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      International Collaboration to Ensure Equitable Access to Vaccines for COVID‐19: The ACT‐Accelerator and the COVAX Facility

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      The Milbank Quarterly
      John Wiley and Sons Inc.

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          Abstract

          Policy Points

          • Equitable access to a COVID‐19 vaccine in all countries remains a key policy objective, but experience of previous pandemics suggests access will be limited in developing countries, despite the rapid development of three successful vaccine candidates.

          • The COVAX Facility seeks to address this important issue, but the prevalence of vaccine nationalism threatens to limit the ability of the facility to meet both its funding targets and its ambitious goals for vaccine procurement.

          • A failure to adequately address the underlying lack of infrastructure in developing countries threatens to further limit the success of the COVAX Facility.

          Context

          Significant effort has been directed toward developing a COVID‐19 vaccine, which is viewed as the route out of the pandemic. Much of this effort has coalesced around COVAX, the multilateral initiative aimed at accelerating the development of COVID‐19 vaccines, and ensuring they are equitably available in low‐ and middle‐income countries (LMICs). This paper represents the first significant analysis of COVAX, and the extent to which it can be said to have successfully met these aims.

          Methods

          This paper draws on the publicly available policy documents made available by the COVAX initiatives, as well as position papers and public statements from governments around the world with respect to COVID‐19 vaccines and equitable access. We analyze the academic literature regarding access to vaccines during the H1N1 pandemic. Finally, we consider the WHO Global Allocation System, and its principles, which are intended to guide COVAX vaccine deployment.

          Findings

          We argue that the funding mechanism deployed by the COVAX Pillar appears to be effective at fostering at‐risk investments in research and development and the production of doses in advance of confirmation of clinical efficacy, but caution that this represents a win‐win situation for vaccine manufacturers, providing them with opportunity to benefit regardless of whether their vaccine candidate ever goes on to gain regulatory approval. We also argue that the success of the COVAX Facility with respect to equitable access to vaccine is likely to be limited, primarily as a result of the prevalence of vaccine nationalism, whereby countries adopt policies which heavily prioritize their own public health needs at the expense of others.

          Conclusions

          Current efforts through COVAX have greatly accelerated the development of vaccines against COVID‐19, but these benefits are unlikely to flow to LMICs, largely due to the threat of vaccine nationalism.

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          Most cited references25

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          An mRNA Vaccine against SARS-CoV-2 — Preliminary Report

          Abstract Background The severe acute respiratory syndrome coronavirus 2 (SARS-CoV-2) emerged in late 2019 and spread globally, prompting an international effort to accelerate development of a vaccine. The candidate vaccine mRNA-1273 encodes the stabilized prefusion SARS-CoV-2 spike protein. Methods We conducted a phase 1, dose-escalation, open-label trial including 45 healthy adults, 18 to 55 years of age, who received two vaccinations, 28 days apart, with mRNA-1273 in a dose of 25 μg, 100 μg, or 250 μg. There were 15 participants in each dose group. Results After the first vaccination, antibody responses were higher with higher dose (day 29 enzyme-linked immunosorbent assay anti–S-2P antibody geometric mean titer [GMT], 40,227 in the 25-μg group, 109,209 in the 100-μg group, and 213,526 in the 250-μg group). After the second vaccination, the titers increased (day 57 GMT, 299,751, 782,719, and 1,192,154, respectively). After the second vaccination, serum-neutralizing activity was detected by two methods in all participants evaluated, with values generally similar to those in the upper half of the distribution of a panel of control convalescent serum specimens. Solicited adverse events that occurred in more than half the participants included fatigue, chills, headache, myalgia, and pain at the injection site. Systemic adverse events were more common after the second vaccination, particularly with the highest dose, and three participants (21%) in the 250-μg dose group reported one or more severe adverse events. Conclusions The mRNA-1273 vaccine induced anti–SARS-CoV-2 immune responses in all participants, and no trial-limiting safety concerns were identified. These findings support further development of this vaccine. (Funded by the National Institute of Allergy and Infectious Diseases and others; mRNA-1273 ClinicalTrials.gov number, NCT04283461).
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            Oxford–AstraZeneca COVID-19 vaccine efficacy

