DEPARTMENT OF HEALTH AND HUMAN SERVICES 

CENTERS FOR DISEASE CONTROL AND PREVENTION

Advisory Committee on 

Immunization Practices (ACIP)

Summary Report

July 29, 2009 

 Atlanta, Georgia 

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Advisory Committee on Immunization Practices (ACIP) Summary Report July 29, 2009

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Table of Contents Page

Acronyms 3-4 

Agenda 5 

Welcome and Introductions 6-8 

Introduction and Goals of the Meeting 8-10

Novel Influenza A(H1N1) Epidemiology: United States 10-14

Novel Influenza A(H1N1): Global Update 14-16

Viral and Immunology Update

 

16-26

Vaccine Development and Formulations

 

26-29

FDA / VRBPAC Update 29-32

Overview of H1N1 Clinical Trials by NIAID / NIH 32-39

2009 H1N1 Vaccine and Critical Infrastructure Key Resources Priority Groups

 

39-42

Implementation Planning 42-44

Communications Strategy 44-50

Public Comment 50-52

ACIP Influenza Work Group Recommendations 52-74

Certification 74

Participant Roster 75-80

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Acronyms

AAFP American Academy of Family Physicians

AAP American Academy of Pediatrics

ACIP Advisory Committee on Immunization Practices

ACOG American College of Obstetricians and Gynecologists

AHIP America’s Health Insurance Plans

BARDA Biomedical Advanced Research and Development Authority / HHS

BLA Biologics License Application

BMI Body Mass Index

BRFSS Behavioral Risk Factors Surveillance System 

CAIS Childhood / Adolescent Immunization Schedule

CAIV-T Cold-Adapted Influenza Vaccine

CCHIS Coordinated Center for Health Information and Service

CCID Coordinating Center for Infectious Diseases

CDC Centers for Disease Control and Prevention

CID Committee on Infectious Diseases (CID) of the American Academy of Pediatrics 

(AAP)

CIKR Critical Infrastructure Key Resources Priority Groups 

CMS Centers for Medicare and Medicaid Services

DBD Division of Bacterial Diseases (of NCIRD)

DGMQ Division of Global Migration and Quarantine

DHQP Division of Healthcare Quality Promotion

DHS Department of Homeland Security

DMID Division of Microbiology and Infectious Diseases 

DoD Department of Defense

DSMBs Data Safety Monitoring Boards

DVA Department of Veterans Affairs

EUA Emergency Use Authorization 

FDA Food and Drug Administration

GBS Guillain Barré Syndrome

GID Global Immunization Division

GMCs Geometric Mean Concentrations 

GMTs Geometric Mean Titers

GSK GlaxoSmithKline

HICPAC Healthcare Infection Control Practices Advisory Committee 

HPLC High-Performance Liquid Chromatography Assay

HHS Department of Health and Human Services 

HMO Health Maintenance Organization

HRSA Health Resources and Services Administration 

ID Influenza Division (of NCIRD)

IDSA Infectious Disease Society of America

IHS Indian Health Services

ILI Influenza-Like Illness

ILINet Influenza-Like Illness Surveillance Network 

IND Investigational New Drug

IOM Institute of Medicine

ISD Immunization Services Division (of NCIRD)

ISO Immunization Safety Office (of CDC/OD/Office of the Chief Science Officer)

MCO Managed Care Organization 

MMWR Morbidity and Mortality Weekly Report

NACCHO National Association of County and City Health Officials

NACI Canadian National Advisory Committee on Immunizations 

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NBSB National Biodefense Science Board 

NCHM National Center for Health Marketing

NCIRD National Center for Immunization and Respiratory Diseases (of CDC/CCID)

NCPDCID National Center for Preparedness, Detection, and Control of Infectious 

Diseases

NIAC National Infrastructure Advisory Council 

NIAID National Institute of Allergy and Infectious Diseases

NIBSC National Institute for Biological Standards and Control 

NIH National Institutes of Health

NIS National Immunization Survey

NISAC National Infrastructure and Analysis Center

NVAC National Vaccine Advisory Committee 

NVICP National Vaccine Injury Compensation Program

NVPO National Vaccine Program Office

NRVSS National Respiratory Virus Surveillance System

OCSO Office of the Chief Science Officer

OD Office of the Director (of CDC)

OIP Office of Infrastructure Protection

P&I Pneumonia and Influenza

PEP Post-Exposure Prophylaxis

PhRMA Pharmaceutical Research Manufacturers of America

PREP Act Public Readiness and Emergency Preparedness Act 

SAGE Strategic Advisory Group of Experts (WHO)

sBLA Supplemental Biologics License Application

SHEA Society for Healthcare Epidemiology of America

SMEs Subject Matter Experts

UK United Kingdom

US United States

VAERS Vaccine Adverse Event Reporting System

VFC Vaccines for Children

VICP Vaccine Injury Compensation Program

VRBPAC Vaccines and Related Biological Products Advisory Committee

VSD Vaccine Safety Datalink

VTEUs Vaccine and Treatment Evaluation Units 

WER Weekly Epidemiologic Report 

WG Work Group

WHO World Health Organization

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MEETING OF THE ADVISORY COMMITTEE ON IMMUNIZATION PRACTICES (ACIP)

Centers for Disease Control and Prevention

1600 Clifton Road, NE, Tom Harkin Global Communications Center (Building 19), Atlanta, Georgia

July 29, 2009

AGENDA ITEM PURPOSE PRESIDER/PRESENTER(s)

Wednesday, July 29, 2009

8:00

 

Welcome & Introductions

 Administrative announcements

 

Dr. Dale Morse (Chair, ACIP)

Dr. Larry Pickering (Executive 

Secretary, ACIP; CDC)

8:15 Introduction and goals of the meeting Information Dr. Kathy Neuzil (ACIP Influenza Work 

Group Chair)

8:30 Novel influenza A(H1N1) epidemiology in the United States Information Dr. Anthony Fiore 

(CDC/CCID/NCIRD/ID; ACIP Influenza 

Work Group Lead)

9:00 Novel influenza A(H1N1) epidemiology – global update Information Dr. Joshua Mott (CDC/CCID/NCIRD/ID)

9:15 Virology and immunology update Information Dr. Alexander Klimov 

(CDC/CCID/NCIRD/ID)

9:45 Vaccine development and formulations Information Dr. Robin Robinson (BARDA)

10:00 FDA/VRBPAC update Information Dr. Wellington Sun (FDA)

10:15 Overview of H1N1 clinical trials by NIAID/NIH Information Dr. Richard Gorman (NIH)

10:30 coffee break

10:45 2009-H1N1 vaccine and critical infrastructure key resources 

priority groups

Information Dr. Terry Adirim (Senior Advisor, 

Office of Health Affairs, DHS)

10:55 Implementation planning Information Dr. Pascale Wortley 

(CDC/CCID/NCIRD/ISD)

11:30 Communications strategy Information Dr. Kris Sheedy (CDC/CCHIS/NCHM), 

Associate Director for 

Communication Science)

11:50 Public comment

12:00 lunch

1:00 ACIP Influenza Work Group recommendations Information

Discussion

Vote

Dr. Anthony Fiore 

(CDC/CCID/NCIRD/ID; ACIP Influenza 

Work Group Lead)

Dr. Kathy Neuzil (ACIP Influenza Work 

Group Chair)

3:00 Adjourn

Acronyms

BARDA Biomedical Advanced Research and Development Authority/HHS ISD Immunization Services Division

CCHIS Coordinating Center for Health information and Service NCHM National Center for Health Marketing

CCID Coordinating Center for Infectious Diseases NCIRD National Center for Immunization and Respiratory Diseases

DHS Department of Homeland Security NIAID National Institute of Allergy and Infectious Diseases

FDA Food and Drug Administration/ HHS NIH National Institutes of Health/HHS

HHS U.S. Department of Health and Human Services VRBPAC Vaccines and Related Biological Products Advisory Committee

ID Influenza Division

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Discussion

Dr. Dale Morse, ACIP Chair

Dr. Kathleen Sebelius, Director, DHHS

Dr. Larry Pickering, ACIP Executive Secretary, CDC

Dr. Morse called the meeting to order, welcoming everyone to this special session of the ACIP. 

Dr. Pickering also offered his welcome to the July 2009 ACIP meeting on Novel Influenza 

A(H1N1). He indicated that before commencing the meeting, there was a special welcome and 

announcement from Kathleen Sebelius, Secretary of the Department of Health and Human 

Services (HHS).

Dr. Sebelius offered greetings to ACIP members, liaison organizations, ex officio members, 

liaison representatives, and others. She thanked everyone for being in Atlanta for the day for 

this very important meeting. Every year, the public health and health care communities join 

forces to protect America from seasonal influenza. This year the challenge has doubled. Like 

seasonal influenza, the novel H1N1 influenza virus is deadly. Like seasonal influenza, it will 

require a multi-faceted approach for prevention and control. In the three months since this new 

influenza virus was identified, it has spread worldwide and disrupted communities across the 

United States (US). The virus has disproportionally affected younger adults and children who 

have no prior immunity to it. While media attention has decreased over the summer, the threat 

from the virus has not. It is unknown how novel H1N1 influenza will present in the coming 

months. It is believed that impact will be a problem again once schools reopen in the fall. The 

President has outlined a national framework for response to the novel influenza A(H1N1) virus. 

That plan consists of four pillars of preparedness that will guide actions at all levels of 

government: surveillance, community mitigation, vaccination, and communication. 

This committee plays a special and vital role in protecting the third pillar. Vaccination is the best 

way to prevent the spread of influenza. Scientists at the National Institutes of Health (NIH), the 

Centers for Disease Control and Prevention (CDC), and the Food and Drug Administration 

(FDA) are currently working with vaccine manufacturers to prepare and test a safe and effective 

vaccine. While there are off-ramps built into the decision-making process if circumstances 

change, a voluntary vaccination program is anticipated to begin against the novel H1N1 

influenza virus in the fall. ACIP recommendations will be critical in determining the scope of the 

program. As Dr. Sebelius has spoken to stakeholders, partners, and the public about the novel 

influenza A(H1N1) virus, she has emphasized that responsibility must be shared for responding 

to this public health threat. The members of ACIP have a unique role to play in the team effort 

in providing science-based recommendations that will determine how the novel H1N1 vaccine 

will be distributed. She and the entire federal government offered their gratitude for ACIP’s 

advice. In closing, she thanked ACIP members for coming together for this very important ACIP 

meeting and for contributing their expertise to help make the best decisions about how to use 

the vaccine against the novel influenza H1N1 virus. Dr. Sebelius recognized that in the coming

months, ACIP would continue to play a critical advisory role in the effort to keep the American 

people healthy. 

Dr. Pickering recognized several people in the room who were to be in attendance throughout 

the duration of the ACIP meeting to assist with various meeting functions: Antonette Hill 

(Committee Management Specialist for ACIP), Natalie Greene, Tamara Miller, Tanya Lennon, 

and Suzette Law. 

Welcome / Introductions

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He also extended a welcome to those joining the meeting by cyberspace. For the first time, this 

ACIP meeting was broadcast via the internet so that the day’s proceedings would be available 

to members of state health departments and immunization programs across the U.S., liaison 

representatives who were unable to attend in person, members of US and international 

agencies, and others interested in the deliberations.

Handouts of all presentations were distributed to the ACIP members and were made available 

for members of the public each day on the tables outside of the auditorium. Slides presented 

for this meeting are posted on the ACIP website, generally within one week of the end of the 

meeting, while the minutes of the meeting are posted within 90 days of the termination of the 

meeting. 

Members of the press interested in conducting interviews with ACIP members were instructed to 

contact Mr. Tom Skinner for his assistance in arranging interviews, and the press table located 

in the auditorium was pointed out. 

Recognizing the extent of the interest in this particular meeting, two additional rooms were 

reserved as overflow space for additional seating. These rooms were located across the hall 

from the auditorium where the meeting could be viewed in real-time via audio visual equipment. 

To avoid interruptions during the meeting, those present were instructed to conduct all business 

not directly related to discussions of ACIP in the hallways to avoid disruptions to people in the 

audience. Attendees were also instructed to turn off all cell phones or place them in the vibrate 

mode to avoid disruption.

A quorum of 14 of the 15 ACIP members was present. Given that the meeting could not 

continue without a quorum, all appointed members were asked to return from breaks and lunch 

in a timely manner to participate in the meeting.

Topics presented at the ACIP meeting include open discussion with time reserved for public 

comment, which the committee considers to be very important. A time for the public comment 

period during this meeting was scheduled following the morning session and before any vote, so 

that public comment could be considered prior to a vote. Those who planned to make public 

comments were instructed to visit the registration table at the rear of the auditorium to have 

Antonette Hill record their name and provide information on the process. Those who registered 

to make public comments prior to the meeting were instructed to meet with Ms. Hill to verify that 

their names were listed and to receive any additional information.

With regard to disclosure, the goal in appointing members to the ACIP is to achieve the greatest 

level of expertise while minimizing the potential for actual or perceived conflicts of interest. To 

summarize conflict of interest provisions applicable to the ACIP, as noted in the ACIP policies 

and procedures manual, members of the ACIP agree to forego participation in certain activities 

related to vaccines during their tenure on the committee. For this particular meeting, given that 

votes to be taken involved priority groups rather than a specific product or a specific 

manufacturer’s product, members of the ACIP who conduct clinical trials were permitted to vote. 

Dr. Pickering extended special gratitude to the ACIP members, liaison representatives, and ex 

officio members for taking time from their busy schedules to consider this important subject. 

Particular gratitude was expressed to Drs. Morse and Beck who were recruited and agreed to 

attend this meeting despite their official tenure on the committee having ended. 

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The ACIP home page was shown on screen. The url is: www.cdc.gov/vaccines/recs/acip/ 

This website is updated at frequent intervals with current versions of the meeting agenda, 

minutes, presentations, and other information. Other useful resources also were shown, which 

included the following:

ACIP e-mail: acip@cdc.gov 

MMWR: Prevention and Control of Seasonal Influenza with Vaccines: 

Recommendations of the Advisory Committee on Immunization 

Practices (ACIP), 2009. 

 www.cdc.gov/mmwr/pdf/rr/rr58e0724.pdf 

 

Vaccine Safety: www.cdc.gov/vaccinesafety/ 

Next ACIP meeting: October 21-22, 2009

Registration Deadlines: 

Non-US citizens 10/2/09 

US-citizens 10/9/09

On line registration (required):

www.cdc.gov/vaccines/recs/acip/meetings.htm#register 

No conflicts of interest were declared for this meeting. 

Discussion

Kathy Neuzil, MD, MPH

Chair, Influenza Vaccine Work Group

Dr. Neuzil acknowledged that this was an extraordinary meeting of ACIP, and that it had taken 

extraordinary efforts on the part of many people inside and outside the agency to orchestrate it. 

She stressed that the highly inclusive membership of the Influenza Vaccine Work Group had 

been deliberate and thoughtful in its considerations, and comprehensive in its review of the 

issues. Representatives from many organizations have been included in the work group’s calls, 

representing views of different segments of the population and of different groups. She then 

indicated that the goals of this specially convened ACIP meeting were to:

 Review current epidemiology and virology of influenza pandemic, vaccine supply and 

demand estimates, and implementation plans;

 Provide evidence-based recommendations on target groups for pandemic vaccination

efforts based on currently available data, including top priority groups in event of local or 

national supply-demand mismatch;

Introduction and Goals of the Meeting

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 Provide recommendations that would allow the overall vaccination program, seasonal and 

pandemic, to be most successful (the work group has been referring to these as seasonal 

and pandemic vaccines for simplicity); and

 Recognize and acknowledge uncertainties, as well as the potential need to reconsider 

recommendations as more data become available. 

With respect to the Influenza Vaccine Work Group process during June and July 2009, during 

the regularly scheduled ACIP meeting on June 24-25, a considerable amount of time was spent 

on the topic of novel H1N1. Since that time, there have been weekly teleconferences, on-going 

email and telephone discussions, and there was a long work group meeting on July 28, 2009.

To bring people up to date on some of the recommendations in the rest of the world and also 

some of the information that led the work group to this point, the World Health Organization 

(WHO) convened an extraordinary meeting of their Strategic Advisory Group of Experts (SAGE) 

on July 7, 2009 to provide guidance for the pandemic. The WHO has outlined their pandemic 

priorities to protect the integrity of the health care system and countries’ critical infrastructure to 

reduce morbidity and mortality and reduce transmission of the pandemic virus within 

communities. The results of those deliberations have been published in the Weekly 

Epidemiologic Report (WER), which can be found at the following url: http://www.who.int/wer/ 

2009/wer8430/en/index.html. The SAGE statement is as follows:

“All countries should immunize their health-care workers as a first priority to protect the 

essential health infrastructure. As vaccines available initially will not be sufficient, a 

step-wise approach to vaccinate particular groups may be considered. SAGE suggested 

the following groups for consideration, noting that countries need to determine their 

order of priority based on country-specific conditions: pregnant women; those aged 

above 6 months with one of several chronic medical conditions; healthy young adults of 

15 to 49 years of age; healthy children; healthy adults of 50 to 64 years of age; and 

healthy adults of 65 years of age and above.”

The US is making its own decisions and considerations, although it is important to know and 

have this information from other groups / countries.

There has already been considerable planning in the US in the event of a pandemic. The 

National Vaccine Advisory Committee (NVAC) and ACIP examined recommendations for 

prioritization of pandemic influenza vaccine prior to this pandemic. The primary goal of a 

pandemic response at that time was to decrease health impacts, including severe morbidity and 

death, and secondary pandemic response goals, including minimizing societal and economic 

impacts [HHS Pandemic Influenza Plan, 2005; http://www.hhs.gov/pandemicflu/plan/ 

appendixd.html].

The US pre-pandemic planning guidance also considered a number of recommendations, 

included a number of groups, and included public engagements between 2005 and 2008. The 

priorities of a pandemic vaccine program recommended by the US Interagency Work Group

outlined the following elements in 2007: 

 Protecting those who are essential to the pandemic response and provide care for persons 

who are ill; 

 Protecting those who maintain essential community services; 

 Protecting children; and 

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 Protecting workers who are at greater risk of infection due to their job. 

However, it is very important to note that this was pre-pandemic. Much of the planning focused 

on a severe pandemic scenario, with the potential for substantial disruption of critical 

infrastructure. It was fully acknowledged that the intent was to modify according to the 

pandemic epidemiology and vaccine supply expectations [HHS / DHS. Guidance on allocation 

and targeting pandemic influenza vaccine, 2007; http://www.pandemicflu.gov/vaccine/ 

allocationguidance.pdf].

During this ACIP meeting, presentations were delivered on the following:





















U.S. Epidemiology Update (Dr. Anthony Fiore, CDC)

World Epidemiology Update (Dr. Josh Mott, CDC)

Virology and Immunology (Dr. Alexander Klimov, CDC)

Vaccine Development (Dr. Robin Robinson, BARDA)

FDA Update (Dr. Wellington Sun, FDA)

Overview of Clinical Trials (Dr. Richard Gorman, NIH)

Critical Infrastructure Issues (Dr. Terry Adirim, DHS)

Implementation Planning (Dr. Pascale Wortley, CDC)

Communications Strategy (Dr. Kris Sheedy, CDC)

ACIP Influenza Workgroup Recommendations (Dr. Anthony Fiore, CDC and Dr. Kathy 

Neuzil, Workgroup Chair)

Discussion

Anthony Fiore, MD, MPH

Influenza Division

National Center for Immunizations and Respiratory Diseases

Centers for Disease Control and Prevention

Dr. Fiore reminded everyone that during the June 2009 ACIP meeting, Dr. Lyn 

FinelliSurveillance Team Leader, provided a comprehensive epidemiologic update to 

that point on Novel Influenza A(H1N1). Moving forward, as of July 18, 2009, the 

assessment activity from state and territorial epidemiologists reflects that there 

continues to be activity, with widespread activity in some states:

Novel Influenza A(H1N1) Epidemiology: United States

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Based on three seasons worth of data from the Influenza-Like Illness Surveillance Network 

(ILINet), to which over 2000 sentinel providers across the US report, during the 2007-2008 

season there was an increase of activity in early May 2008 for provider visits for Influenza-Like 

Illness (ILI) that continued for several weeks that was well above baseline of what is typically 

observed during that timeframe. 

The national data masks some important regional data that are important to consider. Region 1 

(e.g., Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, Vermont) showed a 

pattern somewhat similar to the national data, but with two peaks, the second of which was later 

than the national pattern. Region 2 (e.g., New Jersey, New York) was hit very hard by the 

outbreak in the spring and early summer, with a substantial peak of ILI that exceeded any of the 

rates that were observed in the previous two influenza winter seasons. Region 3 (e.g., 

Delaware, District of Columbia, Maryland, Pennsylvania, Virginia, West Virginia) showed a 

pattern similar to the national data, with not as prominent a peak as seen in the national data 

during April and May.

Laboratory-confirmed novel influenza A(H1N1) case counts as of July 24, 2009 for the US 

included 43,771 laboratory-confirmed cases, with 5,011 hospitalizations and 302 deaths. 

Regarding case characteristics, 50% were male and 50% were female. The median age in all 

cases was 12 years, hospitalized cases 20 years, and deceased cases 37 years. Counts of 

confirmed cases were affected by guidance to focus testing on persons at risk for complications 

or who were hospitalized, which was intentional to permit state laboratories conducting the 

confirmatory testing to keep up with demand. 

Weekly aggregate cases are currently reported. It is important to remember from the case 

counting data that as time has gone on and testing practices have changed, the data are 

somewhat skewed by that fact that sickest people are the ones most likely to be tested. More 

specifically with regard to laboratory-confirmed cases by age group, 4816 cases were 0 through 

4 years of age (11%); 22,080 cases were 5 through 24 years of age (50%), 7434 were 25

through 49 years of age (17%), 2187 cases were 50-64 years of age (5%), 513 cases were 65

years of age or older (1%), and age was unknown for 6741 cases (15%). The theme of a 

striking age group difference from seasonal flu from novel H1N1 continues throughout the data. 

Due to rounding, percentages may not add up to exactly 100%. The rates per 100,000 

population by age group of laboratory-confirmed cases tell a slightly different story, in that the 

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rates are highest in those 5 through 24 years of age (26.7), although they are also quite high in 

children less than 4 years of age (22.9), with lower rates as age groups increase.

Dr. Fiore presented data on the incidence of confirmed or probable influenza A(H1N1) by age 

group in the US earlier in the epidemic (e.g., March 15-May 16, 2009) in response to the ACIP’s 

call in June for more refined case counting data of confirmed cases and for further examination 

of the younger age group (n=2672). For those less than 4 years old, rates are somewhat lower 

than rates in older school-aged children and decreasing rates with increasing age. With the 

rates being highest in school-aged children, because most children have relatively mild, a way 

to measure impact is by examining school dismissals related to novel influenza A(H1N1) 

mitigation measures. This was heavily influenced by policies in place at the time for school 

dismissal, remember that earlier in the outbreak, school dismissals were recommended in some 

instances for a single case in a school. Over time, that recommendation was eased off as more 

was understood about the lack of severity for most infections and the difficulty that closing 

schools poses for communities. From April 29 through May 27, 2009, at the peak of school 

dismissals in early May, nearly half a million school-aged children (n=468,282) were out of 

school with 726 schools closed.

