppose the above points must have been studied in this context. In the evidence review, there is no sign that they were discussed.