            2020 has been a difficult year for all, but has seen 58 vaccines against severe acute respiratory syndrome coronavirus 2 (SARS-CoV-2) be developed and in clinical trials, 1 with some vaccines reportedly having more than 90% efficacy against COVID-19 in clinical trials. This remarkable achievement is much-needed good news as COVID-19 cases are currently at their highest daily levels globally. 2 New vaccine efficacy results are reported now in The Lancet: investigators of four randomised, controlled trials conducted in the UK, South Africa, and Brazil report pooled results of an interim analysis of safety and efficacy against COVID-19 of the Oxford–AstraZeneca chimpanzee adenovirus vectored vaccine ChAdOx1 nCoV-19 (AZD1222) in adults aged 18 years and older. 3 This is the first report of efficacy against COVID-19 for a non-profit vaccine aiming for global supply, equity, and commitment to low-income and middle-income countries (LMICs),4, 5 and as such its publication is very welcomed. After phase 1 results supported a two-dose regimen, the trial protocols were amended where necessary to require two standard doses (SD/SD cohort) of approximately 5 × 1010 viral particles per dose administered 28 days apart, but a subset (LD/SD cohort) in one of the UK trials inadvertently received a half-dose of the vaccine (low dose) as the first dose before a change in dosage quantification methodology; additionally, the protocol amendments enabled other trial participants originally scheduled to receive a single dose to receive a booster more than 28 days after their first dose. Participants randomly received either the ChAdOx1 nCoV-19 vaccine or control, which was either meningococcal conjugate vaccine (MenACWY) or saline depending on the trial. Interim efficacy results were available and are reported for two of the four ongoing trials (from the UK and Brazil) based on cases occurring within approximately 4 months of follow-up in 11 636 participants, the majority of whom were aged 18–55 years (10 218 [87·8%] participants), white (9625 [82·7%] participants), and female (7045 [60·5%] participants). No COVID-19-related hospital admissions occurred in ChAdOx1 nCoV-19 recipients, whereas ten (two of which were severe) occurred in the control groups. Vaccine efficacy for the prespecified primary analysis (combining dose groups) against the primary endpoint of COVID-19 occurring more than 14 days after the second dose was 70·4% (95·8% CI 54·8 to 80·6; 30 [0·5%] of 5807 participants in the ChAdOx1 nCoV-19 group vs 101 [1·7%] of 5829 participants in the control group). Surprisingly, however, efficacy was substantially lower in the SD/SD cohort (62·1% [95% CI 41·0 to 75·7]; 27 [0·6%] of 4440 vs 71 [1·6%] of 4455) than in the LD/SD cohort (90·0% [67·4 to 97·0]; three [0·2%] of 1367 vs 30 [2·2%] of 1374), which remained after accounting for differences in age and time between doses. Efficacy was similar when evaluated starting at 21 days after the first standard dose (192 cases), suggesting there is at least short-term protection with one dose. Although efficacy was lower (58·9% [1·0 to 82·9]) against asymptomatic infection in the LD/SD cohort (and unfortunately only 3·8% [−72·4 to 46·3] in the SD/SD group), the results nonetheless provide some hope that COVID-19 vaccines might be able to interrupt some asymptomatic transmission, although fewer data (69 cases among 6638 participants) were available with this outcome and more data are needed to confirm. Only 1418 (12·1%) of those assessed for efficacy were older than 55 years (none of whom were in the LD/SD cohort), meaning that from the interim analysis of these trials, we cannot yet infer efficacy in older adults, who are the group at greatest risk of severe COVID-19 outcomes. Serious adverse events were evaluated in 12 174 ChAdOx1 nCoV-19 recipients and 11 879 control recipients. No serious adverse events or deaths that were treatment associated occurred in ChAdOx1 nCoV-19 recipients. There were 175 serious adverse events (84 in the ChAdOx1 nCoV-19 group and 91 in the control group), three of which were possibly related to the intervention: transverse myelitis occurring 14 days after a ChAdOx1 nCoV-19 booster vaccination, haemolytic anaemia in a control recipient, and fever higher than 40°C in a participant still masked to group allocation. Two additional transverse myelitis cases considered unlikely to be related to the intervention occurred: one 10 days after the first dose of ChAdOx1 nCoV-19 was attributed to pre-existing multiple sclerosis and one in a control group that occurred 68 days after vaccination. The transverse myelitis cases resulted in temporarily pausing the trial and all participants have recovered or are recovering. © 2021 Gallo Images/Getty Images 2021 Since January 2020 Elsevier has created a COVID-19 resource centre with free information in English and Mandarin on the novel coronavirus COVID-19. The COVID-19 resource centre is hosted on Elsevier Connect, the company's public news and information website. Elsevier hereby grants permission to make all its COVID-19-related research that is available on the COVID-19 resource centre - including this research content - immediately available in PubMed Central and other publicly funded repositories, such as the WHO COVID