In terms of hospitalizations by age group of laboratory-confirmed novel influenza A(H1N1), as of 

July 24, 2009 (n=5,011), moving from the highest to the lowest, the highest number was in the 5 

to 24 year old age group (n=1718; 34%); 24 to 49 year olds (n=1184; 24%); 0 to 4 year olds 

(n=953; 19%); 50 to 64 year olds (n=658; 13%); unknown ages (n=273; 5%); and > 65 years old 

(n=225; 4%). With regard to the hospitalization rate per 100,000 population by age group of 

laboratory-confirmed novel influenza A(H1N1) as of July 24, 2009 (n=4,738; does not include 

unknown age group of 273), children aged 0 to 4 had the highest rate at 4.5 / 100,000 followed 

by the school-aged and younger adult age group of 5 to 24 years at 2.1 / 100,000 [Rate / 

100,000 by Single Year Age Groups: Denominator source: 2008 Census Estimates, U.S. 

Census Bureau at: http://www.census.gov/popest/national/asrh/files/NC-EST2007ALLDATA 

-R-File24.csv]. 

The Emerging Infections Program sites are the source of a large population-based dataset from 

May through July 2009 that shows that during this timeframe, there was essentially a winter 

season’s worth of cumulative hospitalizations in 5 to 17 year olds and nearly a winter season’s 

worth in the 18 to 49 year olds. The following illustrates the striking difference between 

seasonal and pandemic influenza as of July 14, 2009:

Distribution by Age Group of Influenza Hospitalized Cases 

Emerging Infections Program - Pandemic H1N1 -14 JUL 2009

0

5

10

15

20

25

30

35

40

45

50

< 6 mo 6mo-4 yrs 5-9 yrs 10-17 yrs 18-29 yrs 30-49 yrs 50-64 yrs 65+ yrs

Age group

Percent 

Seasonal 2007-08 Pandemic 2009*

*April 12 – June 30

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The 2007-2008 season was mild to moderate, probably the most active season over the last 

four winter seasons. The percentage of patients 65 and older among hospitalized patients was 

very high. The striking contrast to that is that during the pandemic, many more cases were 

observed in 6 months to 4 years old, 10 to 17 year olds, and the 30 to 49 year olds. It is not 

until the 50 to 60 year old age group until the percentage begins to approach what looks more 

like a seasonal percentage of cases.

In terms of underlying medical condition among persons hospitalized with laboratory confirmed 

influenza A(H1N1), detailed clinical information was collected on the first 268 hospitalized 

patients on which the investigators were able to obtain information in the April to May time 

period. The prevalence of underlying conditions amongst those cases was 20% in those 0 to 6 

month of age, 40% in 6 month to 23 month, 50% in 2 to 4 year olds, 85% in 5 to 9 year olds, 

62% in 10 to 17 year olds, 75% in 18 to 49 year olds, 87% in 50 to 64 year olds, 100% in 65 

year olds and above [Jain et al, CDC unpublished data. Case series of patients with confirmed 

novel H1N1 infection who were hospitalized during April-May 2009].

Deaths by age group of laboratory-confirmed novel influenza A(H1N1) as of July 24, 2009 

(n=302) included: 7 (2%) in 0 to 4 year olds, 48 (16%) in 5 to 24 year olds, 124 (41%) in 25 to 

49 year olds, 71 (24%) in 50 to 64 year olds, 26 (9%) in > 65 year olds, and 26 (9%) of an 

unknown age. There has been a pediatric death reporting system in place since 2004. Over 

the last four influenza seasons, deaths due to laboratory-confirmed influenza in the 2005-2006, 

2006-2007, and 2007-2008 seasons seasonal influenza deaths ranged from 46 to 88. Over the 

past influenza season, in the winter there were 67 deaths due to seasonal influenza, which was 

somewhat lower from previous years. However, there have been 23 pandemic-related pediatric 

deaths reported to date. The median age for deaths among children is 10 years compared to 7 

years for the seasonal influenza in this past season.

To summarize the key epidemiologic findings, in terms of the distribution of cases, 

hospitalizations, and deaths, the highest incidence of laboratory-confirmed infections have been

in school-aged children. The highest hospitalization rates have been among 0 to 4 year olds. 

The hospitalization rates for April through July 2009 have been similar to annual cumulative 

hospital rates for seasonal influenza among school-aged children and 18 to 49 year old adults. 

The fewest cases but highest case-fatality ratio has been in older adults. Distribution of cases 

by age group is markedly different compared to seasonal influenza. There has been a higher 

proportion of hospitalized cases in children and young adults, few cases in older adults, and no 

reports of outbreaks among residents in long-term care facilities. Long-term care facilities are 

typically one of the harbingers of a bad seasonal influenza. Of the hospitalized cases, 70% had 

an underlying medical condition that conferred higher risk for complications. 

With respect to plans for surveillance studies, CDC will continue with the established 

surveillance systems. There is syndromic surveillance monitoring through established systems 

(e.g., ILINet, Biosense) for outpatient illness. There are also population-based surveillance 

platforms (e.g., Emerging Infections Program) that are monitoring hospitalizations. Pediatric 

deaths due to laboratory-confirmed influenza will continue to be monitored. Deaths due to 

pneumonia and influenza will be monitored in 122 cities through mortality surveillance using 

modeling of data from this system. Viral surveillance is monitored through WHO / National 

Respiratory Virus Surveillance System (NRVSS) labs throughout the country, through which 

specimens are collected from persons with ILI to test them for influenza and determine which 

sub-type they have. Additional surveillance studies are planned as well. There will be monthly 

telephone surveys for ILI attack rates by state run through the Behavioral Risk Factors 

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Surveillance System (BRFSS). While there will be monthly data, the investigators should be 

able to obtain rolling averages by week. This will give them a sense of what is occurring in the 

community and should capture the burden of ILI in communities in ways that medical visits / 

hospitalizations do not. CDC is also working with CSTE to improve methods for acquiring 

laboratory-confirmed deaths and hospitalizations. 

Discussion

Josh Mott, PhD

Influenza Division

National Center for Immunizations and Respiratory Diseases

Centers for Disease Control and Prevention

Referring to the following map illustrating countries that have had confirmed novel A(H1N1) 

cases and deaths throughout the world, Dr. Mott pointed out that many countries across the 

latitudes of the world have had confirmed cases (n=134,503) and deaths (n-816) as of July 27, 

2009. There has been a shift in testing practices from less severe to more severe cases almost 

uniformly throughout the world, and WHO continues to gather information on laboratoryconfirmed cases from its regional offices. 

International

Global Update

Novel 2009-H1N1 – 28 JUL 2009

As of July 27, 134,503 cases and 816 deaths

Dr. Mott stressed that the number of cases was likely to be a gross under-estimation of what 

was actually occurring, given that many countries have shifted to clinical characterization and 

confirmation of less severe cases. Whether examining confirmed cases or syndromic 

surveillance, the locations that have experienced the most deaths also have reported the largest 

intensity of circulation to date.

In terms of CDC’s international program, there are two primary objectives related to the 

pandemic response. The first is that there are many laboratory and technical resources 

throughout the world, as well as existing partnerships through agreements for established 

seasonal influenza surveillance and programs throughout the world, for which CDC can provide 

Novel Influenza A(H1N1) Epidemiology: Globally

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assistance. CDC is working diligently to do this through the laboratory and epidemiologic 

resources. At the same time, CDC has a keen interest in what is occurring, particularly in the 

Southern Hemisphere where influenza is in its high season. In that regard, observing what is 

occurring with the novel influenza virus and the co-circulation of influenza virus can help to 

better understand changes in transmission, epidemiology, severity, changes in the virus itself, 

and the effectiveness of interventions. CDC working with existing partners throughout the world 

(e.g., Ministries of Health, WHO, and others) to: 1) enhance on-going communications and 

share information at greater frequencies than usual; 2) enhance surveillance and investigation, 

improving sentinel site surveillance and focusing on CDC platforms that have been doing this for 

many years; and 3) implement programs (e.g., through CDC platforms, sentimental sites, and 

international deployments) that can answer key research and investigation questions to answer 

epidemiologic and transmission questions where there are technical and infrastructural 

resources to do.

In terms of the current situation throughout the world as of July 27th, in Australia there were 

17,061 cases, 2154 hospitalizations, and 50 Deaths. Of the hospitalizations, 27% (103 / 378)

were in ICU. The overriding story is that in many locations, the novel H1N1 virus has moved to 

become a large majority of influenza viruses circulating in Australia and New Zealand. Victoria 

had the earliest wave of the outbreak and has moved through its first wave of the pandemic 

now, such that they have observed declines in ILI consultation rates over the last three to four 

weeks. In the State of Victoria, almost all of the viruses currently being detected are novel 

H1N1. That has not been quite the same story in other places. The pandemic is more at its 

peak or plateau in New South Wales and Western Australia. For example, in New South Wales, 

Sydney may be moving toward some declines in ILI consultations rates, but there are still 

increases in outlying and regional areas in New South Wales. There is an on-going rise in 

influenza activity in Western Australia. In all of these locations, H1N1 has moved toward some 

dominance. Many of the influenza viruses that are not novel H1N1 that have been sub-typed, 

many are H3N2, although there a lot of un-sub-typed viruses circulating. 

In the rest of the world, the picture remains similar. In Chile and Argentina, there is a large 

dominance of novel H1N1 virus relative to seasonal viruses. This is somewhat less true in 

Brazil where much of the outbreak activity has been focused in the Southern part of the country. 

South Africa has been an exception to the rule so far where there is community spread of the 

novel H1N1 virus, but a large proportion of the viruses circulating are H3N2. In the Northern 

Hemisphere (e.g., US, Canada, England) almost exclusively novel H1N1 influenza virus is being 

found. In 2008, Western Australia went through an influenza B season and moved into a 2009 

season that began as H3N2 with some H1N1, but now is predominated by novel H1N1. 

Australia’s influenza season occurred somewhat earlier than their baselines have been for the 

last couple of years. South Africa went through a normally timed H3N2 season in 2009, but 

then began to observe community transmission of the novel virus. However, there has not yet 

been a second wave or peak to their influenza season as was observed in the US; however, 

there is a notable portion of novel virus.

There has also been activity outside of the most Southern countries, particularly in the tropical 

and developing regions. Thailand has had a surge in cases. They have moved from reporting 

6000 cases and > 30 deaths on July 21st to 10,000 cases and 52 deaths on July 24th. There 

has been an increase in more severe illness being reported in Thailand, which is likely due to a 

real increase in illness as well as a change in their surveillance approach to focus on testing 

more severe cases. This is quite notable because the latitude reflects that there is sufficient 

transmission and notable burden of disease in the tropical region as well. CDC has a lot of 

platforms in these regions, so some of the more detailed and investigation questions to be 

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answered can be focused there—hopefully quickly from an epidemiological standpoint. The 

Northern Hemisphere cannot be overlooked. In European Union / EFTA Countries, there is still 

evidence of on-going transmission in Europe. Through Week 30, there remained a significant 

amount of activity.

 

In terms of the epidemiologic features of the novel virus in the Southern Hemisphere, little has 

been observed that differs from what has been observed in the US. There are high percentages 

of cases under than the age 20 (e.g., often over 50%). The distribution of severe illness clusters 

is usually in the 20 to 59 year age group. Pre-existing conditions (e.g., respiratory illness,

asthma, pregnancy, metabolic disease) have all been reported in severe cases. It is difficult to 

assess risk factors and severity given differences in surveillance approaches in various 

countries. That said, the profile of these conditions in severe cases looks similar across the 

Southern Hemisphere. The pattern of the burden of cases with the greatest number of cases 

occurring at younger ages is also similar. The proportion of severe outcomes among cases

appears to be greater in older ages. Time-to-treatment in several countries has been 

associated with severe outcomes, specifically time from onset to hospitalization. Indigenous ad 

rural populations have been disproportionately affected, which is possibly a function of greater 

underlying health status and access to care. 

In summary regarding the severity of cases in the Southern Hemisphere, there are many 

differences in the numbers of confirmed cases and the numbers of deaths by country. The 

numbers of cases is very much influenced by the testing practices that an individual country 

may choose to use. Most less-severe illness is not being confirmed in any country. There has 

typically been a concurrent rise in less-severe disease that accompanies increased reports of 

severe cases in any particular country. Shifts in testing practices to focus on more severe 

cases affects the case fatality rate, or the proportion of confirmed cases that have severe 

outcomes in any given country. This depends very upon the timing of the shift to focus on 

severe cases, which is not easily compared between countries. Adjusting for population size

when assessing absolute numbers of deaths across various countries reduces observed 

disparities in severity. The epidemiology remains similar across countries, and the current 

viruses look similar to A/California/2009. Currently, there is no evidence to suggest something 

is “different” in any particular country. 

Discussion

Alexander Klimov, PhD

Influenza Division

National Center for Immunizations and Respiratory Diseases

Centers for Disease Control and Prevention

Dr. Klimov provided a brief update of virology and immunology data on the pandemic H1N1 

virus, which represented an update of what Dr. Nancy Cox presented at a previous ACIP 

meeting. Several major questions could be raised with respect to surveillance in terms of novel 

H1N1 and whether the virus is drifting genetically, whether it is drifting antigenically, whether the 

sensitivity of the virus against licensed drugs is changing, and whether there is evidence of 

reassortment between novel virus and seasonal viruses. 

With respect to the genetic characterization, as illustrated by the phylogenetic tree for 

hemagglutinin (HA) genes of novel influenza virus, genetically the viruses appear to be 

homogeneous. Looking at a similar tree for seasonal influenza, there is much wider variability 

Virology and Immunology Update

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within the HA gene. The novel phylogenetic tree is built up against the A/New Jersey/8/1976 

H1N1, which shows the many differences there are between the previous 1976 virus and the 

recent pandemic virus of swine heritage. The phylogenetic tree for neuraminidase genes built 

against the A/New Jersey/8/1976 H1N1 again reflects wide genetic variability between the 

seasonal and pandemic viruses. The following table reflects the genetic distance between 

A/New Jersey/8/1976 and A/Texas/05/2009 compared with H3N2 viruses: 

HA

Number of 

Nucleotides 

Different (%)

HA

Number of 

Amino Acids 

Different (%)

NA

Number of 

Nucleotides 

Different (%)

NA

Number of 

Amino Acids 

Different (%)

A/New Jersey/8/1976 vs 

A/California/7/2009 

(H1N1)

184 (11%) 44 (8%) 282 (20%) 82 (18%)

A/Victoria/3/1975 vs 

A/Brisbane/10/2007 

(H3N2)

185 (11%) 57 (10%) 120 (9%) 47 (10%)

The number of nucleotide differences between 1976 and California 7 is 11%. At the level of 

amino acid differences, this is 8%. It is even higher at the neuraminidase level, with 20% at the 

nucleotide and 18% at the amino acid level. When these data are compared to H3N2 viruses, 

Brisbane/10/2007, the current vaccine strain for H3 component has many differences. It would 

be necessary to go back to A/Victoria/3/1975 H3N2 virus. Thus, the distance between A/New 

Jersey/8/1976 and recent viruses is approximately, at the nucleotide and amino acid level, 

between A/Victoria/3/1975 and A/California/7/2009. 

The genetic and antigenic data are based on quite a number of viruses (n-861), which are either 

sequenced or antigenically characterized. Approximately 450 (n=449) viruses are characterized 

from North America, 81 from Central and South America, 106 from Asia and Oceana, and 225 

from Europe. In total, 39 complete genomes have been sequenced for novel influenza H1N1 

viruses.

The following table illustrates antigenic variability, or non-variability in this case, between novel 

H1N1 viruses:

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HI REACTIONS OF PANDEMIC INFLUENZA H1N1v VIRUSES (CDC)

REFERENCE FERRET ANTISERA Date

STRAIN DESIGNATION SW/IA/30NJ/8/76 WI/10 TX/14 IL/9 IA/09 CA/07 MX/4108 NY/18 TX/15 AS/59Passage collected

1 A/SWINE/IOWA/1930 320 160 5 10 5 5 5 5 5 5 5 XEXE3 UNKN

2 A/NEWJERSEY/8/1976 160 640 10 20 10 10 5 5 5 5 5 SpfE7 UNKN

3 A/WISCONSIN/10/1998 5 80 1280 1280 1280 640 640 640 640 640 5 C3/C3E2 12/31/98

4 A/TEXAS/14/2008 80 160 320 2560 1280 1280 1280 1280 640 2560 5 M1/C2 10/15/08

5 A/ILLINOIS/9(33304)/2007 80 160 1280 2560 5120 5120 2560 2560 1280 1280 5 C2 09/01/07

6 A/IOWA/02/2009 40 160 1280 5120 5120 5120 2560 2560 2560 2560 5 E2 02/13/09

7 A/CALIFORNIA/07/2009 40 10 320 2560 1280 1280 2560 1280 1280 1280 5 E3 04/09/09

8 A/MEXICO/4108/2009 40 10 320 2560 1280 1280 2560 640 640 640 5 C1/E2 04/03/09

9 A/NEW YORK/18/2009 10 5 320 1280 640 1280 1280 640 640 640 5 E2 UNKN

10 A/TEXAS/15/2009 20 10 640 5120 2560 2560 5120 2560 1280 1280 5 C2

11 A/BRISBANE/59/07 5 5 5 5 5 5 5 5 5 5 160 E2/E2 07/01/07

TEST ANTIGENS

Fatal cases

12 A/UTAH/03/2009 20 5 160 2560 1280 1280 2560 1280 1280 1280 5 C1 05/15/09

13 A/WASHINGTON/14/2009 5 5 160 2560 1280 1280 1280 640 640 640 5 C2 05/07/09

14 A/ARIZONA/07/2009 20 5 320 2560 1280 1280 2560 2560 2560 2560 5 C1 05/07/09

MDCK and EGG pairs

15 A/NEW YORK/04/2009 5 5 320 2560 640 1280 2560 1280 640 1280 5 C1 UNKN

16 A/NEW YORK/04/2009 80 20 320 2560 1280 1280 2560 640 640 1280 5 E2 UNKN

17 A/NEW YORK/05/2009 40 20 320 2560 1280 1280 2560 1280 1280 1280 5 C1 UNKN

18 A/NEW YORK/05/2009 5 5 320 2560 1280 1280 2560 640 1280 1280 5 E2 UNKN

19 A/NEW YORK/35/2009 160 80 320 5120 2560 2560 5120 2560 2560 5120 5 C1 04/25/09

20 A/NEW YORK/35/2009 20 5 320 2560 1280 1280 2560 2560 2560 5120 5 E2 04/25/09

MDCK or EGG grown

21 A/TEXAS/31/2009 10 5 320 2560 1280 1280 2560 2560 1280 1280 5 C1 05/12/09

22 A/ MONTANA/01/2009 20 10 320 2560 1280 1280 1280 1280 1280 1280 5 C1 05/05/09

23 A/FLORIDA/09/2009 5 5 320 2560 1280 1280 2560 1280 1280 1280 5 C1 05/01/09

24 A/CALIFORNIA/18/2009 5 5 160 1280 640 640 1280 1280 640 1280 5 C1 04/30/09

25 A/NEW HAMPSHIRE/03/200 20 10 320 1280 1280 1280 2560 1280 1280 1280 5 C1 04/28/09

26 A/GEORGIA/02/2009 5 5 320 2560 1280 640 1280 1280 1280 1280 5 C1 05/04/09

27 A/IDAHO/03/2009 5 5 320 2560 640 640 1280 1280 1280 1280 5 C1 05/05/09

28 A/MAINE/02/2009 80 10 640 2560 2560 2560 2560 2560 2560 2560 5 C1 05/05/09

29 A/NEVADA/04/2009 40 5 640 2560 1280 1280 2560 1280 1280 1280 5 E2 04/29/09

30 A/NEW YORK/45/2009 80 5 1280 2560 1280 1280 2560 2560 2560 2560 5 E2 04/25/09

31 A/MEXICO/4283/2009 160 40 1280 5120 2560 5120 5120 2560 5120 5120 5 C1/C1 04/15/09

32 A/MEXICO/4575/2009 320 80 1280 5120 5120 5120 5120 5120 5120 5120 5 C1/C1 04/20/09

33 A/GUATEMALA/450/2009 10 5 320 2560 1280 1280 2560 1280 640 1280 5 C1 05/01/09

34 A/COLOMBIA/330/2009 5 5 640 5120 2560 2560 2560 2560 2560 2560 5 C1 05/02/09

35 A/EL SALVADOR/351/2009 20 5 320 2560 1280 1280 2560 1280 1280 1280 5 C1 05/13/09

36 A/NONTHABURI/102/09 40 10 640 5120 2560 2560 2560 2560 1280 2560 5 C1/C1 05/04/09

37 A/AUCKLAND/01/2009 5 5 640 2560 1280 1280 2560 1280 640 1280 5 C2/C1 04/25/09

38 A/AUCKLAND/03/2009 10 5 320 2560 640 1280 2560 640 1280 1280 5 C2/C1 04/25/09

39 A/ENGLAND/195/2009 20 10 640 5120 2560 2560 5120 1280 1280 2560 5 X/C1 UNKN

Reassortants

40 A/CALIFORNIA/07/2009 X-1 5 5 640 5120 2560 2560 2560 1280 1280 2560 5 EX/E1 REASS

41 A/TEXAS/5/2009xPR8-IDCD 20 5 640 2560 1280 2560 2560 1280 1280 1280 5 VE2/E1 REASS

 

At the top of the table are a battery of reference viruses and a battery of reference ferret postinfection anti-sera. Not only are all swine viruses or like swine viruses from 1930 and A/New 

Jersey/8/1976, there is a copy of ferret anti-sera against viruses isolated from people infected 

with so-called classical reassortant viruses before the pandemic H1N1 appeared in the US. 

This table reflects that novel H1N1 viruses are quite different antigenically from A/New 

Jersey/8/1976. They are closer to recent classical swine reassortant cases before the 

appearance of novel influenza viruses, but not quite. Looking at CA/07 and MX/4108, NY/18, 

and TX/15, all of the viruses are pretty similar to each other antigenically. In this data, viruses 

isolated from fatal cases are not different antigenically from other viruses. They have viruses 

grown in MDCK cells and in eggs. Growing in eggs in many cases may cause the appearance 

of mutants, which would be antigenically different. In this case, no such difference is observed 

between MDCK-grown and egg-grown viruses. Foreign viruses from Mexico, Guatemala, 

Columbia, El Salvador, Thailand, New Zealand and England are similar to each other, similar to 

the US viruses, and similar to the reference CA/07 case. At the bottom of the table are two 

vaccine candidates, A/California/07/20009 X-1 high yield reassortant prepared using the 

classical technique, and the A/Texas/5/2009xPR8-IDCD prepared by using reverse genetics. 

