Mitigation Strategies for Pandemic Influenza A: Balancing Conflicting Policy Objectives

Abstract

Mitigation of a severe influenza pandemic can be achieved using a range of interventions to reduce transmission. Interventions can reduce the impact of an outbreak and buy time until vaccines are developed, but they may have high social and economic costs. The non-linear effect on the epidemic dynamics means that suitable strategies crucially depend on the precise aim of the intervention. National pandemic influenza plans rarely contain clear statements of policy objectives or prioritization of potentially conflicting aims, such as minimizing mortality (depending on the severity of a pandemic) or peak prevalence or limiting the socio-economic burden of contact-reducing interventions. We use epidemiological models of influenza A to investigate how contact-reducing interventions and availability of antiviral drugs or pre-pandemic vaccines contribute to achieving particular policy objectives. Our analyses show that the ideal strategy depends on the aim of an intervention and that the achievement of one policy objective may preclude success with others, e.g., constraining peak demand for public health resources may lengthen the duration of the epidemic and hence its economic and social impact. Constraining total case numbers can be achieved by a range of strategies, whereas strategies which additionally constrain peak demand for services require a more sophisticated intervention. If, for example, there are multiple objectives which must be achieved prior to the availability of a pandemic vaccine (i.e., a time-limited intervention), our analysis shows that interventions should be implemented several weeks into the epidemic, not at the very start. This observation is shown to be robust across a range of constraints and for uncertainty in estimates of both R₀ and the timing of vaccine availability. These analyses highlight the need for more precise statements of policy objectives and their assumed consequences when planning and implementing strategies to mitigate the impact of an influenza pandemic. In the event of an influenza pandemic which has high mortality and the potential to spread rapidly, such as the 1918–19 pandemic, there are a number of non-pharmaceutical public health control options available to reduce transmission in the community and mitigate the effects of the pandemic. These include reducing social contacts by closing schools or postponing public events, and encouraging hand washing and the use of masks. These interventions will not only have a non-intuitive impact on the epidemic dynamics, but they will also have direct and indirect social and economic costs, which mean that governments will only want to use them for a limited amount of time. We use simulations to show that limited-time interventions that achieve one aim, e.g., contain the total number of cases below some maximum number of treatments available, are not the same as those that achieve another, e.g., minimize peak demand for health care services. If multiple aims are defined simultaneously, we often see that the optimal intervention need not commence immediately but can begin a few weeks into the epidemic. Our research demonstrates the importance of tailoring pandemic plans to defined policy targets with some flexibility to allow for uncertainty in the characteristics of the pandemic.