database with rights for unrestricted research re-use and analyses in any form or by any means with acknowledgement of the original source. These permissions are granted for free by Elsevier for as long as the COVID-19 resource centre remains active. The strengths of the study include the large sample size, randomisation to vaccine groups, inclusion of diverse sites targeting different races and ethnicities, standardisation of key elements between the trials, balance of participant characteristics between the vaccine groups, inclusion of all participants in the safety assessment, and having similar results in Brazil as in the UK for the SD/SD group, which lends credibility to the results. Three of the trials also did not restrict enrolment based on age or presence of comorbidities. Although the efficacy results reported here were from single-blind trials, which masked only the participants to the product received, the endpoints were assessed by a blinded independent review committee. The limitations include that less than 4% of participants were older than 70 years of age, no participants older than 55 years of age received the mixed-dose regimen, and those with comorbidities were a minority, with results for that subgroup not yet available. The heterogeneity in vaccine dosage was fortuitous in uncovering a potentially highly efficacious formulation but was unplanned, and needs further evaluation in older adults and to confirm the unexpected results. The observed differences in efficacy by dose were not consistent with results from previous immunogenicity trials of this vaccine, which were similar for participants receiving two low doses and two standard doses; no immunogenicity data exist for the mixed-dose regimen. 6 If immunogenicity is also similar for this regimen, this would be an unusual finding that requires further exploration, including whether this pertains only to milder disease (as there were too few cases to assess efficacy against severe COVID-19). Disparity between immunogenicity and efficacy findings could imply that clear-cut immunological correlates of clinical protection might not exist for COVID-19 vaccines, meaning efficacy cannot be extrapolated to other unevaluated ages or populations. Furthermore, bridging trials, in which new vaccines are tested against such correlates, or immunogenicity equivalence trials, in which new vaccines are tested against licensed vaccines using such immunological surrogates (rather than disease outcomes), that are faster and easier might be infeasible, posing challenges for future vaccine development, evaluation, and regulatory approval. Oxford–AstraZeneca's US$2–3 per dose agreement with the COVAX Facility holds good promise for equitable access for LMICs, compared with the high cost of the two mRNA vaccines that have reported more than 90% efficacy.1, 4, 5, 7 The ChAdOx1 nCoV-19 vaccine can also use routine refrigerated cold chain, which is important since the ultra-low temperature freezers required to store mRNA vaccines could be unaffordable and impractical in many countries and in settings such as nursing homes. However, other challenges with any two-dose regimen will exist in many LMICs where platforms to easily identify, locate, and reach—twice—adults targeted for vaccination are lacking. 8 If the two vaccine injections require different doses, this will add complexity for health workers with little formal training, but can be managed with innovative packaging and proper change management to reduce errors. Trust and confidence in any COVID-19 vaccine will be crucial to its success. The appropriate pausing of the trial to carefully investigate for safety concerns generated much publicity despite the reassuring outcomes of the safety review and trial recommencement. Public concerns might have been raised by the unplanned administration of different doses, notwithstanding that the per-protocol primary results exceeded licensure thresholds and that the serendipitous findings for recipients of the mixed-dose regimen were of high efficacy. Further trials to substantiate the unexpected findings here and investigation of efficacy in older adults are now needed. When faced with vaccine choices, National Immunization Technical Advisory Groups will have to consider all factors and decide which vaccine is right for their setting. Efficacy is an important consideration, but so are pragmatics of delivery, community acceptance, longevity of effect, whether a vaccine reduces infection and transmission as well as disease, efficacy in high-risk groups, and, of course, safety. Despite the outstanding questions and challenges in delivering these vaccines, it is hard not to be excited about these findings and the existence of three safe and efficacious COVID-19 vaccines, with a further 55 already in clinical trials. 1 With a range of manufacturers, a very large global investment in production, and cooperation in procurement and distribution, it seems likely that 2021 will see COVID-19 vaccines made available to all countries in the world—at least for their priority groups. 9 Perhaps by this time next year, we can celebrate the global control of SARS-CoV-2, in person.
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              Addressing the Cold Reality of mRNA Vaccine Stability