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HI REACTIONS OF PANDEMIC INFLUENZA H1N1v VIRUSES (CDC)

REFERENCE FERRET ANTISERA Date

STRAIN DESIGNATION CA/04 CA/07 X-179A MX/4108 NY/18 TH/102 TX/05 RG-15 ENG/ 195 AS/59 Passage collected

1 A/CALIFORNIA/04/2009 320 1280 640 1280 640 320 1280 80 640 5 C2 04/01/09

2 A/CALIFORNIA/07/2009 1280 2560 1280 2560 2560 640 2560 320 1280 5 E3 04/09/09

3 A/CALIFORNIA/7/09 NYMC X-179A 5120 20480 2560 5120 5120 1280 5120 1280 2560 5 EX/E1 REASS

4 A/MEXICO/4108/2009 2560 5120 1280 1280 2560 640 2560 320 1280 5 C1/E2 04/03/09

5 A/NEW YORK/18/2009 1280 2560 1280 1280 1280 320 1280 160 640 5 E2 UNKN

6 A/NONTHANBURI/102/2009 2560 10240 2560 2560 2560 640 2560 320 2560 5 C1/C2 05/04/09

7 A/TEXAS/05/2009 640 2560 640 1280 1280 320 1280 160 640 5 X/C2 04/15/09

8 A/TEXAS/5/2009 XPR8-IDCDC RG15 2560 5120 2560 1280 1280 640 2560 640 1280 5 VE2/E1 REASS

9 A/ENGLAND/195/2009 2560 5120 2560 2560 2560 640 5120 320 2560 5 X/C1 UNKN

10 A/BRISBANE/59/07 5 5 5 5 5 5 5 5 5 320 E2/E2 07/01/07

TEST ANTIGENS

11 A/DELAWARE/03/2009 2560 5120 2560 2560 5120 640 2560 320 1280 5 E2 04/28/09

12 A/SOUTH CAROLINA/10/2009 1280 2560 2560 2560 2560 640 5120 160 1280 5 C1 04/15/09

13 A/ARKANSAS/04/2009 640 1280 640 1280 640 320 1280 160 640 5 C2 05/07/09

14 A/MICHIGAN/11/2009 1280 5120 1280 2560 2560 640 2560 320 2560 5 C2 05/04/09

15 A/CALIFORNIA/23/2009 1280 2560 640 1280 640 320 1280 160 1280 5 C2 05/26/09

16 A/MASSACHUSETTS/15/2009 640 2560 1280 1280 1280 320 2560 160 1280 5 C1 05/26/09

17 A/NEW YORK/61/2009 640 2560 640 1280 1280 320 2560 160 1280 5 C2 05/26/09

18 A/NEW YORK/71/2009 1280 5120 1280 1280 1280 640 2560 320 2560 5 C1 05/23/09

19 A/TEXAS/36/2009 1280 5120 1280 1280 1280 320 2560 160 1280 5 C1 04/29/09

20 A/MEXICO/INDRE4487(10)/2009 1280 5120 1280 2560 1280 640 5120 640 1280 5 E2/E1 UNKN

21 A/PARAGUAY/41/2009 1280 2560 1280 1280 1280 320 2560 160 1280 5 C1 06/04/09

22 A/CHILE/2408/2009 1280 5120 2560 2560 2560 640 2560 320 2560 5 C2/C1 06/08/09

23 A/CHILE/2085/2009 640 2560 640 1280 1280 320 1280 160 1280 5 C2/C1 06/05/09

24 A/JAMAICA/4422/2009 1280 2560 1280 1280 1280 320 2560 160 1280 5 C2 06/06/09

25 A/NARITA/1/2009 2560 5120 1280 2560 2560 640 2560 640 1280 5 E2/E1 UNKN

26 A/AUCKLAND/1/2009 1280 5120 1280 1280 1280 320 2560 320 1280 5 E2/E2 04/25/09

27 A/NEW ZEALAND/870/2009 640 2560 1280 1280 1280 640 1280 160 1280 5 C2 06/14/09

28 A/NEW ZEALAND/1680/2009 1280 2560 640 1280 1280 320 2560 320 1280 5 E2 06/19/09

FATAL CASES

29 A/TEXAS/15/2009 2560 10240 2560 2560 2560 640 2560 320 2560 5 C2 04/15/09

30 A/UTAH/10/2009 1280 2560 1280 1280 1280 640 5120 320 2560 5 C2 06/05/09

31 A/UTAH/06/2009 1280 5120 1280 2560 1280 640 5120 320 2560 5 C1 06/12/09

REASSORTANTS-DIRECT TESTING

32 A/TEXAS/05/2009-PR8-IDCDC RG18 5120 20480 5120 10240 10240 2560 10240 1280 10240 5 V1E3 REASS

33 A/TEXAS/05/2009-PR8-IDCDC RG20 2560 10240 2560 2560 2560 640 5120 640 2560 5 V1E3 REASS

34 A/NEW YORK/18/2009-PR8-IDCDC RG22 2560 5120 2560 2560 2560 1280 5120 320 2560 5 V1E3 REASS

35 A/CALIFORNIA/07/2009 186D MEDIMMUNE 5120 10240 5120 5120 2560 1280 5120 640 5120 5 EX REASS

36 A/CALIFORNIA/07/2009 395N MEDIMMUNE 2560 5120 2560 2560 2560 1280 5120 320 2560 5 EX REASS

The table above shows that the pattern remains stable. This includes viruses from fatal cases 

that do not differ. There are additional reassortants, including reassortants prepared by 

MedImmune, which is developing candidates for live influenza vaccine. These reassortants are 

similar antigenically to CA/07.

HI REACTIONS OF PANDEMIC INFLUENZA H1N1v VIRUSES (NIMR)

 Passage A/sw/Iowa A/NJ A/Cal A/Cal X179A IVR-153 A/Eng A/Auck A/Narita A/Bris

15/30 8/76 4/09 7/09 195/09 3/09 1/09 59/07

REFERENCE VIRUSES

A/Iowa/15/30 Ex 1280 <40 <40 <40 <40 <40 <40 <40 <40 <40

A/New Jersey/8/76 Ex 320 640 320 640 320 160 320 640 640 <40

A/California/4/2009 C1,M1,E1 <40 160 2560 2560 2560 640 2560 2560 2560 <40

A/California/7/2009 E1+1 <40 160 2560 2560 2560 640 2560 2560 2560 <40

X-179A Ex+1 <40 320 2560 2560 2560 640 2560 2560 5120 <40

IVR153 Ex+1 <40 160 2560 2560 2560 640 2560 2560 2560 <40

A/England/195/2009 MDCK3 <40 80 1280 1280 1280 320 1280 1280 2560 <40

A/Auckland/3/2009 Ex+1 <40 320 2560 2560 2560 640 2560 2560 2560 <40

A/Narita/1/2009 E2+1 <40 320 2560 2560 2560 640 2560 2560 5120 <40

A/Brisbane/59/2007 E9 <40 <40 <40 <40 <40 <40 <40 <40 <40 320

TEST VIRUSES

A/Clermont-Ferrand/960/200MDCK2+1 <40 80 1280 1280 1280 320 1280 1280 2560 <40

A/Perpignan/969/2009 MDCK2+1 <40 80 1280 1280 1280 640 1280 1280 2560 <40

A/Toulouse/1026/2009 MDCK2+1 <40 160 2560 2560 2560 640 2560 2560 2560 <40

A/Lyon/1041/2009 MDCK2+1 <40 160 2560 1280 2560 640 2560 2560 2560 <40

A/Cyprus/S9/2009 MDCK3 <40 80 1280 1280 1280 640 1280 2560 2560 <40

A/Cyprus/S14/2009 MDCK3 <40 160 2560 1280 1280 640 1280 2560 2560 <40

A/Cyprus/S17/2009 MDCK2 <40 80 1280 1280 1280 320 1280 2560 2560 <40

A/Cyprus/S25/2009 MDCK3 <40 160 2560 1280 2560 640 1280 2560 5120 <40

A/Algeria/G594/2009 MDCK3 <40 160 2560 1280 2560 640 1280 2560 2560 <40

A/Singapore/99/2009 MDCK 1+1 <40 160 2560 1280 2560 640 1280 2560 2560 <40

A/Singapore/58/2009 MDCK 1+1 <40 160 1280 2560 2560 640 1280 2560 2560 <40

A/Singapore/100/2009 MDCK 1+1 <40 160 2560 2560 2560 640 2560 2560 5120 <40

A/Singapore/101/2009 MDCK 1+1 <40 160 2560 2560 2560 640 1280 2560 2560 <40

A/Singapore/102/2009 MDCK 1+1 <40 160 2560 2560 2560 640 1280 2560 2560 <40

A/Qatar/84/2009 MDCK4 <40 160 1280 2560 1280 640 1280 2560 2560 <40

A/Mauritius/3/2009JS MDCK3 <40 160 2560 2560 2560 640 1280 2560 2560 <40

POST INFECTION FERRET ANTISERA

The above table reflects similar data, with the only difference being that there is somewhat high 

cross-reactivity between the 1976 virus and recent viruses. However, that could be explained 

by different ferret anti-sera. In addition, the 1976 virus had several varieties that could influence 

the results of testing.

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HI REACTIONS OF PANDEMIC INFLUENZA H1N1v VIRUSES (NIID)

The table above, from Japan, shows that the same pattern of antigenic similarity is observed 

between the vast majority of recent pandemic viruses.

With regard to resistance of pandemic influenza H1N1 viruses to adamantanes (M2 blockers), 

of the 308 US and 78 foreign isolates tested, 100% were found to be resistant. In terms of 

resistance of pandemic influenza H1N1 viruses to neuraminidase inhibitors, of the 267 US 

isolates and 105 foreign isolates tested, none were resistance to zanamivir or oseltamivir. 

However, five oseltamivir-resistant cases were recently documented in the following: Denmark

(n=1) after oseltamivir treatment, Japan (n=2) after oseltamivir treatment, Canada (n=1) after 

oseltamivir treatment, and Hong Kong (n=1) associated with a visitor from San Francisco to 

Hong Kong, who was hospitalized because she developed a high temperature at the airport. 

This case, as far as is known, has received no treatment with oseltamivir. Thus far, this case is 

the only one not associated with drug treatment. 

Pertaining to immunity to 2009 H1N1 virus resulting from prior influenza infection or vaccination 

with seasonal influenza vaccine, less than 4% of individuals born on or after 1980 exhibited preexisting, cross-reactive, neutralizing antibody titers of ≥ 40 to the pandemic virus; whereas, 34% 

of individuals born prior to 1950 had titers of ≥ 80. Vaccination with recent seasonal trivalent 

influenza vaccines (TIV), resulted in a > 4-fold rises in cross-reactive antibody to the pandemic 

virus in only about 2% of children aged 6 months to 9 years, 12% to 22% of adults aged 18 to 

64 years, and < 5% or less of adults aged > 60 years. Seasonal TIV with adjuvant induced 

similar cross-reactive antibody responses [NEJM submitted]. 

In conclusion, all 2009 pandemic H1N1 viruses are antigenically similar to A/California/7/2009, 

with minor genetic variability. There is no evidence of reassortment with seasonal or H5N1

viruses. The pandemic viruses are resistant to M2 blockers, but the vast majority are sensitive 

to the neuraminidase inhibitors oseltamivir and zanamavir. However, oseltamivir-resistance has 

been recently documented in 4 of 5 cases after treatment. Vaccination with contemporary 

seasonal influenza vaccines, with or without an adjuvant, induces little or no cross-reactive 

antibody to the 2009 pandemic H1N1 virus in any age group. Individuals < 30 years of age are 

serologically “naïve.” A proportion of older adults appear to have pre-existing, cross-reactive 

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antibodies. While the virus is transmissible by respiratory droplets in ferrets, the level of 

transmissibility is lower than the level of transmissibility of seasonal influenza viruses. Further 

adaptation in mammals may be required to reach the high-transmissible phenotypes observed 

with seasonal H1N1 viruses. 

Discussion

With respect to global cases, Dr. Morse noted that Dr. Mott had shown some differences in the 

proportion of cases that were due to novel H1N1 versus seasonal influenza strains in various 

locations of the world as well as within the same country at times. With that in mind, he 

wondered if differences were assessed that could help explain this (e.g., lack of reagents to test 

for H1N1, which could lead to a higher proportion of seasonal; or selective testing of un-typable 

A influenza that could lead to biases toward H1N1, et cetera). 

Dr. Mott responded that ideally focus should be placed on the locations that attempt to maintain 

systematic sampling strategies, are conducting sub-typing, and have not had issues with 

laboratory surge capacity. A couple of the platforms CDC has around the world have been able 

to do this. In Australia, in Western and New South Wales in particular, the surge capacity 

issues did not have an impact in a way that has precluded people from being tested particularly 

early on. In other locations of the world, sometimes a large portion of sub-types may be novel 

H1N1 in places where only influenza A is being examined initially with a screening test. That 

was not included in any of the pie charts presented by Dr. Mott. The pie charts shown focused 

on those that have been typed as influenza A and novel H1N1. Those that were treated as nonH1N1 were seasonal. However, many of the seasonals may not yet have been sub-typed. 

Dr. Sawyer noted that most of the data Dr. Fiore presented was from confirmed cases. He 

thought one of the struggles was going to be to try to anticipate the demand for vaccine in the 

community, which would in part be affected by how many people had already been (or at least 

thought they had been) infected. Thus, he wondered whether Dr. Fiore had any updates on 

estimates of the actual number of people affected in the community who were not tested / 

confirmed. The number 1 million has been floated around recently in the press.

Dr. Fiore replied that telephone surveys have been conducted to ask people if / when they had 

had an ILI in the past X number of weeks, depending upon the survey. ILI is defined by the 

surveys as being a febrile respiratory illness with cough and / or sore throat. The community 

surveys conducted in New York City, there was on the order of approximately 7% of people 

reporting that they had experienced an ILI in the previous several weeks. These surveys will be 

continued moving forward through the BRFSS, with a weekly rolling average of surveys that will 

be conducted each month. Therefore, those who have the syndrome that could be ILI will be 

identified. What will not be known from those surveys is the proportion who have novel H1N1 

as compared to seasonal influenza.

Dr. Sawyer inquired as to whether there were any data outside of New York. New York was 

particularly heavily hit based on the confirmed case data. Thus, if they wanted to average 

across the country, it would be less than 7%.

Dr. Fiore responded that moving forward, the BRFSS would be a nationwide survey that would 

provide state-based information. The Emerging Infections Program also conducted a survey, 

which is just administered in Emerging Infection Program sites. However, this represents a 

good proportion of the US population in 10 states. They observed community illness levels in 

those surveillance areas that were roughly the same as New York City. 

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Dr. Marcy indicated that several months ago, ACIP was given the impression that use of

oseltamivir by exerting pressure was not selecting out resistant organisms. The example given 

was that Norway, which does not use a lot of oseltamivir, had a considerable amount of 

resistance. Japan, which seems to hold the world’s record for oseltamivir use, had very little 

resistance. The implication now appeared to be that there is, indeed, antiviral pressure 

selecting out these mutants. Given that, he requested further clarification. 

Dr. Klimov responded that, returning to the development of 100% reassortant resistance of 

seasonal H1N1, and the example given in Norway in which reassortant antivirals were not 

highly used, Japan had 3% to 4% resistance at that time. That shows that using reassortant 

antivirals in some cases can lead to appearance of drug-resistant mutants. The question 

regards whether such a drug resistance mutant would be able to spread widely. What is 

observed currently is that novel H1N1 is not much different from what as observed before the 

Norway phenomenon. In some cases of treatment, the resistant virus can be isolated. The 

question now regards the extent to resistant virus is spreading. They cannot exclude that at 

some point this may occur. However, it is important to remember that oseltamivir has been 

used for many years to treat seasonal influenza and there was no spread of resistant viruses. It 

is believed that resistance of oseltamivir to seasonal H1N1 began when some additional 

advantage was associated with this mutation and the virus started to spread widely. Whether 

this can occur with the pandemic virus is unknown. The last normal season in the US and 

China was predominantly H1N1, while Europe predominantly had H3N2. Of H1N1 seasonal 

influenza, 95% in China during this season were sensitive to oseltamivir. Those viruses are 

from a different genetic and antigenic group of seasonal H1N1 viruses. Thus, this demonstrates 

that the spread of resistant viruses was associated with something else that was an advantage 

for the virus. 

In regard to the hospitalization population rate per 100,000 population by age group, Dr. 

Meissner observed that the highest hospitalization rate was just under 5% in the 0 to 4 year old 

age range. For seasonal influenza, he thought that figure was 100 hospitalizations per 100,000 

among health children up to 500 children per 100,000 with underlying medical conditions. 

Therefore, this figure was significantly lower than seasonal influenza. He wondered whether 

that could be interpreted as a measure of less severe disease.

Dr. Fiore replied that the rates were lower than had been observed in some past seasons for 

seasonal influenza. It is important to remember that the timeframe over which this was 

measured was fairly short and continued to be on-going. The seasonal influenza rates were 

from the end of the season, so those rates could be expected to increase somewhat. He did not 

know whether that reflected a measure of severity in that particular age group. He thought it 

remained to be seen. While they were happy that there had not been as many hospitalizations 

in that age group proportionally as there have been in some of the other age groups, that may 

reflect the early epidemiology of this pandemic thus far, which has been focused on schoolaged children and young adults. It may be that the older age group has not had as many 

exposures as they might to seasonal influenza viruses at this point. 

Dr. Neuzil thought the point about the period of time and what was being compared was 

important. While the relative rates may be lower, clearly the absolute rates were higher than 

any other age group. She also thought it was important to note that numbers were relatively 

small and that age groups were being collapsed, so they needed to be careful about the 

precision of some of these rates because they were less precise than some of the larger 

numbers available for seasonal influenza and the finer age categories. 

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Dr. Meissner stressed that it was a 20-fold difference, which was fairly significant even though 

he agreed that the numbers were small and it was an unusual time of year for influenza. 

Dr. Schuchat indicated that the team had also assessed these types of rates in the affected 

areas, so this represented a national average of hospitalization rates per 100,000. If reviewing 

age-specific hospitalization rates in one of the areas highly affected, it was much closer to the 

seasonal rates in addition to the fact that it was a truncated, off season.

Dr. Chilton noted that Dr. Klimov’s data indicated that about a third of older adults had protective 

levels of antibody against the novel virus, yet it seemed as though the protection for older 

people was greater than just a third of older adults. He wondered whether Dr. Klimov could 

account for the difference.

Dr. Klimov replied that they should have further discussion about cross-protective antibodies in 

that age category rather than about real protection, because to measure real protection they 

would have to have a real count of how many had pre-existing antibodies. It is known that there 

are some higher levels of cross-protective antibodies in the elderly. There is some thought that 

antibodies in the elderly could help to protect them. The age distribution of the disease 

suggests that this could be the case. It is difficult to know for certain, but the origin of those 

antibodies could be that some people were immunized with 1976 vaccine. Some of them could 

have antibodies induced by H1N1 viruses that circulated before 1957, which were related to the 

1918 virus. The role of genes in immunity against the influence of viruses is also not known. 

Also, based on the serology for H5 viruses in the elderly, there is probably some non-specific 

cross-reactivity. The elderly age group appears to have antibodies that cross-react with novel 

H1N1 and sometimes with H5N1 viruses. 

Dr. Englund asked Dr. Fiore to address future plans for including more age-specific data on 

upcoming or on-going surveillance in smaller age group increments.

Dr. Fiore replied that they would be able to use smaller age increments for hospitalization in the 

Emerging Infection Program sites. 

With regard to the methods for case rates, Dr. Sumaya asked Dr. Fiore what the increased 

value was of having the case percentages represented from a proportion of different age groups 

versus the rates per 100,000 population per age group. 

Dr. Fiore responded that one or the other could be used. People think of this in different ways, 

and incidence numbers are sometimes difficult to manipulate in one’s head in terms of what 

they mean with regard to real impact. They are the same data examined in different ways.

Dr. Temte pointed out that there is a great deal of variation in the death rates. His home state, 

Wisconsin, has more cases than anybody, but they have a death rate that is basically what 

would be expected for seasonal influenza. Wisconsin has over 6000 documented laboratoryconfirmed cases with 6 deaths. That is basically a 1 per 1000 death rate. They do have a very 

aggressive surveillance program and very good support from the state level, so many people 

have been tested. The more they expand the base of their pyramid, the relatively less important 

the peak of the pyramid is. He asked Dr. Fiore to address why there was such a disparity. In 

addition, he wondered whether the transmission studies were conducted in seasonally adjusted 

climates representing more of the cool dry season versus a warmer more humid season.

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Dr. Fiore responded that what was likely being observed was the excellent system, with a lot of 

testing and identification of many cases. Other states may not have similar capacity and testing 

is being focused on the sickest people. In fact, testing in many areas is currently restricted to 

hospitalized cases or cases of a particular interest because they are at risk for severe 

complications. He thought that explained the differences by state. 

Dr. Ehresmann noted that Dr. Fiore’s data did not include a lot of pregnant women, although this 

was a group they would be addressing. In terms of the frequency of underlying risk conditions 

in the 65 and older age group at 100%, she wondered how broad “risk condition” was defined 

and whether it was possible to be older than 65 and not have other risk conditions.

Dr. Fiore replied that in the younger age groups, chronic risk conditions were one third. The 

way the data were broken down, being 65 did not automatically give them a chronic condition. 

Sometimes the data have been presented in a different way, such as “65 or a chronic condition” 

lumped together. That is just chronic medical conditions, and they are defined as they are for 

seasonal influenza as a pre-existing heart problem, lung problem, diabetes, cancer, 

immunosuppression, neuromuscular disease, neurological disease, and so forth. He was not 

certain how many pregnant women were represented the confirmed cases at this point, other 

than that it was several dozen. 

Dr. Schuchat thought that about 6% of the cases were pregnant as compared to about 1% of 

the general population, so it was a pretty elevated relative risk. Approximately 6% to 8% of the 

deaths have been in pregnant women, which was consistent with the higher risk of 

complications for seasonal influenza and pregnancy. While those numbers may not be exact, 

this was what she was able to immediately recall. 

Dr. Fiore agreed to check this information and further respond to the committee.

Dr. Neuzil added that they had to shorten the presentations to fit everything in. Clearly, 

pregnancy was discussed during the last ACIP meeting as well as in the work group. The work 

group felt that the data supported that pregnant women are a high risk group for this pandemic.

Dr. Judson acknowledged that early on when they were dealing with so few cases, logically they 

had to group in different age categories than normally utilized. However, with tens of thousands 

of cases currently, as the committee deliberated on targeting by age, they must confront that a 

lot of the date to this point had been presented in groups that did not allow them to have the 

defining capability they would prefer. There was 0 to 4, with the next category being 20 years 

and covering pre-school through adults. The next grouping covered 25 years, which 

immunologically and epidemiologically was a more coherent group, and then there was the over 

65 age group, which had always been an extremely variable group from moderate risk at 65 to 

incredibly high risk in the 70s, 80s, and 90s. This type of grouping had not been done 

previously. The data on hospitalized cases through the Emerging Infections Program used less 

than 6, 6 months to 4 years, 5 years to 9 years, 10 years to 17 years, and so forth. He 

wondered whether they planned to try to rationalize this so that the committee could utilize age 

groupings with which they were familiar and which had been used consistently throughout many 

years.

Dr. Fiore responded that the age groupings the committee was used to seeing was gathered 

through the population-based surveillance sites or in special studies and not through the 

surveillance systems that were feeding them the data for the large age groups at this point. 

Those systems are in place and are active, such as the Emerging Infections Program. He 

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thought they would be able to break down the age groups somewhat more finely for ILINet. 

Important to keep in mind was that the aggregate case reporting would probably soon stop. As 

the pandemic swept across the nation, there would be a return to the systems utilized in the 

past, partly due to the concern that only the sickest people were being testing and they were 

getting an increasingly odd picture of what the pandemic looked like based upon confirmed

laboratory cases across the country. They could anticipate seeing finer age groupings in 

hospitalization data, the community surveys, and the ILINet data. 

In thinking about designing a vaccination program, Dr. Birkhead (NVAC) thought it would be 

beneficial to split out school-aged from college-aged groups. He wondered whether they had 

any data from the Emerging Infections Program that would give them a sense of whether the 

risk dropped off after school-age, high school age, or whether it continued to be high in the 

young adult group. That would seem to be pertinent in terms of who to target for vaccination. 

Dr. Fiore responded that there were two places at which the data could be broken down more 

finely. One was by going back to the early line list-based case reporting that ended in mid-May 

to the end of May. The rate among 12 to 18 year olds was 2.56 per 100,000; among 19 to 24 

year olds 1.26; and among 25 to 49 year olds 0.44. So, it decreased with age. That was 

breaking out the young adult group of 19 to 24 year olds. The other place these data could be 

acquire was through the Emerging Infections Program, which had recently broken down the 

data into somewhat finer age groups. 

Dr. Bresee replied that these data were broken down that morning. They found that the rate of 

hospitalization for 5 to 18 year olds was .54 per 10,000 and in 19 to 23 year olds was .43 per 

10,000—about a 20% decrease in the slightly older age group. This was from the period of time 

when novel H1N1 was circulating during the spring and early summer. 

Dr. Fiore clarified that that was for hospitalization, while the date he just gave was for confirmed 

cases. 

Dr. Poland (ACP) requested an update on the issue of health care workers and H1N1 infection 

in both ways (e.g., them acquiring the virus and potentially transmitting it in the context of the 

hospitalized patients). He also wondered whether health care workers who had acquired the 

virus had been in the setting of aerosolization procedures. 

Dr. Fiore responded that infections have been observed in health care workers. There was a 

recent MMWR addressing this issue. A number of health care workers were thought to have 

acquired their illness in the community, though others were thought to have acquired their 

illness within the hospital. Certainly, health care workers without person protective equipment 

would be at risk for acquiring influenza from patients just as they were during seasonal 

influenza. The magnitude of that risk remained uncertain at this point. In terms of nosocomial 

transmission (e.g., health care workers transmitting novel influenza to patients) there were a 

couple of instances of patients acquiring influenza while hospitalized with an incubation period 

suggesting they acquired it in the hospital. With respect to aerosolization procedures, the health 

care workers who acquired the virus were in the setting of routine patient care. He did not know 

whether there were cases of health care workers engaging in a high risk procedure such as an 

intubation without other sorts of exposure who acquired the virus. 

Dr. Mott added that this was an important issue that had added a challenge to health care 

workers and the response in many international settings. There have been several situations in 

which illness had limited the ability for hospitals to respond to surges, particularly illness in ICU 

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care workers because they are difficult to replace quickly. At the same time, many health care 

workers have stayed home due to fear. There have been high absenteeism rates in 

international settings among health care workers, which has presented a challenge. The 

transmission studies are still being worked out in terms of transmission within the health care 

setting, but it has been observed among nurses, doctors, and those in ICU care settings. 

Dr. Schaffner (NFID) noted that there had been recent news reports indicating that there had 

been a surge of H1N1 novel infections in the United Kingdom (UK). He wondered if Dr. Mott 

had any insight about this, and whether it was perhaps a surveillance artifact. In the Southern 

Hemisphere, there had been reports that a substantial proportion of patients admitted to the 

hospital had presented with illness that was initially afebrile.

With regard to the UK, Dr. Mott responded that there was on-going disease activity and that 

there had been recent reports of increases in less and more severe illnesses and deaths there 

as well. Clearly, transmission was on-going. The UK’s routine surveillance system shows a rise 

in ILIs that appears as though they are progressing into a season well in advance of their 

normal season. The question remained with regard to what would occur for the rest of summer 

period as they moved into the fall. Surveillance artifacts played a role into the media aspect as 

well. With a move away from reporting only confirmed cases to reporting many people with ILI

syndromically, many additional cases become reported. In terms of clinical presentation in the 

Southern Hemisphere, there had definitely been afebrile presentations in various countries. The 

surveillance and testing practices made it difficult to compare the relative portion of those in 

different places, but it was certainly a feature. 

Discussion

Robin Robinson, Ph.D.

HHS / ASPR / BARDA Director 

Dr. Robinson reported that the vaccine strategy, as depicted by the following table, had moved 

into the three elements of vaccine development, manufacturing, and distribution:

1

H1N1 Vaccine Strategy

Vaccine Development and Formulations

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With respect to vaccine development, the first sets of clinical trials are underway, two of which 

are being conducted outside of the US with some of the vaccines that could possibly be used in 

the US in the fall. These are being tested with and without adjuvant at different dosages, 

assessing immunogenicity with one and two doses. These are running parallel with longer term 

clinical trials for which data will be available later. Data will be available from the 

immunogenicity trials approximately two months after their start time. NIH and three of the other 

manufacturers were to soon begin clinical trials.

In terms of the manufacturing element, vaccines are in “the can,” adjuvant has been made, and 

they are moving forward with ancillary supplies of the manufacturing of those. Manufacturers, 

FDA, and the National Institute for Biological Standards and Control (NIBSC) in the UK have 

been working on potency assay reagents. There may be a slight delay in the potency assay 

reagents in the US, but the NIBSC will be providing those, so it should be seamless as far as 

the manufacturers having supplies to go forward from August through at least October. 

With regard to an immunization program, this certainly seemed to have started with the Flu 

Summit that the Secretary announced for state and local health officials who should seriously be 

considering this. Further discussions were also underway within CDC in terms of the 

distribution of the vaccine and how that would work. 

In terms of the H1N1 vaccine timelines and issues, clinical lots needed for the clinical trials have 

been formulated using surrogate HPLC assays as opposed to standard assays. The 

comparability of those will be assessed as soon as the potency assay reagents are received by 

the manufacturer so it will be known whether the 15 mcg in the clinical dose is really 15 mcg or 

17 mcg. The clinical studies have begun, so data should be available in latter September to 

early October with respect to inform vaccine formulation and the safety profile. Licensure of

seasonal monovalent antigen-alone vaccine formulation was recommended by VRBPAC on 

July 23, 2009 as a strain change to the existing BLA as a supplement. That would allow 

manufacturers to begin formulating the vaccine required to move forward. H1N1 vaccine 

formulated with adjuvant may be considered under an Emergency Use Authorization (EUA) as 

opposed to being a licensed product. Discussions are moving forward as to what the conditions 

would be in which adjuvants would be utilized. A decision to or not to use adjuvants had not 

been made at this point. However, it is important to be prepared in the event of a worst case 

scenario. H1N1 vaccine availability by September 2009 was recommended by National 

Biodefense Science Board (NBSB) on July 17, 2009. One of the production availability 

schedules will consider that as a possible scenario. 

A number of issues are involved with inactivated, subunit vaccine production. It has been 

reported in the media that there have been low production yields, which should not be surprising 

as this is observed in seasonal influenza. This occurred with the H5N1 vaccines as they were 

being produced over the last five years. However, increases in production yields have been 

observed for current production. The virus must be passed through eggs a number of times to 

be able to get a virus seed that grows well in eggs and has a larger number of hemagglutinins 

on the individual varion. Another issue is the seasonal vaccine campaign completion. Most of 

the manufacturers are completing on time, will finish in August, and will have the vaccine 

distributed. However, one manufacturer is experiencing difficulty and may not finish until 

September. BARDA is working with them to determine what impact that would have not only on 

H1N1 vaccine production, but also on seasonal influenza vaccine. The goal has always been 

not to interfere with seasonal influenza vaccine manufacturing campaigns. An additional issue 

pertains to the availability of potency assay reagents, which is expected to be seamless, but 

there have been and could be other problems. Syringe fill finish manufacturing capacity is a 

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very relevant point as they move forward with respect to how much vaccine will be available in 

pre-filled single dose syringes. BARDA is working with the manufacturers to make what 

manufacturers have available, and also to contract manufacturing sites in the US, which can 

also help to fill as many single dose syringes as possible moving forward. 

Certainly, determination of the targeted population for H1N1 vaccination by ACIP during this 

meeting would affect the amount, timing, and type of H1N1 vaccines. There are multi-dose 

vials, single-dose pre-filled syringes, and sprayers for the FluMist® like product. Four 

manufacturers are producing the inactivated sub-unit vaccines (e.g., CSL, Novartis, sanofi 

pasteur, and GSK), while MedImmune is producing a product similar to FluMist®. If adjuvants 

were to be used, not only would the products mentioned as a licensed vaccine be utilized, but 

also the adjuvants would be used in a pre-formulated adjuvant presentation. From Novartis this 

would be with one vial of antigen and adjuvant combined and from GSK, there would be 

separate vials of adjuvant and antigen that would have to be mixed. There are studies 

underway at the NIH known as “Mix and Match” studies that would support use of sanofi 

pastuer’s and CLS’s antigens with the GSK AS03 adjuvant. Those data are likely to be 

available no sooner than October for at least the first dose. 

With respect to H1N1 vaccine procurements to date for the civilian population, of which the 

active duty Department of Defense (DoD) population would receive a small portion, the following 

have been acquired:

Of the 181.8 doses of bulk vaccine antigen procured, approximately 20 million doses are ready 

to be formulated. Of the 12.8 million doses of live attenuated virus vaccine have been procured, 

which has already been made into bulk product. It may be possible for the amount of live 

attenuated vaccine to be much more than originally anticipated if an alternative form of 

presentation is available (e.g., dropper form). The FDA and HHS are pursuing a way to have 

more of the product available under a licensed pathway. In total, approximately 195 million 

doses have been procured to date. The Department plans to purchase more antigen moving 

into August. To date, 120.3 million doses of bulk adjuvants have been procured of the two 

different oil-in-water emulsions from GSK and Novartis. There will be further deliberations with 

regard to if and how much more adjuvant will be purchased depending upon the conditions 

moving forward.

With regard to projections of what would be available, in September about 40 million doses of 

the licensed product would be available (not at the forward deployable site, but actually lot 

released from the manufacturer to go to the distributor to then be forward deployed), followed by 

80 million doses each month. As there are better production yields moving forward, that 

number is anticipated to change from 120 to 160 million doses. If life attenuated vaccine 

becomes available in another presentation form, that number would go much higher. The 

number is not expected to decrease. If vaccine began in October, data from the clinical studies 

will inform usage as opposed to the September rollout. Then 120 million doses would be 

available in October, followed by 80 million doses each month thereafter. If adjuvants were 

Acquisition #1 Acquisition # 2 Totals

H1N1 Vaccine Product (M)

Bulk Vaccine Antigen, Inactivated (15 ug HA/dose) 107.1 74.7 181.8

Bulk Vaccine Virus, Live, Attenuated (107 pfu/dose) 6.8 6 12.8

Subtotal 113.9 80.7 194.6

Bulk Adjuvants, Oil-in-Water Emulsions (M) 45.4 74.9 120.3

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used, this would depend upon the antigen sparing effect observed with the adjuvants. If it is 2-

fold, the number of doses would be doubled. 

There is also the issue regarding whether the vaccine can be distributed as quickly as the 

vaccine is produced. This issue is currently being addressed at the Department level, with CDC 

having the lead on distribution. There are currently five manufacturers: sanofi Pasteur, 

Novartis, GSK, MedImmune, and CSL. There is a central distribution system, McKesson, that 

CDC uses for the distribution of the VFC program. Manufacturers supply this wholesale 

distributor with the product, and the wholesale distributor sends the product to the various sites. 

In this case, the five manufacturers would be sending their product to McKesson. The details of 

the contracts are being explored. From the wholesale distributor, following repackaging, the 

central allotment system that is in place would be utilized based on the orders that state and 

local sites (e.g., health departments, PODs, other public sites, private providers) submit to CDC. 

The difference in this case is that public and private providers will be involved in the distribution 

scheme. An exercise is anticipated in August to work through logistical planning issues.

Discussion

Wellington Sun, MD

Director, Division of Vaccines and Related Products Applications

Office of Vaccine Research and Review, CBER / FDA

Dr. Sun reminded everyone that Dr. Baylor presented an update during the June 2009 ACIP 

meeting, since which there had been progress. The Vaccines and Related Biological Products 

Advisory Committee (VRBPAC) convened a meeting on pandemic (H1N1) 2009 influenza 

vaccine on July 23, 2009 during several questions were addressed. There was discussion at 

length regarding the licensure pathway through a strain change supplement to the seasonal 

BLA; one versus two doses at the initiation of a vaccination program; immunization of special 

populations; use of adjuvants; post-marketing safety evaluation; and assessment of vaccine 

effectiveness. 

There are several regulatory pathways for use of pandemic (H1N1) 2009 influenza vaccine, 

including a new BLA, a supplement to the seasonal license, Emergency Use Authorization 

(EUA), or a treatment IND (although this is really not relevant to the H1N1 vaccine).

The currently licensed US influenza vaccines include the following:

Vaccine Manufacturer Type Age Group

Seasonal

Afluria® CSL Inactivated ≥ 18 years old

Fluarix® GSK Inactivated ≥ 18 years old

FluLaval® GSK Inactivated ≥ 18 years old

Fluvirin® Novartis Inactivated ≥ 4 years old

Fluzone® sanofi pasteur Inactivated ≥ 6 months old

FluMist® MedImmune LAIV 2 to 49 years old

Pandemic

H5N1 sanofi pasteur Inactivated 18 to 64 years 

old

FDA / VRBPAC Update

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The strain change supplement is the approach taken with seasonal influenza vaccine. 

Operationally that means that the manufacturers submit a dossier, which includes only a 

supplement under existing license that includes passage histories of seeds, HAI analysis, 

carton, label, and prescribing information. No new clinical data are required. A supplement 

under existing license for an LAIV requires information pertaining to passage histories of seeds, 

HAI analysis, carton, label, prescribing information, and limited clinical safety data. The 

rationale is that a strain change implies that there is sufficient information on the strain changes 

from the seeds, and that there are data from extensive previous clinical experiences with the 

seasonal vaccine. This means that the H1N1 pandemic vaccine will have the same age range 

indications, dosage, and formulations as the seasonal vaccine. 

This is applicable only to the non-adjuvanted vaccines with currently licensed manufacturing 

processes. This pathway is believed to be the most direct pathway to a vaccine as early as 

possible. The strain change supplement without new clinical data at the time of licensure relies 

on non-clinical, CMC information; clinical data in the BLA for seasonal influenza vaccine; and 

age range. The dose and dosing regimen for the pandemic (H1N1) 2009 vaccine will be the 

same as for each licensed seasonal vaccine. The vaccine will be formulated at 15 mcg / dose 

of HA for inactivated, 106.5-7.5 FFU / dose for LAIV. Again, this is applicable to non-adjuvanted 

vaccines only, when manufactured by the licensed egg-based manufacturing process. The 

rationale for these decisions is that in the event of urgent public health need, this pathway 

provides the most direct regulatory pathway to licensure. Historical data suggest that vaccines 

containing 15 μg / dose of H1N1 antigens or 106.5-7.5 FFU / dose of LAIV would be immunogenic. 

Complete data from proposed clinical trials of inactivated monovalent H1N1 vaccine and postdose 2 data of LAIV will be submitted post-licensure. Modifications can be made if indicated by 

data from post-licensure clinical trials.

This draws on a historical precedent with regard to licensure of monovalent pandemic (H1N1) 

2009 vaccine based on historical precedent (e.g., 1986 Strain A/Taiwan/1/86), influenza 

A/Taiwan/1/86 H1N1 virus represented a new antigenic variant of influenza A (H1N1) which 

caused outbreaks in Asia in March through May 1986, affecting mostly younger age groups. 

Manufacturers were requested to produce a split-virion monovalent influenza A/Taiwan/1/86 

H1N1 virus vaccine. This was licensed by CBER as a strain change to seasonal TIV with no 

new clinical data. At that time ACIP made recommendations on the use of H1N1 A/Taiwan/

1/86 monovalent vaccine based on similar data to what was presented earlier in the day on 

ferrets and human sera, which were as follows [MMWR Aug 15,1986/35(32);517-21]:

“Individuals < 35 years old in recommended groups should receive both the standard 

trivalent vaccine and the monovalent A/Taiwan/1/86(H1N1) vaccine.”

“High-risk person > 35 years old, or any person who wishes immunization, may receive 

the supplemental vaccine (optional).”

Regarding the clinical trial basic design concepts, early on the FDA realized that clinical trial 

data needed to be developed for the H1N1 vaccine, and actively engaged the manufacturers. 

There was consensus amongst the manufacturers that this should be a monovalent vaccine. 

The trials are designed to inform dose, dosing regimen, and safety. A common design was 

communicated to all of the licensed manufacturers. These will be randomized, double-blind, 

controlled, dose ranging studies assessing 2 doses (0,21d) with a post-dose 1 immunogenicity 

assessment. The age stratification to be used is 6 months to 35 months, ≥ 3 to 9 years of age, 

≥ 18 to 64 years of age, and ≥ 65 years of age. Adult and pediatric studies will be conducted 

concurrently in the interest of having data as soon as possible. For those manufacturers with 

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adjuvants, it was recommended that these be evaluated for dose sparing properties. The 

clinical trials were targeted to begin as early as possible, with the recommendation that they be 

conducted under US IND. The following clinical trial basic design table summarizes what was 

communicated to the manufacturers, bearing in mind that each manufacturer will essentially 

adapt this to their products:

Age range 7.5 μg HA

N 

15 μg HA

N 

30 μg HA

N 

3.8 /7.5/15 μg HA + adjuvant

N 

6m-3y 100 100 - 100/antigen dose

≥3-9yo 100 100 - 100/antigen dose

≥18-64yo 100 100 100 100/antigen dose

≥65yo - 100 100 100/antigen dose

These trials are designed to answer the critical questions: 1) Are current seasonal dosages 

sufficiently immunogenic?; 2) Are one or two doses required?; and 3) Are adjuvants dosesparing?

The clinical trial endpoints are largely in accordance with current pandemic influenza guidance 

with immunogenicity 21 days post each vaccination, assessing the proportion of seronegatives 

with HAI ≥ 1:40 and the proportion of seropositives with ≥ 4-fold rise in HAI (seroconversion 

rate). Others endpoints include GMT, immunogenicity at earlier time points (e.g., 14 days after 

vaccination), and microneutralization titers. Safety endpoints include solicited local and 

systemic events within 7 days of vaccination; unsolicited adverse events; serious adverse 

events (SAEs) documented monthly; new onset medical conditions documented monthly; 

baseline and post-vaccination safety labs, especially with the use of adjuvants; and 6- to 12-

month follow-up periods after the last dose of vaccine [Guidance for Industry, Clinical data 

needed to support the licensure of pandemic influenza vaccines, May 2007]. 

The Emergency Use Authorization (EUA) is a regulatory pathway for use of products before 

they are licensed, which is sanctioned by Section 564 of the Federal Food, Drug, and Cosmetic 

Act. Several conditions must be met: 1) there has to be a declaration of a national emergency 

by the HHS Secretary, which was done on April 25, 2009; and 2) the FDA Commissioner, in 

consultation with the Directors of NIH and CDC, must determine that there is a serious or lifethreatening condition or disease. There must be scientific evidence that the product may be 

effective; that the known and potential benefit outweighs risks; and that there is no adequate, 

approved, available alternative. Some EUA scenarios would be the use of a currently 

unapproved product, such as vaccines with adjuvants; or the unapproved use of approved

products, such as approved vaccines for unapproved age groups. 

During the VRBPAC meeting, manufacturers delivered presentations, from which Dr. Sun 

extracted the following estimated timelines: 











Start commercial production: June – July

Start of clinical trials: July 22 – August

Post dose 1- Ab data: Available mid September

Post dose 2- Ab data: Available late September

Commercial lots: Available 4-6 weeks after the US government fill / finish decision

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In summary, 2009 H1N1 is a declared pandemic and national emergency. The severity of the

on-going disease in the US thus far is comparable to seasonal influenza; however, rates are 

higher among pediatric / adolescent populations, with the course and severity of pandemic in 

the fall uncertain. Licensure of a supplemental monovalent pandemic (H1N1) 2009 vaccine as 

a strain change is consistent with experience with seasonal vaccines and past regulatory 

actions. A strain change BLA supplement formulated at 15 μg/dose of HA or 107 FFU/dose will 

allow for the earliest availability of licensed vaccines. The clinical trial design is for developing 

early immunogenicity data to inform any dose and schedule modifications. Adjuvanted vaccines 

are options to be evaluated. The VRBPAC struggled with what the age group breakpoint should 

be for 2 doses of H1N1 vaccine. They recommended that a plan be developed for immunization 

of 0 through 6 months olds. Regulatory pathways are available for usage of all vaccine options, 

if required. Post-marketing surveillance will be conducted of safety and assessment of vaccine 

efficacy / effectiveness.

Discussion

Richard L. Gorman, MD

Division of Microbiology and Infectious Diseases

National Institute of Allergy and Infectious Diseases 

National Institutes of Health

Dr. Gorman indicated that in April and May, areas identified for possible NIAID trial support

included licensure or EUA; studies in special populations (e.g., young infants, pregnant women, 

immunocompromised individuals); help in informing policy and identifying gap areas, which has 

become the primary focus (e.g., acceleration of the availability of 1 versus 2 dose data in 

different populations; administration with seasonal influenza vaccine; different dosing intervals; 

use of different adjuvanted products; possible mixing stockpiled vaccines and adjuvant). 

For the initial H1N1 vaccine trials, NIAID has elected to utilize five separate protocols. These 

data are not intended to support licensure, but are being conducted under and IND that is 

currently in effect. The plan is for these trials to be complementary to the company-sponsored 

clinical trials. The five NIAID align with the following plan for assessing the data:











1 versus 2 doses of unadjuvanted CSL vaccine in healthy adults

1 versus 2 doses of unadjuvanted sanofi pasteur vaccine in healthy adults

1 versus 2 doses of unadjuvanted sanofi pasteur vaccine in healthy children

co- versus sequential-administration of TIV and H1N1 vaccine in adults

co- versus sequential-administration of TIV and H1N1 vaccine in children

The following depicts a national treasure, NIH’s network of Vaccine and Treatment Evaluation 

Units (VTEUs) that have been in place since 1962: 

Overview of H1N1 Clinical Trials by NIAID / NIH

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Since 1995, the VTEUs have conducted over 160 Phase I, II, and III clinical trials. They have 

been instrumental in the development and licensure of seasonal vaccines, pre-pandemic 

vaccines, and the study of antivirals. The level of activity for these 8 centers over the previous 

12 weeks has been mirrored by many other government agencies and individuals. 

Regarding the details of the three trials NIAID will soon institute, the 1 versus 2 doses of H1N1 

vaccine in healthy populations includes 3 protocols. The goal of these trials is the rapid 

availability of immunogenicity data. There will be 2 doses,15μg or 30μg, given 21 days apart. 

For the sanofi pasteur and CSL vaccine in the adult trials, there will be 400 subjects enrolled in 

each protocol, of whom 100 will be between 18 to 64 years of age and 100 will be 65 years of 

age and older per dose group (n=800 total adult or elderly subjects). The sanofi pasteur 

pediatric trial will include 600 children who are divided into groups of 6 months to < 36 months, 

3 years to 9 years, and 10 years to 17 years, with 100 per dose group in each age stratum. The 

endpoints for all of these studies will be safety and immunogenicity. SAEs and AEs will be 

collected until 6 months post-dose 2. The investigators will assess 4-fold rises in HAI and the

proportion with titers ≥ 1:40 at day 21 and 42 for all subjects. There will be early

immunogenicity data points post each dose, with additional blood draws at 8 to 10 days

following these doses. This will be a subset of vaccinated subjects in which all of the adult 

subjects will have those data drawn and a subset of the pediatric subjects will be taken. The 

reason for a subset of the pediatric subjects is to minimize the number of blood draws for those 

populations. The lead principal investigators for these studies are Pat Winokur at the University

of Iowa and Karen Kotloff at the University of Maryland.

For the co- and sequential-administration studies, there will be 2 protocols assessing the safety

and immunogenicity of co- and sequential-administration of inactivated H1N1 vaccine and TIV. 

The investigators will assess H1N1 vaccine before, after, and at the same time as TIV. There 

will be 2 doses of 15 μg sanofi pasteur H1N1 vaccine administered 21 days apart, and 1 dose of

TIV. There will be 400 adults ages 18 to 64 years of age, and 400 adults ages 65 years and 

older. There will be 600 primed children who are either above the age of 9 or who have 

received the ACIP definition of being primed by receiving 2 doses of seasonal vaccine in the 

previous year. There will be 50 children per group in the following groups: 6 months to < 36

months, 3 years to 9 years, and 10 years to 18 years. The protocol for unprimed children is in 

the finalizing stages. The endpoints for these studies will be safety and immunogenicity. SAEs

Credit: AS Fauci

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and AEs will be collected 6 months post dose 2, and there will be 4-fold rises in proportion with 

titer ≥ 1:40 by HAI. The lead principal investigator for these studies will be Sharon Frey from St. 