              As mRNA vaccines became the frontrunners in late-stage clinical trials to fight the COVID-19 pandemic, challenges surrounding their formulation and stability became readily apparent. In this commentary, we first describe company proposals, based on available public information, for the (frozen) storage of mRNA vaccine drug products across the vaccine supply chain. We then review the literature on the pharmaceutical stability of mRNA vaccine candidates, including attempts to improve their stability, analytical techniques to monitor their stability, and regulatory guidelines covering product characterization and storage stability. We conclude that systematic approaches to identify the key physicochemical degradation mechanism(s) of formulated mRNA vaccine candidates are currently lacking. Rational design of optimally stabilized mRNA vaccine formulations during storage, transport, and administration at refrigerated or ambient temperatures should thus have top priority in the pharmaceutical development community. In addition to evidence of human immunogenicity against multiple viral pathogens, including compelling efficacy results against COVID-19, another key strength of the mRNA vaccine approach is that it is readily adaptable to rapidly address future outbreaks of new emerging infectious diseases. Consequently, we should not wait for the next pandemic to address and solve the challenges associated with the stability and storage of formulated mRNA vaccines.
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                Author and article information

                Contributors
                m.r.eccleston-turner@keele.ac.uk
                Journal
                Milbank Q
                Milbank Q
                10.1111/(ISSN)1468-0009
                MILQ
                The Milbank Quarterly
                John Wiley and Sons Inc. (Hoboken )
                0887-378X
                1468-0009
                02 March 2021
                : 10.1111/1468-0009.12503
                Affiliations
                [ 1 ] Keele University
                Author notes
                [*] [* ] Address Correspondence to: Dr. Mark Eccleston‐Turner, School of Law, Keele University, Staffordshire, United Kingdom, ST5 5BG (email: m.r.eccleston-turner@ 123456keele.ac.uk ).

                Article
                MILQ12503
                10.1111/1468-0009.12503
                8014072
                33650737
                8cac2076-4d06-43d9-bdab-fff1ca4a373d
                © 2021 The Authors. The Milbank Quarterly published by Wiley Periodicals LLC on behalf of The Millbank Memorial Fund

                This is an open access article under the terms of the http://creativecommons.org/licenses/by/4.0/ License, which permits use, distribution and reproduction in any medium, provided the original work is properly cited.

                History
                Page count
                Figures: 0, Tables: 0, Pages: 24, Words: 8135
                Funding
                Funded by: Arts and Humanities Research Council , open-funder-registry 10.13039/501100000267;
                Award ID: AH/V006924/1
                Categories
                Original Scholarship
                Original Scholarship
                Custom metadata
                2.0
                corrected-proof
                Converter:WILEY_ML3GV2_TO_JATSPMC version:6.0.1 mode:remove_FC converted:01.04.2021

                Social policy & Welfare
                Social policy & Welfare

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