Louis. 

The last major clinical research activity that will be implemented in this first round of studies with 

be a mixing and matching of vaccine and adjuvant. The safety and immunogenicity will be 

assessed of mixing stockpiled vaccine antigens and adjuvants from different manufacturers. 

The vaccines presently under consideration are CSL’s and sanofi pasteur’s H1N1 vaccine. The 

adjuvant will be GSK’s AS03. These will be mixed at the bedside prior to administration. The 

protocol is divided into five groups: 3.75μg with AS03; and 7.5μg and 15μg with and without 

AS03. There will be 2 doses given 21 days apart. At this point, the IND for sanofi pasteur / 

AS03 was submitted July 23, 2009 and has been finalized, with the CSL / AS03 IND to follow. 

The leas principal investigators will be Lisa Jackson of Seattle Group Health; and Kathryn 

Edwards at Vanderbilt. 

Other studies that are in the late stages of development, but have not yet been submitted to IND 

packages, include: 1) additional H1N1 vaccine studies in pregnant women; and 2) a study that 

does not involve H1N1 but hopefully will inform the use of H1N1 vaccines, which is a safety and 

immunogenicity study of TIV in pregnant women. This trial was initiated on June 11, 2009 in 

VTEUs and subcontract sites in 2nd and 3rd trimester women. These women will be given a 

single dose of 2008-2009 TIV (Fluzone®, Fluarix®). Responses will be assessed 28 days postvaccination. As of July 27, 2009, 52 women have been enrolled. The principal investigator is 

Shitel Patel of Baylor. In the Fall 2009, a follow-on study is planned using the 2009-2010 TIVs 

as they become licensed. There are 4 licensed US manufacturers of inactivated vaccine. In 

late April to early May, following the Secretary’s announcement, the Division of Microbiology 

and Infectious Diseases (DMID) reviewed the pandemic influenza vaccination plan to determine 

data gaps. As a result, they realized that there was scant data for the use of TIV in pregnant 

women.

Discussion 

Dr. Neuzil noted that the work group had also struggled with one versus two doses. She was 

pleased to see Dr. Sun’s timelines suggesting that there might be some data post-dose one in 

September, which would be very informative as vaccination campaigns rolled out. She inquired 

as to whether there were also timelines on the NIH trials to better understand whether this 

information would be available to inform decisions.

Dr. Sun responded that at this point, the only thing standing between NIH and the initiation of 

these trials is product availability. The manufacturers and BARDA are working diligently to get 

these to NIH as rapidly as possible. The project timelines at this point are to begin the first or 

second week of August, with timelines that look very similar to the manufacturers’ timelines to 

make data available to ACIP. 

Dr. Meissner requested that Dr. Sun comment on why the trials planned to measure HAI 

antibody rather than microneutralization titers, given that neutralization titers better reflect 

functional antibody. 

Dr. Sun replied that all of their licensed products have been on the basis of HAI titers, and they 

have a certain amount of experience of these. The FDA is not really changing anything from the 

way licensing is done with seasonal influenza in terms of endpoints. 

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Given that there is limited experience with the adjuvants MF59 and AS03, Dr. Meissner inquired 

as to whether there was a need for a placebo arm in any of these trials.

Dr. Gorman responded that the trials as presently designed do not have placebo arms. They 

argued the use of these, but felt that historical data with influenza vaccines at different dosages 

available to NIH made those not as useful as they might have been.

Dr. Sun added that some of the trials conducted by the manufacturers do have placebo groups, 

and for others the control will be the unadjuvanted vaccine.

Dr. Marcy inquired as to whether thimerosal would be included in the multi-dose vial, noting that 

public acceptance would be an issue, especially among the very young who are at high risk.

Dr. Robinson replied that currently multi-dose vials will contain thimerosal based on guidance 

that was given to the manufacturers by FDA. 

Dr. Marcy asked whether there were good data that 30 mcg would be sufficiently immunogenic 

in the elderly as opposed to 60 mcg where there seems to be fairly good data that 

seroconversion and rise in GMTs is significantly better than 15.

Dr. Sun responded that this was another active DMID discussion. There was concern about the 

immunogenicity at different dose levels. They were hoping to do mild dose ranging with 15 and 

30. If there was no response to 15 and there was a better response to 30, they might be able to 

predict that. That was balanced against the understanding of the potential shortage of antigen 

supply for the season. If they tested 60 and it turned out to be the only effective dose, it would 

create another set of scenarios that they did not exactly know how to deal with. 

Despite the phenomenal work done to date, Dr. Ehresmann wondered whether it was realistic to 

continue to promote the idea that vaccination could begin in October. Her concern was that 

many of the messages that had gone out to the states in planning and the public through the 

media suggested that a pandemic vaccine would be available in October. Given the information 

provided during this meeting, the October data may not be realistic. With that in mind, she 

inquired as to whether there were plans in place to get alternative messages out to the public. 

Dr. Robinson responded that this was debated heavily at the NDSB meeting in June and earlier 

in July. September and October were presented as possible dates, based on which they saw 

early what the numbers would look like. They were looking for guidance from ACIP and others 

to have one message going forward. They were hoping this discussion would occur during this 

meeting.

Dr. Schuchat acknowledged that these were extremely important issues, because any start date 

would be challenging for the public health community, providers, and the public. The most 

important message she had was that CDC is committed to frequent, timely information sharing 

and communication. There are communications plans in place, which were to be presented 

later in this meeting. Clearly, it is confusing for the public to have a seasonal influenza 

vaccination effort as well as a likely H1N1 vaccination effort. The states are working hard to be 

ready by October. They must understand the tradeoffs between when they hope to start 

pandemic vaccination, trying to start earlier if conditions warrant doing so, and trying to address 

the uncertainties about production and information. While everything was not clear at this point, 

CDC wanted everyone to prepare as if the vaccine would be ready mid-October, with some 

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contingency planning for a smaller scale earlier start if conditions and decision making 

warranted this. 

Dr. Sawyer pointed out that a pragmatic issue that needed to be addressed was taking the 

correct vaccine out of the refrigerator. He wondered whether BARDA and the FDA had any 

influence on the manufacturers in terms of packaging the vaccines such that people could easily 

differentiate between seasonal and pandemic vaccine.

Dr. Sun responded that, as shown in his presentation, the submission of the supplement 

includes carton label and prescribing information. They are in the process of negotiating with all 

manufacturers to address such issues.

Dr. Baker pointed out that seasonal influenza vaccine was already available, so vaccination 

administration for seasonal influenza should begin as soon as possible. She inquired of Dr. 

Gorman what the ethical consideration was behind administering last year’s seasonal influenza 

vaccine to pregnant women, given that there was no benefit to those women or their children 

from last year’s vaccine. It is known that while uptake in pregnant women has been low in 

previous seasons, cumulatively millions of pregnant women have been immunized. She 

wondered whether the concern was safety. 

Dr. Sun responded that the considerations were ethical and practical. The 2008-2009 seasonal 

influenza vaccine was the only vaccine available to be tested. The ethics were that it is a 

recommendation by a government body that seasonal influenza be given to pregnant women. 

There are limited data for that recommendation. Thus, they were attempting to increase the 

amount of knowledge about safety and immunogenicity in that particular population. This 

protocol has been through seven IRBs with no comments on the ethics of the study.

Dr. Baker asked whether blood was being drawn from the babies. The minor risk would be from 

blood draw, which is uncomfortable and inconvenient. She also wondered whether sufficient 

women would be included in the protocol such that safety could be determined.

Dr. Sun responded that he did not know whether blood was to be drawn from the babies. With 

regard to the issue of safety, the targeted enrollment is 200 women.

Dr. Lett did not believe they would be ready to make a decision to begin vaccination in October 

if data were not going to be available until the end of September. She also wondered whether 

there were still plans to have pre-filled syringes and thimerosal-free H1N1 vaccine available in 

the pediatric formulation.

Dr. Robinson responded that for both seasonal and H1N1 vaccine there would be pre-filled 

single-dose syringes and multi-dose vials.

Dr. Lett inquired about the interval of three weeks, and the exploration of potentially shorter 

intervals. She wondered whether they would know this by the end of September in terms of the 

2-dose schedule.

Dr. Sun responded that this information would not be available by the end of September.

Given that it was still possible that only half of the doses projected (e.g., 60 million versus 120 

million doses) might be available for October if the vaccine was not sufficiently immunogenic at 

15 mcg, Dr. Lett requested further comments. 

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Dr. Robinson replied that if the clinical studies show that 15 mcg is not immunogenic and 30 

mcg is, that would cut the supply of the antigen-alone formulation in half basically. If this 

occurs, all options will have to be considered, including the adjuvant option if there are data to 

support the adjuvant having an antigen-sparing effect and being immunogenic.

Dr. Neuzil indicated that during the afternoon, scenarios would be put forth based on the supply 

projections for October, as well as other possible scenarios should either the supply be less or 

the antigen be doubled, in terms of how that would change the priority groups.

Dr. Judson thought it was critical that ACIP and others be given a better idea of when the final 

results would be available for use in making recommendations. Dr. Sun showed 9 groups of 

100, which was good for its statistical simplicity. However, in terms of the widely differing 

outcomes that may result in each of those groups, and having group size or sample size be 

driven somewhat by the statistical power the investigators were attempting to achieve to 

evaluate those differences, the categories (e.g., lower dose antigen, over 65 group, serious 

adverse events) would not likely fit neatly into the sample groups of 100. 

Dr. Sun responded that Dr. Judson’s comments echoed those made by their colleagues at the 

FDA. In the design of these studies, the investigators chose to be splitters rather than lumpers, 

knowing that lumping is somewhat easier statistically than splitting. The goal that NIAID was 

tasked with was to help inform policy makers and not be driven by licensure. The data will be 

collected in groups of 100, but assessments will be made of safety and immunogenicity data in 

close to real-time such that these data can be disseminated as deemed appropriate by the 

leadership at NIAID. They will not be waiting until there are 100 in each group either for safety 

signals or for immunogenicity signals before those data are disseminated. 

It was noted that on-going studies will be conducted by NIH and the manufacturers on the 

immunogenicity tract with licensure type studies in parallel, so there will be data simultaneously 

or somewhat later that would have the necessary statistical power. 

Dr. Kevin Ault indicated that he was an investigator at Emory with the pregnancy and influenza 

trials. Although ACIP was informed of one of the trials, there will be a series of subsequent 

trials that involve analysis of transfer of antibodies to the baby. 

David Johnson, from the industry perspective, reiterated a comment made earlier regarding the 

release of vaccine and when vaccination programs may begin, pointing out that it was important 

to remember that from industry the license, requirements for packaging and labeling, CBER 

requirements for lot release, et cetera must be in place. Once in place, it would be 

approximately a 4- to 6-week period before vaccine would actually be available for shipping. 

Dr. Beck noted that Dr. Robinson indicated that there was an anticipated second wave of H1N1, 

which seemed to differ from the suggestion that there was a decline in the number of new 

cases. 

Dr. Robinson replied that the slide to which Dr. Beck referred was created in May as a 

prototypic pandemic slide, which did not reflect what was currently occurring. 

Dr. Keyseling (SHEA) expressed concern about the pandemic schedule of a 21-day interval 

between doses versus a seasonal schedule of a 28-day interval. In the pediatric age group, 

there could be a problem unless there is a more permissive recommendation for seasonal 

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vaccination, assuming that eventually both vaccines would be administered concurrently. He 

thought it would be problematic to have a 3-dose interval for one product and a 4-dose interval 

for the other.

Dr. Sun responded that when the design was developed for the H1N1 clinical trial, they had in 

mind the compressed timeframe. Hence, they communicated to the manufacturers that these 

trials should be conducted with 21-day interval. The current label for seasonal influenza vaccine 

the interval is 28 days. He thought they would have to be fairly flexible in information on that 

point. 

Dr. Tan (AMA) wondered whether there was any visibility on when the decision to fill / finish the 

bulk would be made and what was guiding that decision. Obviously, that represents the 4- to 6-

week gap that would result in supply earlier or later.

Dr. Robinson responded that those discussions were currently underway within the department 

and with the manufacturers to acquire harder numbers for when the start dates would be for fill / 

finish. One problem regards when the manufacturers will be out of their fill / finish 

manufacturing sites to have a change over and be able to do the formulation and fill / finish for 

H1N1. Certainly, the factors involved regard whether the FDA will accept the recommendation 

of VRBPAC for a standard antigen dosage of 15 mcg or 107

. There are other factors moving 

forward that will depend on ACIP’s deliberations as well. 

Dr. Kinsinger (DVA) wondered whether the 4 manufacturers’ inactivated formulations would be 

interchangeable in the event that two doses were recommended.

Dr. Sun replied that because they were using the route of a strain change supplement, it was 

anticipated that the dosage guidance would most likely reflect what is currently recommended 

for the seasonal vaccine. However, this issue remained in internal discussion at CBER. 

Whether the different manufacturers’ products would be interchangeable was somewhat 

analogous to what was occurring in reality in that, from one year to the next, one may not 

receive the same manufacturer’s vaccine. He thought as long as the dosages were the same, 

they would want to consider these to be interchangeable in terms of first or second dose. 

Dr. Hackey (DoD) reminded everyone that during the last ACIP meeting, they were informed 

that it would be difficult for the existing public health infrastructure to conduct a mass 

immunization program and deal with their other duties as assigned. With that in mind, even if 

there was adequate vaccine, if an adjuvant would reduce the number the doses from 2 to 1, he 

wondered whether consideration had been given to pursuing an adjuvented formulation to 

reduce the burden on the public health infrastructure. Also during the last ACIP meeting, they 

were informed that the FDA would be working with international partners, particularly those in 

the EU in terms of sharing clinical trial data. He wondered whether the EU data would be 

available before the US data, and whether that could potentially be used for an earlier decision. 

Dr. Robinson answered that what Dr. Hackey pointed out was only one of many factors for 

adjuvant usage. This consideration will be part of the calculus that goes forward. 

Dr. Schuchat added that while during the last ACIP meeting there were discussions regarding 

challenges with the public health infrastructure, since that time emergency funding was 

appropriated for states, with second rounds of emergency funding forthcoming. There is an 

intensive planning effort to assure as great a success as possible. She noted that later in the 

day, there would be an update on the implementation planning process. The issue with 

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adjuvants was less a question of one dose or two versus no immune response being achieved 

with the regular formulations and whether large responses could be achieved with adjuvants. 

Regarding the sharing of information from the international trials, it was her understanding that 

they would have access to these data. 

Dr. Sun pointed out that there was currently no licensed adjuvant in influenza vaccines in the 

US. Hence, use of an adjuvanted vaccine under an alternate regulatory pathway of EUA is 

really a very complex decisions in terms of assessing risk / benefits. In terms of sharing 

information, WHO has requested that all who are developing vaccines and running clinical trials 

share the data. The mechanism for the FDA still has to be worked out, because these trials are 

conducted by manufacturers and the information is considered proprietary. 

Regarding the post-marketing surveillance clause mentioned by Dr. Sun, Robert Malone (Focus 

Diagnostics) inquired as to whether they were anticipating post-marketing surveillance with HAI 

endpoints and lab-confirmed ILI endpoints just in the case of EUA or for the licensed with 

supplement vaccines. In addition, he wondered if they would be assessing the full range of 

special populations in cohorts or a subset. 

Dr. Sun responded that the post-licensure safety and effectiveness studies are the subject of 

large groups who are currently collaborating in discussion with the CDC, FDA, and other 

regulatory agencies. That is a work in progress. The question regarding diagnostics is very 

important with respect to how H1N1 2009 pandemic will be distinguished from seasonal H1N1. 

That is part of the challenge, and the investigators will be assessing the effectiveness 

component of the post-licensure monitoring. 

Dr. Strikas (NVPO) pointed out that there are published data showing that 7.5 mcg of an 

activated seasonal vaccine are immunogenic in adults less than 60 years of age. If the trials 

that industry is conducting find that 7.5 mcg of unadjuvanted H1N1 vaccine is immunogenic 

similar to 15 mcg, he wondered whether that would constitute a strain change that FDA could 

undertake to license 7.5 mcg for certain populations of adults. 

Dr. Sun responded that the strain change is really to license based on the current dosage and 

schedule. If there are clinical data subsequent to that, further modification and 

recommendations would be necessary.

Disc

Terry Adirim, MD, MPH, Senior Advisor

Office of Health Affairs 

Department of Homeland Security

Dr. Adirim indicated that the Critical Infrastructure Key Resources Priority Groups (CIKR) is not 

only a representative of the Department of Homeland Security (DHS), but also is a member of 

the federal interagency work group that drafted the Guidance on Allocating and Targeting 

Pandemic Vaccine that was released in July 2008 [http://www.pandemicflu.gov/vaccine/

allocationguidance.pdf]. For this presentation, Dr. Adirim focused specifically on CIKRs.

ussi 2009 H on 1N1 Vaccine and Critical Infrastructure Key Resources Priority Groups

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The allocating and targeting guidance had several overarching goals, one of which was the 

protection of society by protecting critical infrastructure groups. A primary objective was to 

protect workers who are at especially high occupational risk and / or who are performing a 

pandemic function. These groups are at the top of the prioritization strategy. Dr. Adirim 

stressed that the primary objective of vaccination in CIKR sectors is not to reduce absenteeism 

per se. Rather, vaccination is targeted to protect workers with critical skills, experiences, or 

licensure status whose absence would create bottlenecks or collapse of critical functions in a 

severe pandemic. It is noted in the guidance that other pandemic response strategies (e.g., 

engineering controls in workplaces; changing work practices to reduce close contact with 

others; use of personal protective equipment such as facemasks, good hand washing, et

cetera), and worker education are likely to have greater impact in decreasing absenteeism. 

A couple of studies were conducted in support of the federal interagency work that may be 

useful to the ACIP. In 2007, DHS and HHS tasked the National Infrastructure Advisory Council 

(NIAC) with providing recommendations on prioritization and distribution of pandemic 

countermeasures to essential workers in the nation’s CIKR sectors. The final report and

recommendations were released in January 2007, and was very informative to that work that 

was done. The key issue areas that they addressed included the following: 













Identifying and defining “critical services” that must be maintained during a pandemic

Defining criteria and principles for critical services prioritization

Defining critical services priorities

Identifying critical employee group(s) within each priority critical service who are critical to 

the functioning of that sector

Building a structure for communication and dissemination of resources

Identifying principles for effective implementation by DHS and HHS

This work was done with the owners and operators of the various sectors; that is, this 

information was generated from those who work within those sectors. 

Dr. Adirim indicated that she was going to focus on two of the sectors because she believed that 

these would come into play in the ACIP’s recommendations. The first regarded the health care 

sector. According to the Bureau of Labor Statistics, the healthcare sector has 13.5 million

employees. Of the healthcare facilities, 76% are offices of physicians, dentists, and other health 

practitioners. Hospitals and medical centers constitute 2% of all establishments, but employ 

40% of workers. Critical healthcare services identified as important in a pandemic include 

healthcare delivery, medical providers, home healthcare, residential care, retail and outpatient 

care sites, support supply chain (e.g., community emergency management, et cetera), and 

death care services. It was noted that the various groups within the healthcare sector had 

different lists based on whether they had a function, which put them around sick people. This 

work group determined that the healthcare sector includes 6,999,725 critical workers or 51.8% 

of the sector. 

The second group is the emergency services sector, which includes traditional first responders, 

or those people who are critical as a first line defense against terrorist attacks and natural 

disasters. This group is typically thought of as being composed of law enforcement, firefighters, 

and emergency medical services (e.g., EMTs and paramedics) as critical first line defenders 

against terrorist attacks or natural disasters. The work group determined that this sector’s 

workforce comprises approximately 90% to 95% of responders and also includes fire, EMS, law 

enforcement, emergency management, local jail / corrections, and communications officers

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(e.g., people who staff 911 call centers). With this particular sector, there are different risk 

factors based on their exposure to people who are sick. It was determined that in this sector, 

there are approximately 2,257,419 critical employees. 

Another study that supported the interagency work group was completed by the National 

Infrastructure and Analysis Center (NISAC) Office of Infrastructure Protection (OIP), with OHA. 

This was a mathematical modeling study, which examined the potential impact of a severe 

pandemic on the US population, CIKRs, and the economy. Their assumptions for the 

mathematical model were similar to other mathematical models that were done, which included 

a 2% case fatality rate, 30% attack rate, with an assumed 40% absentee rate at the peak of the 

waves. Consistent with other studies, these study results showed that early interventions 

strategies would be beneficial (e.g., school dismissal, vaccines, antivirals) in terms of delaying

and mitigating a pandemic; that healthcare system would be highly stressed and alternative 

care strategies would be needed; that even in a severe pandemic, most CIKR systems (other 

than public health and healthcare) would continue to function if mitigation strategies were

utilized; and that health care costs could be $80 billion, and gross domestic product losses 

could be $100 billion in the first year. This modeling is currently being updated based on H1N1 

epidemiology. 

Dr. Adirim shared the following prioritization tiers to impress upon everyone that in the face of a 

less severe pandemic scenario, ACIP’s recommendations were consistent with the interagency 

work group’s intent:

Category Target group Estimated

number* Severe Moderate Less

severe

Homeland and

national

security

Deployed and mission critical pers. 700,000

Essential support & sustainment pers.

Intelligence services

Border protection personnel

National Guard personnel

Other domestic national security

650,000

150,000

100,000

500,000

50,000

Other active duty & essential suppt. 1,500,000

Healthcare and

community

support

services

Public health personnel

Inpatient health care providers

Outpatient and home health providers

Health care providers in LTCFs

300,000

3,200,000

2,500,000

1,600,000

Community suppt. & emergency mgt.

Pharmacists

Mortuary services personnel

600,000

150,000

50,000

Other important health care personnel 300,000

Critical

infrastructure Emergency services sector pers. (EMS, law enforce .& fire services)

Mfrs of pandemic vaccine & antivirals

2,000,000

50,000

Communications/IT, Electricity,

Nuclear, Oil & Gas, and Water

sector personnel

Financial clearing & settlement pers.

Critical operational & regulatory

government personnel

1,500,000

400,000

Banking & Finance, Chemical, Food

& Agriculture, Pharmaceutical,

Postal & Shipping, and

Transportation sector personnel

Other critical government personnel

3,000,000

400,000

General

population Pregnant womenInfants & toddlers 6–35 mo old 3,100,00010,300,000

Household contacts of infants < 6 mo

Children 3–18 yrs with high risk cond. 4,300,0006,500,000

Children 3–18 yrs without high risk 58,500,000

Persons 19–64 with high risk cond. 36,000,000

Persons >65 yrs old 38,000,000

Healthy adults 19–64 yrs old 123,600,000

Tier 1

Tier 2

Tier 3

Tier 4

Tier 5

Not targeted

(Vaccinated in

General pop.)

Vaccine 

Prioritization

Tiers and 

Target Groups

The categories include Severe, Moderate, and Less Severe. Moving toward a less severe 

scenario, critical infrastructures tend to fall out. Health care is all across the top tier because the 

guidance talked about frontline health care providers or practitioners who have direct patient 

care responsibilities. The critical infrastructure group appears across all severities, including 

less severe, in the emergency services sector. 

In summary, prioritization of CIKR occupational groups are envisioned as necessary in a severe 

pandemic where sickness / absenteeism are at a level (both total and duration) that the 

fundamental operations / continuation of key activities are threatened. H1N1 is not projected to 

have that level of impact. Health care workers and emergency services workers are placed in 

Tier I because of the necessity of needing the maximum number workers available to meet the 

increased demand for services. They are at greater risk than the general population for 

exposure / infection by the nature of their job. Social distancing is not generally a practical, 

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consistently implementable strategy for them. They are exposed to sick people and infections in 

a way that is neither discretionary nor avoidable. With explanation that prioritization is based 

upon the epidemiology, most CIKR organizations / businesses will understand and accept 

prioritization decisions. DHS will work to explain and get the message out to CIKRs. 

Discussion

Pascale Wortley, MD, MPH

Immunization Services Division

Centers for Disease Control and Prevention

Dr. Wortley reported on implementation planning, indicating that they were working toward a 

mid-October launch date. The program will involve allocating vaccine across the country to 

states on a pro rata basis. Distribution will be organized and coordinated by the federal 

government. At the state level, public health will direct where vaccine is distributed. In most 

states, that will include a combination of public health and many types of private sector sites, 

similar to where seasonal influenza vaccine goes.

Funds have been made available for accelerated planning and early implementation in the 

amount of $195 million, with $262 million provision that is in flux. Initial awards are scheduled to 

be distributed July 31, 2009. That will account for up to 50% of the total amount that states can 

request at that time. Detailed budget for both amounts combined will be due August 31, 2009 

and the remainder of funds will be awarded by the end of September. Future funds are 

anticipated for implementation. 

In terms of distribution of vaccine, CDC has been exploring two options: 1) centralized 

distribution similar to what is done for the VFC program, although it would be an augmented 

program; and 2) direct shipping from manufacturers to state-designated ship-to sites. In both 

options vaccine will go to state-designated locations, but the number of locations and frequency 

of shipments would vary according to the option. The centralized distribution option would offer 

more flexibility in terms of number of places vaccine could be directly shipped. Plans are also 

underway for shipping of ancillary supplies. Syringes, needles, sharps containers, and alcohol 

swabs are going to be provided. A great deal of work is going into meshing the shipment of 

those supplies with the vaccine. 

With respect to financing, Dr. Wortley reminded everyone when last they met, CDC had formed 

a steering committee with public health partners. That group has a financing subcommittee that 

has been extremely busy. Some of the general challenges anticipated include variability of 

insurance coverage; under-insurance; and variability of reimbursement rates for administration, 

particularly with respect to Medicaid. H1N1-specific challenges include the anticipated broader 

use of non-traditional vaccination settings, as well as unplanned strains on already stressed 

state budgets. One of the first tasks of the subcommittee was to develop recommendations to 

put before NVAC, which were recently voted on. The following recommendations were 

approved:







First dollar coverage for H1N1 vaccine

Reimbursement rate of providers by public / private insurance plans to equal the Medicare 

reimbursement on a voluntary basis for private insurance

Federalization of Medicaid payment at the Medicare rate, given the large fluctuation among 

states

Implementation Planning

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





43 

Development of formalized relationships allowing community vaccinators to bill insurance 

plans

A policy to allow community vaccinators to bill Medicaid via roster billing

Funding to states for implementation of mass vaccination

Another area on which the subcommittee is actively working is development of a policy for 

vaccination administration fee for uninsured patients. The issue regards whether to do 

something similar to or different from the VFC program, in that VFC program providers are 

asked to vaccinate uninsured persons who are unable to pay the administration fee.

The following statement was provided by America’s Health Insurance Plans (AHIP) on behalf of 

its members when the subcommittee asked them about insurance reimbursement for 

administration:

"Every year health plans contribute to the seasonal flu vaccination campaign in several 

ways: 

a) Health plans communicate directly with plan sponsors and members on the current ACIP 

recommendations and encourage immunization; they also provide information on where 

to get vaccinations, and who to contact with any questions. 

b) Just as health plans have provided extensive coverage for the administration of 

seasonal flu vaccines in the past, public health planners can make the assumption that 

health plans will provide reimbursement for the administration of a novel (A) H1N1 

vaccine to their members by private sector providers in both traditional settings e.g., 

doctor’s office, ambulatory clinics, health care facilities, and in non-traditional settings, 

where contracts with insurers have been established." 

Given the emphasis on engaging the private sector, there is a lot of work underway related 

identifying and engaging providers such as provider organizations at the national level, the retail 

sector, community immunizers, pharmacists, and volunteer organizations). These connections 

are beginning in states. One activity in which a number of states have engaged is that, as they 

are reaching out to their provider community, they are in the process of creating pre-registration 

mechanisms so that providers who are interested in vaccinating can let their interest be known. 

This effort was led by one state that developed this idea, and a number of other states have 

been very enthusiastic about the idea. 

Other developments include simplification of doses administered reporting requirements, in that 

there is no longer a requirement to report priority group, just by age group. For logistical 

reasons that is an important change in terms of data collection. The inclusion of a vaccination 

card with vaccine shipments is also being explored. This would be a wallet side tri-fold or bi-fold 

card that would contain important information that vacinees would receive. That would be 

shipped out with vaccine. A logistics working group is in the process of being created that will 

include people from CDC and BARDA, and which will carefully assess the very complicated 

pathway in place for getting vaccine to the end user. Another document being created is an 

H1N1 Vaccine Provider Agreement. This is analogous to an agreement that providers sign with 

the VFC program, with the important difference that it is much simpler. The intent is to not 

create barriers, but providers are receiving free vaccines and some type of agreement must be 

signed. There are some policies issues tied to that document, including the issue of uninsured 

patients. As soon as that document is cleared, the subcommittee will share it with ACIP. They 

have let the states know that this is being developed so that efforts are not duplicated.

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Other materials are in planning. A number of people are preparing difference guidance

documents on various topics, as well as materials for state and local planners. Topics that 

guidance documents and materials will address include vaccine ordering and allocation; target / 

priority groups; school-located vaccination, including addressing issues related to FERPA; 

provider office guidance; safety monitoring; large scale clinic planning; tribal populations; and Q 

& A on multiple topics. 

Key remaining uncertainties include timing of vaccine availability, amounts of vaccine that will 

be available, distribution method, and priority groups / target populations. The results of this 

ACIP meeting were anticipated to resolve key unknown issues and accelerate planning. The 

subcommittee will continue to move forward in partnership with states and others to guide and 

facilitate their planning. 

Discussion

Kristine Sheedy, PhD

Associate Director for Communication Science

National Center for Immunization and Respiratory Diseases

Centers for Disease Control and Prevention

Dr. Sheedy reported that following the tremendous information demands placed on the CDC 

Communication Team in the spring, they began to think about how to plan and prepare moving 

forward, particularly in the face of so much uncertainty and so many unknowns that have made 

the prospect of planning fairly daunting. One certainty is seasonal influenza, with which CDC 

has a lot of experience in communicating. Thus, the team began with the use of promotion of 

seasonal flu vaccine as a starting point, which can be expanded and adapted. Using the limited 

time available, the team decided to plan for a limited number of key scenarios and is prepared 

to adapt the approach, messages, and materials. In addition, work is underway to improve

internal processes and surge capacity, identify and train spokespeople, continue transparent 

and frequent communication on the situation and the steps that are being taken, and conduct 

audience research and message testing.

In terms of the scenario-based planning approach, clearly there are too many possible 

scenarios to plan for all of them. As the team began to think through this and listed all of the 

potential variables that could impact the communication approach and things that they would 

need to respond to, the result was a very a large and complicated matrix. Therefore, they 

decided that scenarios should be developed based on key variables that will have the most 

impact on communication approaches, which are vaccine availability and public demand. 

Consideration was given to those two key issues and challenges within each to develop just a 

few scenarios. Once the scenarios were developed, careful consideration was given to the 

general approach that would be needed, key challenges and issues that might arise, and the 

development and testing of overarching messages and messages related to challenging issues 

within various scenarios (e.g., vaccine prioritization, safety concerns), channels, and audiences. 

There is a separate but highly coordinated effort underway to engage in in-depth thinking about 

the types of vaccine safety messages that will be needed and the various situations that may be 

faced on that front. Using demand and availability, the four major scenarios are as follows:

Communications Strategy

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Planning Scenarios

Low Novel 

H1N1 

Vaccine 

Availability

Low Demand

High Novel 

H1N1

Vaccine

Availability

High Demand

Scenario 1

Scenario 3 Scenario 4

Scenario 2

Adapted from S. Waisbord (July 2009) “Communication challenges for H1N1 vaccine: Scenarios for 

planning”

A number of planning assumptions were made as the team began to think about these four 

major scenarios. It was assumed that seasonal influenza vaccine would likely be available prior 

to novel H1N1 influenza vaccine, that there would be ample seasonal influenza vaccine and 

limited but increasing supplies of novel H1N1 vaccine, and that eventually there would be ample 

supplies of seasonal and novel H1N1 vaccines available. It was assumed that they would begin 

within Scenario 1 or 2 and would hopefully move to Scenario 3 or 4, with the understanding that 

there may be movement back and forth. As difficult as it is to predict what is going to occur on 

the supply side, it is even more challenging and complicated to try to predict what may occur on 

the public demand side. The major assumptions with regard to public demand are that it may 

vary with populations, and that it may change suddenly and significantly. Included in the 

considerations about demand are those factors that are known, through experience and 

research, to impact demand for influenza vaccine, such as:





















Perceptions / indications regarding when influenza viruses are expected to begin circulating

Actual circulation of influenza viruses

Severity and visibility of initial cases

The population groups most affected and / or most severely affected 

Beliefs regarding personal susceptibility to severe disease: Are people like me becoming 

very ill?

Ease of access to vaccination

Provider recommendation

Past experience with vaccine and influenza

Vaccine risk perception / assessment

Vaccine benefit perception / assessments: Do the vaccines work? Are antivirals a safer or 

more effective option?

Dr. Sheedy briefly described each of the four scenarios and discussed the broad approach that 

would be needed for each. She stressed that throughout the season, the basic message would 

be encouragement for people to get vaccinated and to do so as soon vaccine is available, while 

explaining to everyone that immunity will not wear off even if vaccinations are received as early 

as August. 

In Scenario 1, there is a match between low demand and low vaccine availability, which was 

basically the current situation. In a Scenario 1 setting, it is important to continue to 

communicate why there are concerns about this new virus, what steps are being taken to make 

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novel H1N1 vaccine available, and who is recommended to receive it when it is available. The 

use of seasonal influenza vaccine should be encouraged.

Scenario 2 is one in which there is high demand and low vaccine availability. In this setting, risk 

communication principles and approaches dominate. There should be communication about 

the reasons for lack of vaccine and the rationale for a tiered approach if applicable. They 

should not be afraid to express personal disappointment that there is not enough vaccine to 

meet demand, because that is what everyone desires. Other protective steps should be 

emphasized, being cautious not to over-promise on any interventions.

In Scenario 3, there is low demand and high vaccine availability. In this setting, the social 

marketing approach would dominate. Tailored and motivating messages should be delivered to 

those recommended for vaccination. Awareness should be increased regarding disease risks, 

vaccine benefits, and safety. 

Scenario 4 is one in which there is high demand and high vaccine availability. In this scenario, 

communication efforts would likely best be used to help with distribution and delivery 

challenges. Vaccine safety concerns should be responded to quickly, even coincidental events 

that occur after vaccination or very rare adverse events that can only be identified when large 

populations are receiving vaccine. 

Within each of these scenarios, several unique issues might arise in terms of influenza vaccine 

communication. In practice it will be difficult to differentiate between seasonal and novel H1N1 

illness, but people are going to want to know what they have. Messages should prepare people 

for this and focus on general guidance that is applicable to all flu. Messages comparing novel 

H1N1 influenza with seasonal influenza should not inadvertently foster or support public 

perceptions that seasonal influenza is a mild disease. Many people who are considered to be at 

high risk do not self-identify as being at high risk. This poses a major communication challenge. 

Vaccination recommendations that involve children and pregnant women can be expected to 

generate heightened concern about vaccine safety. In certain scenarios and under certain 

circumstances, consumer demand for choice may be mistaken for consumer demand for 

vaccine. Those two things are very different, and it may be that in some cases, people just want 

to know that if they want the vaccine, it is available to them. Variation in vaccines and 

immunization recommendations and approaches, as well as variation in vaccination practices 

between locations and providers will raise questions and concerns. This will be more salient for 

some scenarios than others, but equity is always an important issue that will have to be 

addressed. 

In terms of channels and products, flexibility is key. Emphasis will be on channels and products 

that are best suited for dynamic communication environments, such as: news media (including 

outreach to ethnic media), web and new media, distribution of key points to partners, some print 

materials, only very generic PSAs that would be appropriate for any scenario, and partnerships. 

Moreover, widespread support will remain essential. Health care providers, the public health 

community, and state and local political leaders supporting public health recommendations and 

guidelines will be very important. State and local communication efforts are absolutely 

paramount, because all of these messages and efforts must be tailored and localized. CDC 

speaks regularly to the National Information Coalition, which will continue to be important. 

Transparency in processes and approaches is also highly important. Actions will be as or more 

important than statements (e.g., getting vaccinated versus encouraging vaccination). Effective 

communication can help alleviate, but cannot solve, problems related to bad, inadequate, or 

absent policies, recommendations, systems, or products. The combination of sound, scienceThis document has been archived for historical purposes. (8/1/2009) 

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based public health policies and recommendations with effective communication has the 

potential to save lives, prevent serious illness and disability, and reinforce social norms around 

the importance of vaccines.

Discussion

Dr. Neuzil noted that one concern of the work group is that “novel H1N1 vaccine” is a very 

difficult term to say in that it does not easily roll off of the tongue. Having discussed this at 

length, the work group recommends the use of a very simple term such as “pandemic vaccine” 

to avoid confusion in the fall. 

Dr. Sheedy concurred that the term “novel H1N1” was technical and potentially confusing, and 

that more simplified terminology would be preferable.

Dr. Sawyer wondered whether specific messages had been designed for physician providers 

regarding the topic of it not being too early to immunize. Promotion of early seasonal vaccine 

has been part of the strategy; however, if novel H1N1 vaccine is available in September or 

October, some people may believe that is too early. Several years ago the message to 

physicians was that it could be too early, although this was to mitigate shortages. Based on 

what he had observed thus far, there had not been sufficient messages to physicians to provide 

the background for the new stance that it was not too early. He encouraged the inclusion of 

references in all communication efforts to support that stance.

Dr. Sheedy replied that there are plans in place, and their scientific staff have informed her that 

it is okay to tell people that it is not too early to vaccinate in August or September. There is a 

satellite course for providers that includes this message among others. Bill Atkinson is the lead 

on provider education and messaging issues. He and Dr. Sheedy have discussed this 

extensively, including the various ways that message can be disseminated. CDC is fortunate to 

have wonderful distribution and reach in terms of being able to reach numerous providers. 

There are courses, conference calls, and updates, and articles will be prepared that can be 

placed in publications that reach providers.

Dr. Sawyer noted that in June, ACIP heard about the two models for distribution. He wondered 

how close CDC was to a decision, given the importance for local planners of training providers 

on how to order from a central distributor. 

Dr. Wortley responded that the decision was imminent, and was expected to be made that 

week.

Dr. Schuchat said the expectation was that providers would work with their state and local 

health departments regardless of which distribution method went forward. While the timing was 

imminent, as noted earlier, one state has already pre-registered their providers to be able to 

order through the state to the federal assets. While there would soon be greater clarity, some 

states are already planning and efforts are being made to share best practices in that regard. 

CDC is also looking forward to the provider organizations helping with this in terms of doing the 

push (e.g., through professional organization, to members, back to state and local agencies) 

once there is clarity. 

Dr. Chilton pointed out that CDC does an excellent job of communicating, at least with 

professionals, in the spring each year. Although the agency could have been accused of “flipflopping,” it was able to effectively change the message and get it widely disseminated. 

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However, in thinking about the communication strategy, he did not think they should allow for a 

low demand scenario. There was not time to wait to find out whether there was going to be a 

bad pandemic during the fall. Instead, he thought they needed to create a high demand 

situation and that they should not be passive. With regard to the concern about having a high 

demand / low supply scenario, focus groups have been helpful in showing that there is some 

degree of lack of self-interest; that is, being willing to give the vaccine to people who really need 

it the most. The focus group suggested that health care workers, emergency responders, and 

young children be given the vaccine. Presumably it was not the young children who voted that 

way. So, they are willing to let other people have the vaccine if there is a situation of high 

demand and low supply. Thus, he thought they needed to sell it and somehow communicate 

the fact that there could be a severe epidemic in the fall with severe results, without frightening 

the population too much. 

Dr. Sheedy clarified that she did not mean to imply that the current scenario was not one in 

which they were not taking steps to encourage vaccination. The ACIP vote during this meeting 

and the ability to discuss recommendations would provide them with a wonderful opportunity to 

begin speaking directly to those people who they hope will get the vaccine, to explain why it is 

being recommended for them, and to lay the foundation for encouraging people to get both 

pandemic and seasonal influenza vaccines. She reminded everyone that they would do what 

they could to encourage people to seek vaccination, discuss its importance, and increase 

demand. However, some factors that impact demand are actually beyond the control of 

communication. That includes what people bring to it in terms of their past experiences, their 

existing perceptions about the vaccine, disease severity, prevalence, et cetera. 

Dr. Sumaya requested specifics regarding plans to reach out through communications to harder 

to reach communities (e.g., rural, minorities, under-served), and he asked whether there had 

been or would be input from these communities in the development of the communication 

strategies. 

Dr. Sheedy responded that they have not had the level of input that she thought they should; 

however, historically they have had good luck working with the media that reach those 

communities and with local partners to help reach them. A number of partnerships are in place 

with organizations who reach these groups. There are plans for translation of key documents 

and materials. However, she acknowledged that they had not been able to reach out to acquire 

direct input from those groups. 

Dr. Marcy inquired as to whether there would be a separate vaccine information statement for 

the H1N1 vaccine.

Dr. Sheedy replied that there would be.

Dr. Lett inquired about the Public Readiness and Emergency Preparedness Act (PREP Act), 

about which they are receiving questions. People are asking about the intersection with the 

normal Vaccine Injury Table. The PREP Act is helpful for explaining liability coverage for people 

involved in vaccination and planning. It appears that if someone has an injury, they can be 

compensated. However, she wondered if people could also be compensated through the usual 

Vaccine Injury Table. 

Geoff Evans (National Vaccine Injury Compensation Program) indicated that a one-page 

handout was available on the information table that addressed the PREP Act, which provides 

liability protection for covered countermeasures and will also set up a compensation program. 

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In terms of how this would play out with respect to the Vaccine Injury Compensation Program 

(VICP), which covers seasonal trivalent influenza vaccine in which the Vaccine Injury Table 

functions, versus the H1N1 vaccine that will have a table created as part of the PREP Act, is not 

clear at this point. He emphasized that it is important that there be as much separation between 

the two campaigns as possible for vaccine safety monitoring purposes, as well as the 

determinations that will be important in these two programs—more specifically the H1N1 

program—in terms of being able to distinguish, as much as possible, the adverse events related 

to one versus the other. 

Dr. Baker pointed out that immunization for pregnant women had been recommended for more 

than a decade, yet uptake remains at a high of 15%. A pregnant woman is unlikely to do 

anything that is not recommended by her obstetrical care provider. Clearly, there is a problem. 

With that in mind, she wondered whether consideration had been given to ways to convince 

obstetrical care providers to at least recommend the vaccine so that women could acquire 

seasonal and H1N1 vaccine offsite. Pregnant women are an important high risk group.

Dr. Sheedy replied that her team spent a full day recently locked in a room brainstorming about 

some of these tougher issues, this being one of them. They agree completely that while they 

can try to reach pregnant women directly, it is the providers who are key. These women see 

their providers frequently, so the team did discuss how they could better work with American 

College of Obstetricians and Gynecologists (ACOG) and other groups to reach their members 

and engage them more. Consideration was also given to the types of materials and tools the 

team could provide to make it easier and more convenient for physicians to raise the issue with 

their pregnant patients. 

Dr. Schuchat pointed out that in contrast to seasonal influenza, the H1N1 situation had offered 

the unfortunate opportunity of being able to highlight some of the horrible outcomes pregnant 

women are suffering. A paper was recently published about pregnancy complications from 

H1N1 that highlights the complexities and challenges of influenza in pregnant women. The 

hope is that the clinician community that serves these women will pay attention and the CDC 

can work with them to develop good messages and tools for women. 

Dr. Meissner presented an opposing view to the current discussion, based partly on a 

commentary by Dr. Tony Fauci in the New England Journal of Medicine that began with the 

recognition of the 1918 pandemic that resulted in over 20 million deaths worldwide. This 

commentary pointed out that there were two additional pandemics in the last century with 

ancestors of the 1918 strain; however, each pandemic was less severe than the preceding one 

and the pandemic occurring now is really a fourth generation ancestor of the 1918 strain. 

Increasingly less severe disease is being observed as each pandemic occurs. While this is 

likely in part due to improvements in public health and medical care, it is also likely that there 

are genetic changes in the virus. The virus may be trading virulence or pathogenicity for 

transmissibility. In fact, that appears to be what is occurring in the US and throughout the world 

based on what they heard earlier in the morning. This raised the question in Dr. Meissner’s 

mind about the potential hazards of administering a swine flu vaccine to tens of millions of 

people when there are very limited data about the safety of this vaccine. As pointed out, 

Guillain-Barré Syndrome (GBS) is less likely to occur in the young age group that would be the 

primary target of this vaccine; however, many other issues may arise. Conversely, if the 

vaccine is vigorously endorsed for many people and it turns out to be a relatively mild illness, 

which appears to be the case, he thought ACIP would lose credibility in terms its 

recommendations. There did not appear to be an evolutionary advantage to this virus to 

acquire greater pathogenicity. It seemed more likely to less severe. A virus does not want to 

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kill its host, have an adult stay home from work, or have a child out of school—it would rather be 

passed from one host to another. With that in mind, they could make an argument that this may 

be a mild season. However, it may very well go the other way. 

Dr. Schuchat responded that it is very important to raise and discuss issues, because this 

meeting represented a day of important and serious deliberations. It is always said that no 

vaccine and no medical product is without risks. It is important for ACIP as a committee to 

consider benefits and risks in any equation. With season influenza and H1N1, each individual 

who has been infected has a somewhat different story. Even with what is believed to have 

occurred with 1918 influenza, 98% of people survived. The impressions, even with good 

epidemiology, are challenging. There are many factors (e.g., individual, school, community, et 

cetera experiences). ACIP’s purview is to consider the spectrum of illness that this virus is 

known to cause to think through the data presented, consider what populations appeared to be 

affected most severely, what interventions should be implemented, et cetera. For vaccines to 

work ideally, they must be used before exposure. Not knowing the exact circumstances that 

can be expected in the fall and winter if vaccines are not utilized or are used in a highly limited 

manner is a major challenge. 

Dr. Sheedy said she thought it was okay for them to share these dilemmas with the public. 

They public may have interesting thoughts and ideas to share about this. Public engagement 

sessions are planned in a number of cities throughout the US in August to deliberate some of 

the issues.

Regarding terminology, Dr. Judson thought the use of the term “pandemic” was acceptable if 

that meant what most people thought, “It is everywhere and it affects many people.” That is 

basically the WHO definition. To the extent that the term means that it is more severe, they 

would be tying it to a name that is probably not justified by the science. In terms of what is 

known and has been observed thus far, by 2010 H1N1 will likely be one of several seasonal 

virus strains with no more measurable severity or impact than some of the other strains 

experienced in the last 50 to 90 years. The challenge is dealing with two different vaccines for 

four different viruses, which probably do not differ in terms of how they would affect the 

individual or the individual with underlying risk factors. 

Dr. Temte pointed that as ACIP moved toward universal recommendation of influenza 

vaccination, this season posed a good opportunity to make in-roads with communication. There 

would be a clear benefit during this season to be aggressive with pregnant women and other 

such groups. Thus, he thought they should use this opportunity in terms of the broader picture 

for expanding recommendations for seasonal influenza. At the same time, he believed they had 

to be very careful not to oversell this virus. As Dr. Meissner mentioned, nothing is known about 

the safety of the H1N1 vaccine. Dr. Temte also worried greatly that if they promoted the 

vaccine heavily and then something negative occurred, credibility would indeed be lost. They 

must also be careful about labeling the vaccine, in that if they label it as a pandemic vaccine, 

this could cause problems for future pandemics should anything negative occur this season. 

For example, the swine flu vaccine provokes negativity. 

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Discussion

Lyn Redwood

The Coalition for SafeMinds

(Sensible Action For Ending Mercury-Induced Neurological Disorders) 

Hi. Thank you for the opportunity to speak here today. I represent the Coalition for SafeMinds. 

I’m very concerned about the fact that thimerosal will be utilized in the preparation of the swine 

flu vaccine. As you know, back in 1999, we were told that thimerosal was being removed or 

eliminated from vaccines. What we’ve witnessed over the last several years is the increasing 

use of thimerosal in flu vaccines that are now administered to pregnant women. We do know 

that the thimerosal from vaccines is able to cross the blood-brain barrier and accumulate in the 

brains of infant primates. I would assume that the same thing happens in infants. That’s 

something that we’re completely ignoring. That, in addition to the fact the EPA already 

estimates 1 out of every 6 pregnant women has levels of mercury in their body that can cause 

neurological damage to their unborn children. So, I would highly recommend that you please 

consider making a recommendation for thimerosal-free flu vaccines for pregnant women.

I also wanted to remind the committee about another study that was published in Lancet in 2006 

where they looked at 50,000 women over five flu seasons and they compared those who 

received flu vaccine to those who did not. They found that absolutely no difference in the 

incidence of flu or flu-related illnesses in those two groups. Also, when they looked at the 

children, following them up, there was also no difference in their incidence of flu as well. So, I 

think we need to be very careful about assuming that this flu vaccine is going to be safe and 

effective in pregnant women.

To get this vaccine to market by the fall, none of the safety studies will be completed yet. We 

know that pregnant women and young children will be among the first to receive this 

experimental vaccine and are also the ones that are most vulnerable to vaccine side effects. 

Given these concerns, I would like to ask the Advisory Committee for Immunization Practices to 

respond to some of these questions: 







Should a squalene-based adjuvant be used and what studies have demonstrated that it is 

safe to combine thimerosal with squalene? 

Both CSL and sanofi pasteur have indicated that they can make pandemic mercury-free 

vaccine. Will ACIP state a preference for mercury-free vaccines for pregnant women, young 

children, and vulnerable populations such as premature infants and immunocompromised 

children? I want to remind you that this was actually recommended by the Institute of 

Medicine in 2001 in their report on thimerosal-containing vaccines and neurological 

development. 

How much mercury will be in multi-dose vials and what dose of mercury will be given to 

premature infants, pregnant women, and adults? We know from a study done here at Grady 

Hospital by Greg Stajich that premature infants developed elevated levels of mercury after 

exposure to just 12.5 mcg of hepatitis B vaccine. One infant in that study developed a 

mercury blood level of 23 mcg. CDC identifies a toxic blood level of mercury as 10 mcg. 

So, I think we need to look at that issue very closely.

Public Comment Session

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 Given that the National Vaccine Advisory Committee identified a gap in demonstrating the 

safety of simultaneously administering multiple vaccines during a given office visit, will ACIP 

recommend administration of H1N1 vaccine separately as a precaution to be able to permit 

identifying, tracking, and analyzing; and, if necessary, removing the vaccine from the market 

as was the case in 1976?

 All flu vaccines to date are considered a Category C drug, which means they have never 

been evaluated for carcinogenic or mutagenic potential. We also have absolutely no animal 

reproductive studies, and we have no idea if this vaccine could cause fetal harm. We do 

know that if a pregnant woman develops flu during pregnancy, there’s an increase risk of 

schizophrenia in her offspring. We don’t know if administering a flu vaccine could cause that 

same time of response by stimulating the immune system, causing a pulse of cytokines and 

opening the blood-brain barrier. That type of question is only going to be answered if we 

follow the infants. From what I heard today, the only thing that we are really looking at in the 

infants is their immune response. So, we need to do much better than that. We need to 

look at whether or not the children who have received this vaccine later on in life have any 

adverse neurological sequelae.

In closing, I urge you to please consider these concerns as you move forward today with making 

recommendations regarding influenza immunization. Thank you very much. 

Kelly Moore

Tennessee Immunization Program

Since Tennessee’s pre-registration process has been alluded to a couple of times I’ll given an 

update. Our programmers are actually this week finishing the programming on that on-line 

registration system for the private sector. We have had a lot of enthusiasm as we have 

presented the concept around the state, so we are really encouraged that that will allow us to 

understand who is interested and how many doses they may be interested in. One of the 

challenges that we face that we are looking for help on is the large retail pharmacy chains that 

are interested in partnering with us. We are trying to find better strategies to engage them at a 

corporate level instead of having to work with individual outlets, and trying to manage shipping 

to their distributors hopefully so that they can take distribution over from that point. Logistically, 

in echoing what Pascale was talking about, we are finding a lot of interest and success in the 

private sector. There are still some logistics challenges we’re looking for good answers for. 

Thanks.

Discussion

Anthony Fiore, MD, MPH

Influenza Division

National Center for Immunizations and Respiratory Diseases

Centers for Disease Control and Prevention

Dr. Fiore indicated that he was charged to present the results of the many work group 

discussions that occurred through teleconferences, emails, et cetera regarding the 

considerations for prioritization guidance. 

ACIP Influenza Work Group Recommendations

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The novel influenza A(H1N1) pandemic poses unique challenges to making vaccine 

recommendations. There is persistent transmission in the US since the introduction of the virus

and there is potential for an early second surge. Vaccine clinical trials and large-scale 

production must proceed simultaneously. Recommendations for use must be made before 

licensure to provide basis for implementation planning. There remains uncertainty about the 

arrival date of the vaccine, the amount of vaccine that will be available early, the pace that the 

supply will increase over time, the ability to implement recommendations, and the number of 

doses needed. 

A summary of key epidemiologic findings in terms of the distribution of cases, hospitalizations, 

and deaths is as follows:

 





















The highest incidence of lab-confirmed infections is in school-aged children

The highest hospitalization rates are among 0 through 4 year olds

Hospitalization rates for April through July 2009 approach cumulative rates for seasonal 

influenza among school-aged children and 19 through 49 year old adults

The fewest cases but highest case-fatality ratio is in older adults

The distribution of cases by age group is markedly different compared to seasonal influenza

There is a higher proportion of hospitalized cases in children and young adults 

There are few cases in older adults

No outbreaks have occurred among the elderly in long-term care facilities

Of the hospitalized cases, 70% have had an underlying medical condition that confers 

higher risk for complications

Pregnancy is a higher risk condition, with 6% of the hospitalized cases in the early case 

series being pregnant women; and the upcoming Lancet article shows that the incidence of 

hospitalization in pregnant women was approximately four times that of the general 

population

Obesity among persons with novel influenza A(H1N1) has also arisen as a potential issue. 

According to non-published data from CDC, obesity has been conjectured as a possible 

additional risk factor. Found thus far in the data is that the prevalence of obesity, defined as 

having a body mass index of (BMI) of ≥30, among the general adult population is 34%. The 

prevalence of morbid obesity (BMI ≥40) is 6%. The prevalence of obesity among persons who 

died with lab-confirmed influenza A(H1N1) is 68 / 179 (38%), with 13 / 179 (7%) being morbidly

obese. Among 68 obese persons who died, 39 (57%) had a previously known medical 

condition that confers higher risk for influenza complications. Among the 13 morbidly obese 

who died, 9 (70%) had a previously known medical condition that confers higher risk for 

influenza complications. The conclusion from this is that the prevalence of obesity among the 

general population must be kept in mind, and many of these obese and morbidly obese patients 

had other predisposing underlying medical conditions—an indication for seasonal influenza, for 

example. The work group’s conclusion is that current evidence was not sufficient to establish 

obesity as a new independent risk factor. 

 

In summary of the key findings from virologic and immunologic studies, no significant antigenic 

changes have been observed among novel influenza A(H1N1) viruses since April 2009. The 

hemagglutinin of novel influenza A(H1N1) viruses is somewhat similar to H1 subtype viruses 

that circulated during 1920s-1940s, which suggests the possibility that this has been the cause 

of some of the cross-reactive antibody to nH1 that has been detected among some of the older 

adult participants in vaccine studies. This cross-reactive antibody is not observed among 

children and young adults. Cross-reactive antibody to nH1 was detected among the following 

participants in vaccine studies: 6% to 9% of those aged 18 through 64 years; 33% of those 

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aged >60 years; and 0% of children. The results from clinical studies are being awaited to 

determine whether older adults with some pre-existing immunity might need only a single dose. 

Two scenarios were reported earlier in the day regarding two potential vaccine scenarios, one 

with a vaccine available as early as September and the other with availability in mid-October of 

as many as 120 million doses.

The work group began their deliberations with a series of planning assumptions to understand 

the baseline as they embarked on their discussions, including the following: 





















The severity of illness and groups at higher risk for infection or complications will be similar 

to what has already been observed; on-going studies will determine whether this is accurate

Antigen content, reactogenicity, and immunogenicity of adjuvanted vaccine cannot be 

assessed before trial data are available; given this, the adjuvanted discussion was basically 

taken off of the table during the work group’s deliberations

The safety profile and antigen content of unadjuvanted novel H1N1 vaccines will be similar 

to that of seasonal influenza vaccines

Adequate supplies of licensed unadjuvanted vaccine can be produced for all by 

approximately February 2010

Enough vaccines for all will not be available before the next pandemic wave in the fall

Pandemic vaccine and seasonal vaccine availability will likely overlap and both will be 

recommended for many populations groups 

Two doses will be needed for protection; on-going studies may further inform this, but the 

working assumption is that two dose will be needed

Initial demand for vaccination will be approximately the same as for seasonal vaccine, but 

could increase quickly if community transmission increases

Vaccine distribution will be timely

Implementation will pose many challenges; however, this was not the focus of the work 

group’s discussions

Definitions used during the work group’s discussions included the following:









Supply: Number of vaccine doses available for distribution

Availability: Ability of a person recommended for vaccination to be immunized in a local 

venue 

Targeting: Recommendation that immunization programs encourage and promote 

vaccination for certain population groups

Prioritization: Recommendation to provide vaccine to certain population groups before 

others

The first question the work group tackled was: Are new recommendations needed? The latest 

iteration of the pandemic vaccine prioritization guidance was developed for pre-pandemic 

planning in 2007. The stated intent of this guidance was that the guidance was to be modified

according to pandemic epidemiology and vaccine supply expectations. Much of the planning 

focused on severe pandemic with the potential for substantial disruption of critical infrastructure. 

The work group’s conclusion was that current evidence from epidemiologic and immunologic 

studies, and updated information on vaccine supply and availability timelines, indicate the need 

to revise the recommendations made during pre-pandemic planning. 

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The second question the work group addressed was: Which groups should be targeted with 

initial vaccine allocations? Consideration included severity of illness and risk for complications 

during nH1N1 outbreak frequency of illness during nH1N1 outbreak, contribution of particular 

groups to overall burden of severe illness, protection of healthcare system functions, reduction 

of societal impact, and the potential for indirect protection of more vulnerable contacts. Five 

groups were identified as being important to target initially. Dr. Fiore stressed that while the 

work group included numbers with these five groups, the numbers were for planning purposes 

only and were not intended to be demographic assessments of how many subjects are actually 

in each group. 

The first group is pregnant women (n=approximately 4 million). Pregnant women are at higher 

risk for complications for seasonal influenza and have been at higher risk in past pandemics. 

Deaths have been reported among pregnant women during 2009 pandemic, and there has been

a higher rate of hospitalization among pregnant women compared to other groups. There is 

also a potential for protection of infants who cannot be vaccinated. First of all a pregnant 

woman is about to become a close contact of someone who cannot be vaccinated. There is 

also the possibility, as has been show in some studies of seasonal influenza, that passively 

transferred maternal antibodies might protect newborns. 

The second group considered important as an initial target group is household contacts and 

caregivers for children younger than 6 months of age (n = approximately 5 million). This is 

probably the number that is most difficult to determine, given that it includes people in the 

household with the newborn as well as daycare providers who care for children less than six 

months of age. The rationale behind this group is that young infants < 6 months old cannot be 

vaccinated with the currently licensed vaccines, young infants are at higher risk for influenzarelated complications, and a cocooning effect might be achieved that would provide indirect 

protection.

The third group considered important to target is healthcare personnel and emergency medical 

services (n = approximately 14 million). “Emergency medical services” were defined as persons 

in an occupation (e.g., emergency medical technicians, firemen) who routinely provide 

emergency medical care in communities as part of normal job duties. The rationale for selection 

of the population is that they are a potential source of infection for vulnerable patients, increased 

absenteeism could reduce healthcare system capacity, and influenza A(H1N1) infections among 

healthcare workers have been reported (community- and workplace-acquired). 

Children and adolescents from 6 months through 18 years of age (n = approximately 78 million) 

represent the fourth target group selected. The rationale behind selection of this group is that 

they have the highest incidence of illness. Explosive outbreaks in schools was a prominent 

feature of the Spring 2009 epidemiology. Children < 5 years old are at highest risk for 

hospitalization, they are a source of infection for the community and in schools, and their illness 

keeps parents home from work.

Adults aged 19 through 64 with certain medical conditions make up the fifth target group 

selected (n = approximately 34 million). Of the adults hospitalized with nH1N1 infections, about 

70% had a medical condition that confers higher risk for influenza-related complications. 

Medical conditions that confer a higher risk for influenza-related complications include chronic 

pulmonary, cardiovascular, renal, hepatic, cognitive, neurologic / neuromuscular, hematological 

or metabolic disorders, and immunosuppression (including immunosuppression caused by 

medications or by human immunodeficiency virus). 

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The work group conclusion was that these five target population groups should be the initial 

focus of immunization efforts, recapped as follows:











r











Pregnant women (4M)

Household contacts and caregivers for children younger than 6 months of age (5M)

Health-care and emergency medical services personnel (14M)

Children and adolescents from 6 months through 18 years of age (78M)

Persons aged 19 through 64 years who have medical conditions associated with a higher 

isk of influenza complications (34M) 

Thus, the total initial target group is projected to be approximately 134 million people. While this 

seems like a very large group compared to the vaccine supply, it is important to remember that 

seasonal influenza vaccine coverage in these groups is only about 20% to 50%. Although 

better uptake is hoped for in these groups, the work group felt that it was important not to try to 

match initial supply precisely with 100% coverage estimates for these groups, given that this is 

unlikely to be achieved. These initial target groups represent approximately 44% of the total 

population.

The work group engaged in considerable discussion about young adults, which the work group 

refers to as Option B. Option B is to expand the age group of children 6 months through 18 

years of age to 6 months through 24 years of age (n= approximately 102 million). Again, the 

rationale behind this is that these groups have the highest incidence of illness, explosive 

outbreaks in schools a were a prominent feature of the Spring 2009 epidemiology, children < 5 

years old are at highest risk for hospitalization, are a source of infection for community and in 

schools, and illness keeps parents home. It is difficult with the national data available to 

determine whether there is a large difference between a 19-year old and a 15-year old. The 

work group conclusion was that Option B would slightly alter the five target population groups 

that should be initial focus of immunization efforts to the following:

Pregnant women (4M)

Household contacts and caregivers for children younger than 6 months of age (5M)

Health-care and emergency medical services personnel (14M)

Persons 6 months through 24 years of age (102M)

Persons aged 25 through 64 years who have medical conditions associated with a higher 

risk of influenza complications (34M) 

Now the total initial target group would be approximately 159 million or slightly more than 50% 

of the US population. Again, seasonal influenza vaccine coverage in these groups is only 20% 

to 50%. 

Another question addressed by the work group was: Is guidance on prioritization within initial 

target population needed? If supply estimates are accurate, the need for prioritization is 

lessened. The projected 120 million doses anticipated in October exceeds number of doses of 

influenza vaccine ever given in a single influenza season. A major limitation on the vaccination 

program with this supply would be making vaccine accessible quickly to all. However, the 

supply estimate assumes that all manufacturing, licensure, and distribution steps will proceed 

smoothly. Therefore, the work group conclusion was that guidance is needed on how programs 

and vaccination venues should prioritize vaccination if availability is very limited because

availability and demand at the local level will vary even if projected supply estimates are 

achieved, and projected initial supply estimates might not be achieved. 

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The work group considered two strategies. Strategy 1 was to vaccinate as many as possible in

the initial target groups. This strategy assumes that some but not all providers / programs will 

have a limited initial supply and demand might vary considerably in the early weeks. This 

strategy would also provide vaccination for smaller high risk / occupational groups within the

primary target groups for prioritization when the supply is very limited. Strategy 2 would focus 

vaccination efforts on smaller high priority groups, and assumes that availability will be limited 

and demand will be high in the early weeks. The strategy would also expand programs to 

include the larger target groups as availability increases. 

During these discussions, the work group reflected on the 2004 experience, during which there 

was a vaccine shortage due to a manufacturer being unable to deliver vaccine. The result was 

that prioritization guidance was developed to address the groups thought to be at higher risk 

first due to the limited supply of vaccine. There was a substantial drop in the 2004-2005 

shortage season in all targeted groups, even though some of the groups were intentionally 

prioritized to the front of the line to be vaccinated, including health care workers. There was a 

fair amount of delay in coverage, even in reaching the baseline coverage that had been 

achieved in 2003. The lesson was that prioritization can lead to unexpected consequences. 

During the 2004 season, coverage declined even in groups prioritized, and excess vaccine 

remained at the end of the season [Source: CDC, NHIS. http://www.cdc.gov/flu/professionals/ 

vaccination/pdf/vaccinetrend.pdf; Preliminary data from 2007-08 influenza season].

Key work group considerations when vaccine demand exceeds supply were that vaccination 

providers and immunization programs will need to balance the need to administer vaccine to as 

many persons as possible as quickly as possible with need to prioritize vaccination for smaller 

subgroups. In addition, availability might vary greatly even at the local level. Flexibility is 

needed to adapt to changes in availability and demand. 

With regard to what strategy should be used to provide access to as many target groups as

possible, the work group conclusion was to recommend Strategy 1: 







Recommend vaccination of as many as possible in initial target groups

Assume some but not all providers / programs will have a limited initial supply and demand 

might vary considerably

Prioritize to smaller high risk / occupational risk groups when demand exceeds supply

Provide flexibility to programs and providers to vaccinate as many as possible quickly, but 

prioritize when supplies are limited 

In terms of who should be prioritized if vaccine demand exceeds availability, the work group 

concluded that while vaccine demands exceed availability, protection of persons who are at 

higher risk for influenza-related complications due to novel influenza A(H1N1), or who are at 

high risk for occupational exposure and furthering transmission in healthcare settings would 

constitute the highest priority. Within the larger initial target group, the smaller prioritization 

group would include the following: 











Pregnant women (4M)

Household contacts of infants < 6 months old (5M)

HCP / EMS with direct contact with patients or infectious materials (9M)

Children aged 6 months through 4 years (18M)

Children with chronic medical conditions (6M)

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The total of the highest priority groups is approximately 42 million. The number of doses 

needed for high 2-dose coverage of these groups falls within the lower estimates of initial supply 

projections. As a reminder, seasonal influenza vaccine coverage in these groups is only 20% to 

50%. With regard to who should be vaccinated as availability increases, the work group 

conclusion was that when vaccine availability is sufficient at the local level to routinely vaccinate 

initial target populations, vaccination against novel influenza A(H1N1) is also recommended for 

healthy adults aged 19 through 64 years old. In terms of when persons 65 or older should be 

vaccinated, currently available information indicates that adults aged 65 years and older are at 

lower risk for infection than younger persons for novel influenza A(H1N1). The work group 

conclusion was that vaccination should be offered to persons aged 65 or older once vaccination 

programs are capable of meeting demand for vaccination from younger age groups. However, 

the recommendation to offer vaccine to persons aged 65 or older might need to be reassessed

as new epidemiologic, immunologic, or clinical trials data warrants, and should be assessed in 

context of global need for novel H1N1 vaccines. 

Based on the work group’s considerations and deliberations, the following recommendations 

were developed:

Work Group Recommendation (1): The initial efforts should focus on vaccination of as many as 

possible in initial target groups, including:











Pregnant women

Household and caregiver contacts of children younger than 6 months of age

Health-care and emergency medical services personnel

Children from 6 months through 18 years of age

Persons aged 19 through 64 years who have medical conditions associated with a higher 

risk conditions 

Work Group Recommendation (2): When vaccine demand exceeds availability, subgroups 

within target groups that should be prioritized where feasible are:











Pregnant women

Household and caregiver contacts of children younger than 6 months of age

Health-care and emergency medical services personnel with direct contact with patients or 

infectious materials

Children 6 months through 4 years old

Children with chronic medical conditions 

Work Group Recommendations (3): When vaccine availability is sufficient at the local level to 

routinely vaccinate initial target populations, vaccination against novel influenza A(H1N1) is 

recommended for healthy adults aged 19 through 64 years old. Vaccination of persons aged 65 

or older should be offered once vaccination programs are capable of meeting demand for 

vaccination from younger age groups. Vaccination with seasonal vaccine should begin as soon 

as seasonal vaccine available for persons aged 65 or older. 

Work Group Recommendation (4): Given that H1N1 vaccine supply and availability are

projected to increase quickly over time, and more information on the need for 2 doses will be 

available, vaccine should not be kept in reserve for later administration of the second dose.

Seasonal influenza vaccination should begin as soon as it is available for all groups currently 

recommended for seasonal vaccine [Prevention and control of seasonal influenza with vaccines: 

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Recommendations of the ACIP, 2009. July 24, 2009; http://www.cdc.gov/mmwr/preview/ 

mmwrhtml/rr58e0724a1.htm]. Seasonal and pandemic inactivated vaccines may be 

administered on same visit. Clinical trials are on-going that will further determine whether there 

are any problems with administering the vaccines simultaneously, but it is not believed that 

there will be any issues. 

Option B work group recommendations merely changed the wording in a such a way that 

instead of 6 months through 18 years of age, the recommendation is from 6 months through 24 

years of ages. Thus, the recommendations would be as follows should Option B be selected: 

Work Group Recommendation (1): Initial efforts should focus on vaccination of as many as 

possible in initial target groups, including the following:











Pregnant women

Household and caregiver contacts of children younger than 6 months of age

Health-care and emergency medical services personnel

Persons from 6 months through 24 years of age

Persons aged 19 through 64 years who have medical conditions associated with a higher 

risk conditions 

Work Group Recommendation (2): When vaccine demand exceeds availability, subgroups 

within target groups that should be prioritized where feasible are:











Pregnant women

Household and caregiver contacts of children younger than 6 months of age

Health-care and emergency medical services personnel with direct contact with patients or 

infectious material

Children 6 months through 4 years old

Children with chronic medical conditions 

Work Group Recommendation (3): When vaccine availability is sufficient at the local level to 

routinely vaccinate initial target populations, vaccination against novel influenza A(H1N1) is 

recommended for healthy adults aged 25 through 64 years old. Vaccination of persons aged 65 

or older should be offered once vaccination programs are capable of meeting the demand for 

vaccination from younger age groups. Vaccination with seasonal vaccine should begin as soon 

as seasonal vaccine available for persons aged 65 or older. 

Work Group Recommendation (4): Given that nH1N1 vaccine supply and availability is 

projected to increase quickly over time, and more information on the need for 2 doses will be 

available, vaccine should not be kept in reserve for later administration of the second dose. 

Seasonal influenza vaccination should begin as soon as it is available for all groups currently 

recommended for seasonal vaccine [Prevention and control of seasonal influenza with vaccines: 

Recommendations of the ACIP, 2009. July 24, 2009; http://www.cdc.gov/mmwr/preview/ 

mmwrhtml/rr58e0724a1.htm]. Seasonal and pandemic vaccines may be administered on same 

visit. 

The work group decided that they would like to have further information about the 19 through 24 

year old age group. Dr. Fiore reminded everyone that the data from the aggregate reporting 

lumped a large group of 5 years to 24 years of age, which was a source of consternation for 

many people. When further broken down, confirmed and probably cases from March 15-May 

16, 2009 are as follows: 2.60 for 5 to 11 year olds; 2.56 for 12 to 18 year olds; and 1.26 for 19 

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to 24 year olds. There is a fairly steep drop-off in incidence in the early line list data with the 12 

to 18 year age group compared to the 19 to 24 year old age group [C Reed et al. CDC, 

unpublished data]. 

Discussion

Dr. Sumaya inquired as to whether the work group’s vote on Strategy 1 was unanimous, or if 

there was any dissent. 

Dr. Neuzil responded that the rationale was that there may be 120 million doses in October. 

The work group felt that the larger target group of 135 million met all of the criteria for initial 

vaccination (e.g., severity of illness, burden of illness, et cetera) and wanted to cover all of the 

them. Based on anticipated uptake, the work group made the assumption that coverage would 

be less than the 135 million in the larger initial target group, and that there would be plenty of 

vaccine to cover the anticipated number of vacinees under Strategy 1. Strategy 2 was to begin 

with 41 million individuals; however, reflecting on the 2004 season, the work group was 

concerned that selecting this strategy would miss the opportunity to reach the broader group. 

The work group also recognized that there will be local supply / demand mismatches, so they 

needed to provide some guidance in that situation. Therefore, it was basically either start with 

the priority group of 41 million or start with 135 million. The work group preferred to start with 

135 million. They did not take a formal vote, but there was some consensus on the strategy 

selection.

Dr. Fiora agreed. 

Dr. Sumaya inquired as to whether any consideration was given to proceeding slower as they 

watched the pandemic evolve and more data became available. 

Dr. Neuzil replied that the assumption was that if the pandemic progressed as it had been, there 

would be outbreaks early in the fall. That also drove the strategy decision.

Dr. Sawyer requested more insight into the work group thinking about the 19 to 24 year old 

group. Given the projections just laid out for vaccine supply and uptake, he assumed that 

uptake would be far less than 80%, especially with 19 to 24 year olds. Therefore, he was 

interested in understanding why the work group did not follow the same equation about vaccine 

availability and demand and immediately move to Option B, which goes up to 24 year olds. In 

addition, Dr. Sawyer inquired as to whether it was correct that including the 19 to 24 year old 

age group added 24 million to the initial group.

Dr. Fiore responded that there is limited information to suggest that this group is at much 

greater risk for infection than older adults. It seemed like an arbitrary cutoff that was likely 

dictated by surveillance reporting. It is a larger group to consider vaccinating, and there is a 

fairly large step-off of incidence of confirmed infections in 18 to 24 year olds. Adding the 19 to 

24 year old age group does add 24 million to the initial group. With the groups overlapping to 

some extent, it is probably somewhat less than that. For example, there are some pregnant 

women in there who are already recommended. 

Dr. Turner (ACHA) indicated that he was speaking to ACIP as the President of ACHA, its board, 

and its Vaccine Preventable Disease Committee, which would strongly support Option B. He 

reminded everyone that college students left campuses in mid-May. Had H1N1 struck last 

November, he believed there would have been much higher rates of disease among students. 

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The campus where he is currently working has a small student population but has already had 

about 50 students with the virus. It appears that the congregate living, learning, and social 

conditions are the primary risk factors in transmission of this disease. This is why it is being 

seen in school children, camps, military academies, et cetera. The most compelling reason for 

making sure that the college population is vaccinated is that they are vectors for the disease in 

communities. It has been observed for 25 years that in Charlottesville, Virginia outbreaks of 

infectious diseases always begin with college students and move peripherally to the rest of the 

community. The college students interact with the community. They volunteer in daycares, 

hospitals, nursing homes, et cetera. They student teach, tend bar, are waiters and waitresses, 

et cetera. Thus, it seemed to make good public health sense to vaccinate the college 

population since epidemiologically it seemed that they were at higher risk for getting disease 

and being hospitalized. Approximately 32% of college students are vaccinated for seasonal 

influenza each year according to ACHA’s data, which is fairly good uptake. He believed they 

would see fairly good uptake with H1N1 vaccine as well. Therefore, he reiterated strong 

support for Option B. 

Dr. Ehresmann pointed out that although it was noted that there was a drop in the 19 to 24 year 

old age group, they were still at 1.26 per 100,000 population, which was still higher than the 1 

year old age group.

Dr. Fiore answered that they must recognize that this was from several sources of data and that 

the data were picked up at different times. The incidence data he showed was collected in the 

early stages of the outbreak when there was line list reporting. The aggregate reporting data 

from the system that took over in about May captures a different age group and captured the 

fact that incidence increased over time because there were more infections. Thus, the data 

were not comparable because they were two different snapshots. 

Dr. Neuzil added that the other important point was that as the age groups increased, the 

overwhelming majority of people who are hospitalized or die have underlying high risk 

conditions. Thus, many of the people in the high risk category are being captured; whereas, 

only 40% to 50% of 0 to 4 year olds have high risk conditions. That is not so much a distinction 

between 18 to 19 to 24. The truth is, the work group had a lot of trouble with this because the 

numbers get very small when data are divided. There really was no consensus. There were 

differing opinions on whether to stop at 19, which would be consistent with the seasonal 

recommendations and would also be simple, or to go up to 24 based on fairly limited data. 

Noting that Work Group Recommendation (2) included children with chronic medical conditions, 

Dr. Duchin (NACCHO) suggested that all children 6 months to 18 years of age be added back to 

Work Group Recommendation (3) that advises on who to immunize when the supply is 

adequate; that is, add back all children who do not have chronic medical conditions. 

Dr. Fiore responded that Recommendation (2) was only for the situation early on when demand 

may exceed availability. It was not meant to be a follow-up to the prioritization slide. If all goes 

well, Recommendation (2) will not be activated.

From a practical point of view, Dr. Marcy thought it was far easier to start with a smaller focused 

priority group and then expand as availability increases. From the providers’ point of view, to 

begin with a large group and then tell people they are not longer eligible would be very difficult. 

He, therefore, he would vote for the smaller group that expanded rather than a larger group that 

would have to be shrunk under certain circumstances. 

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Dr. Baker thought that using smaller groups and expanding was totally confusing. If at the 

beginning they achieved 35% uptake in the five targeted groups and the 19 to 24 years olds 

were added, that would still represent less than 50 million people. If that was doubled because 

of a need for 2 doses, that would still only be 100 million. Making so complex that the eligible 

groups change frequently is going to be problematic. There will be mismatches locally no 

matter what. The opportunity to vaccinate people has always been lost when this type of 

prioritization is utilized. Therefore, she strongly pled for the idea of Option 1 with the addition of 

the 19 to 24 year old group based on their incidence. While that group may not shed as much 

virus as young children, they certain move throughout society at a much higher rate than young 

children. 

Dr. Judson agreed with Dr. Baker. By most current assumptions, it appears that there will be a 

good match between vaccine supply and demand. What they do not want to do is lose time and 

have to start over in December or January with an expanded program. He thought they should 

get out as much vaccine to as wide a group as possible immediately. 

Patsy Stinchfield (NAPNAP) also agreed with Dr. Baker. Typically what occurs with messages 

is that the first message seems to stick the longest. Therefore, she thought it would be much 

harder to narrow and then go broad than to start broad. It takes providers and parents a long 

time to get second messages. The media wears out and moves on to other topics. Well into 

the pandemic people were still saying they never traveled to Mexico.

Dr. Morse noted that the broader group also included the school-aged population, which has its 

own logistical issues with respect to reaching large numbers of children in a limited amount of 

time. New York has a number of counties with over a million people and 60 or so school 

districts. Even if they immunized one school district a day, it would take up to 6 months to get 2 

doses in. Therefore, logistically they should not miss opportunities to reach groups. 

Dr. Birkhead (NVAC) thought it would be better to word the recommendation different than to 

say “if there is a mismatch locally,” which raises the issue of incompetence. He thought the idea 

of flexibility should be built in. For the under 5 year old age group, it would be relatively easy to 

get vaccine out through the VFC providers. School-aged children would probably take more 

planning and vaccination in that group would likely take place over a longer period of time. He 

suggested saying, “At the local level, there is flexibility in terms of which groups should be 

vaccinated in which order because there are different strategies.” That would get away from the 

implication that the supply was not being managed adequately.

Dr. Schaffner (NFID) pointed out that tight prioritization would result in vaccine being unused.

Dr. Sawyer expressed concern that if they did not initially include the 19 to 24 year old group, 

the opportunity would be lost to ever capture them. 

As a member of the Influenza Work Group, Dr. Englund was pleased that they focusing all of 

the attention on the 5 years of age to 24 year old group. However, she was not hearing much 

about the other groups and she thought they needed to determine whether there was 

agreement about the other groups. She personally very much agreed that all of the other 

groups were very important and should be included. 

Dr. Baker clarified that Option 1 includes the five initial groups and adds 19 to 24 year olds. She 

thought most of the people who said they agreed also agreed with pregnant women, children 

through 18, young adults, et cetera.

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Dr. Baker thought the recommendation included persons 19 through 24 with or without 

underlying conditions. 

Dr. Neuzil responded that they were not included in the first group. What Dr. Englund was 

speaking of were the other groups: pregnant women, household and caregiver contacts of 

children younger than 6 months of age, health-care and emergency medical services personnel, 

and persons aged 19 through 64 years who have medical conditions associated with a higher 

risk conditions. They did not believe they heard any disagreement about these groups, and 

what was up for discussion was whether it should be 6 month through 24 years versus 6 months 

through 18 years, with a change in the next bullet from 19 through 64 years to 25 through 64 

years. The point of the discussion is 18 or 24. 

Dr. Baker clarified that her initial comment was that the group should go through 24 years of 

age.

Dr. Judson noted that the 18 to 24 year olds had about half the attack rate as the 12 through 18 

year olds. After 18 it fell.

Dr. Bresee indicated that the data that compares rates up to 18 and 18 to 24 are pretty sparse. 

The work group’s consensus was that the data were sparse enough that the assumption might 

be made that the rates of disease, the rates of outcomes in the group approaching 18 and those 

slightly older than 18 were probably relatively equivalent. The EIP data shown earlier reflected 

about a 20% lower rate of hospitalization among 18 to 24 year olds compared to those 5 to 17 

years of age. There might be a step-off of risk of severe disease in the slightly older group, but 

it is probably relatively slight. 

Dr. Baker realized the data were limited. She stressed that her interest in including 19 to 24 

year olds was not because of their risk for hospitalization—it was because they are transmitters. 

Dr. Birkhead (NVAC) noted that while they were focusing on 19 to 24 years of age, the focus of 

the discussion initially was college students, which is a different and smaller group for whom 

there are already specific recommendations for meningococcal vaccine, which is probably a 

relatively easy group to vaccinate, and which is a group that already has fairly high uptake for 

seasonal influenza vaccine. The recommendation could be focused on a high risk setting for 

disease transmission in which vaccine could be relatively easy administered; that is, focus on 

college students rather than 19 to 24 year olds. 

Dr. Temte thought purely from a clinical standpoint, the discussion he had heard trying to 

smudge the borders around priority groups really rang true. Instead, an easily identifiable target 

was needed. After dealing with this in the past with other prioritizations, he thought that this 

would fall apart when actually dealing with patients. What ultimately happens is that people do 

not get vaccinated. He thought the real problem was not going to be having enough vaccine, 

but would instead be getting enough deployed. 

It seemed to Dr. Chilton that a first step might be moving to accept the recommendations up to 

age 18, and then after that they could make a supplemental motion to include the 19 to 24 year 

olds if desired. 

 

Dr. Morse inquired as to whether the intent was to vote on each recommendation separately, or 

all four together.

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Dr. Neuzil said that the work group did not envision breaking the recommendations out 

separately; however, she liked the idea because she would not want a member to vote “no” 

because they did not want to include 19 to 24 when they agreed with every other group. If this 

was done in two stages and the 19 to 24 year old group was approved, obviously the language 

would wrap it all in. 

Dr. Judson expressed concern that if they went to 19 to 24 without pre-existing conditions, they 

would lose any focus on priority targeting. It is important to remember that 75% or more of 

people who are 19 to 24 are in the regular work force and are not college students volunteering 

in daycare centers.

Dr. Ehresmann inquired as to whether the assumptions that were laid out would be 

acknowledged in the recommendations. 

Dr. Schuchat suggested that the committee consider the unadjuvanted licensed vaccine. The 

charge for ACIP was two-fold: target populations and whether there should be prioritization. 

Other decisions such as off-ramps, early fill, et cetera were under the purview of other groups. 

She thought it would be perfectly fine to state that ACIP might not recommend the same groups 

for an adjuvanted vaccine.

Dr. Neuzil reminded everyone that within the work group discussions and for the discussions 

with the full ACIP, adjuvanted vaccines were taken off the table because antigen content, 

reactogenicity, and immunogenicity could not be assumed for that. If clinical trial data become 

available, this may be reassessed in the future. However, this discussion and vote should focus 

on what is presumed will be licensed and unajuvanted.

Dr. Morse clarified that the charge to the ACIP was not to make recommendations about 

whether to vaccinate, but was rather to make science-based recommendations pertaining to 

prioritization of who should be vaccinated, based on current assumptions, in the event that a 

vaccination program moved forward. He stressed that the primary purpose was to assist state 

and local partners in their planning efforts. 

Louisa Chapman (Medical Epidemiologist, CDC) inquired as to whether it was intentional for the 

> 65 group to be left out of this recommendation. While this group may be at lower risk of 

infection, they remain at higher risk for death if infected.

Dr. Morse responded that the > 65 group would be addressed in a later recommendation.

Motion: Recommendation (1)

Dr. Chilton motioned to accept Recommendation (1) as written and to decide separately upon

the 19 to 24 year old group. Dr. Sawyer seconded the motion. The motion carried with 13 

affirmative votes, 1 negative vote, and 0 abstentions.

If the concept was that these recommendations were based on evidence, Dr. Beck inquired as 

to what the evidence was in support of 18 to 24 year old age group. 

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Dr. Morse replied that different datasets addressed this to some extent, but not completely. 

That was partially due to the differences in how the various surveillance systems categorized 

the age groups. For example, there are some data from New York, but the subset is very small. 

Thus, as usual, there is some incomplete, evolving, dated information. They must work with 

what they have. 

Dr. Neuzil added that this was a very difficult issue. Ideally, age should be a continuous 

variable to determine where a real change is made. For example, is a 64-year old that different 

from a 65-year old? This is partially an artifact of the way the data are provided. There are not 

enough numbers to assess age as a continuous variable year by year to determine the perfect 

cut point. In fact, between the ages of 19 and 24 the data are simply very limited. 

Dr. Beck replied that while he recognized this, it was the practical issue that they were being 

called to vote on something. Thus, he wanted to know what available, reliable information they 

could act on. Based on what he was hearing, it appeared that there was not sufficient 

information upon which to make a decision. 

Dr. Neuzil responded that the information they had was the small amount of information 

presented by Dr. Fiore that showed that 19 to 24 year old age group had a high incidence of 

disease, but a lower severity (e.g., hospitalization rate). In addition, other issues were raised 

that the work group considered, such as transmission.

It seemed to Dr. Baker that the most robust number they heard was that as of July 24, 2009 

there were 43,771 cases, half of which were in 5- to 24-year olds. That did not say anything 

about severity, but there were some deaths in that group—virtually all in people with underlying 

medical conditions. However, there is a major disease burden. While they did not have the 

best possible data, 19 to 24 year olds are virtually impossible to capture. College is one venue 

where they might be accessed, but there may be other locations as well. This age group 

penetrates society in service / entry level jobs, so there is likely to be a great deal of 

transmission from this group. She also thought that uptake in all of the other groups would be 

less than they hoped. 

Dr. Judson suggested that based on the data, they might as well go to 34 or 44 years of age. If 

they were calling this “targeting” or “prioritizing” they could probably only go so far and still have 

it pass any reasonable test of targeting or prioritizing. He was fine with making a universal 

recommendation first come, first served until all of the vaccine is gone.

Dr. Schuchat pointed out that another aspect which had not been mentioned was that as they 

considered the 19- to 24-year old age group, they were basically saying to consider them as a 

group rather than focus on those 19- to 24-year olds with an underlying risk factor. In general, 

people who have risk factors do not think that they have underlying risk factors (e.g., asthma, 

diabetes, other chronic conditions). This is particularly true of younger people, who do not 

believe they have risk of anything. There are issues with college attendees versus other groups 

that may have congregate settings in that age group who may not have the advantages of 

college students. Therefore, as they thought about age, setting, or risk factors, selfidentification should be taken into consideration. 

Dr. Neuzil responded that this was why the work group in general actually did not consider 

subsets of 19- to 24-year old. They liked the age because it was easy to identify.

Dr. Baker pointed out that this consisted of only 24 million people.

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As with other issues that ACIP has face, Dr. Morse pointed out that they had been asked to 

weigh the evidence and to make science-based recommendation in an area where the 

information was incomplete or still evolving. The data on burden of disease, which is an 

essential criterion decision, is still emerging in this group but suggests that on an individual 

basis it is comparable to seasonal influenza in terms of severity. However, on a population 

basis, it is more than that. It affects younger age groups and is spreading in a susceptible 

population with little immunity. As such, it has the potential for causing a large number of 

deaths merely through higher attack rates. Therefore, they must take into consideration the fact 

that on a population basis there is a potential for this spreading more widely in these age groups 

and potentially resulting in more deaths than would be expected on a seasonal basis due to 

there being so many more susceptible. 

Patsy Stinchfield (NAPNAP) noted that 19- to 24-year old travel frequently via air to and from 

home / college and abroad. Therefore, she thought the mobility of this group should be 

considered in terms of potential transmission. There is at least one paper out about the role that 

airline travel has. 

Motion: Addition of 19 to 24 Year Olds to Recommendation (1)

Dr. Sawyer motioned to add all 19- through 24-year olds to Recommendation (1). Dr. Baker 

seconded the motion. The motion carried with 13 affirmative votes, 1 negative vote, and 0 

abstentions.

Dr. Englund suggested that children with chronic medical conditions be specified as children 

less than 18 in the setting of limited supply. 

Dr. Neuzil responded that it was meant to be children younger than 19 years of age. This is a

different issue. These are the people with the highest risk for severe disease.

Dr. Sawyer requested clarification about when this recommendation is meant to come into play 

(e.g., on the local level when supply and demand at mismatched, or nationally if the early 

returns are that supply is inadequate).

Dr. Neuzil responded that there were several scenarios, and the group received many pleas 

from many organizations to help them with this by not making the recommendation so broad. 

There could be shortages at various levels. There could be a national supply shortage if the 

estimates projected were not met. They heard from local health departments and hospitals that 

if a hospital did not have a sufficient supply, but had a captured population, they needed to now 

how to prioritize. Thus, the work group offered some direction that in such a situation vaccine 

would first be given to those with direct contact.

Dr. Morse suggested moving to Recommendations (3) and (4) in the event that a vote could be 

packaged together.

Dr. Beck expressed confusion as it remained unclear whether this was intended to be a local or 

national recommendation. They said before that delivery would be wrapped up with those 

would have to do this at the local level; however, ACIP could not dictate to them. Therefore, it 

was not clear to him how this would work.

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Dr. Neuzil replied that it was intended to be flexible because more information with be 

forthcoming. If in September the national estimates were much lower, ACIP would not have to 

reconvene. They could simply state that it was time to prioritize because the contingencies 

would have already been thought through and voted upon.

Dr. Morse inquired as to whether there was an application in the individual providers office if 

faced with a limited supply.

Dr. Neuzil responded that the work group did address this issue. Certainly, there will be local 

supply / demand mismatches. Perhaps they could better word this, but the intent was to 

acknowledge that supply was not the only issue. Demand within a practice, a hospital, a 

community will be very different. 

Given that this season would be a nightmare in terms of messaging due to seasonal and 

pandemic vaccines, Dr. Baker wondered whether all of these decisions must be made 

immediately. 

Dr. Schuchat thought the set of recommendations under consideration addressed Option A, 

which was that there would not be a sub-prioritization within these groups unless circumstances 

required this. She thought they accepted this in taking the first vote. She did not think there 

was any value in delaying.

Speaking as a local / state health department representative, Dr. Ehresmann thought it was 

beneficial to have this type of information available. Regionally, across the country, and within 

states there can be differences with the supply of the vaccine. Having something in place that 

providers and public health know is available is very important in terms of reducing panic. 

Nevertheless, she appreciated the importance of the message that this was “just in case” 

contingency planning for providers only if needed. 

Patsy Stinchfield (NAPNAP) pointed out that the principle addressed in terms of how the work 

group could be most helpful was to provide guidance and be flexible. They were not prescribing 

specifically who had to implement the policy adopted by ACIP; therefore, she thought providers 

would find this to be helpful.

Dr. Fiore explained that Recommendation (2) was a follow-on from Recommendation (1) in the 

event that there was a need to prioritize within the larger target group. Recommendation (3) 

would address the next group in line when vaccination is sufficient at the local level to vaccinate 

routinely the initial target population. This would now be 25- through 64-year old. The next 

group following that would be those over age 65, emphasizing the use of seasonal vaccination 

in that group while novel H1N1 vaccination is being used in younger age groups.

Dr. Neuzil pointed out how difficult this was. The work group had to presume how much vaccine 

there would be and who would be vaccinated. Dr. Robinson provided the work group with 

estimates to enable them to do that. Based on the 120 million doses that are anticipated in 

October 2009, the work group felt comfortable with the first group everybody voted on. They did 

not feel comfortable going this far. That is, they decided against first come, first served. 

Recommendation (3) would come much later, perhaps in about November, unless more supply 

was received than anticipated. The work group based their recommendations on Scenario 1.

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Dr. Sawyer inquired as to whether the recommendations were intended to be sequential: first 

19 to 64 year olds followed by 65 and above. If sequential, he wanted further information about 

why the line was drawn here.

Dr. Fiore replied that there are more data for these age groups, and this matches fairly well with 

aggregate reporting data. There is a fairly steep drop off of incidence in confirmed cases per 

100,000 in that age group: 25 to 49 is 0.44; 50 to 64 is 0.20; and over 65 is 0.06.

Dr. Marcy noted that when he originally said he thought there should be targeted groups versus 

universal availability because it would be easier to expand, he was concerned about availability. 

At the beginning there will be plenty of availability. However, it was not clear to him at what 

point they would decide that there would not be enough availability and that cohorts should be 

limited. His concern was that availability is a “moving target.” 

Dr. Morse clarified that the initial amount available would not be sufficient to reach all of the 

groups. He agreed that it would change over time.

Dr. Marcy asked whether, when vaccine was very available at first, a physician might decide he 

or she had ample product to give it to those ages 19 to 64.

Dr. Neuzil responded that this was where they were making a distinction. The recommendation 

was for the first 150 million people. In fact, with the guidance they were given earlier in the day, 

they could essential vote on Recommendations (2) or (3) in October. The work group was 

focusing on half of the population, approximately 150 million people who should be targeted 

based on epidemiology, severity, lack of antibody, et cetera. 

Dr. Marcy thought that brought them back to Dr. Baker’s point, which was the one big message 

at the beginning.

Dr. Neuzil responded that she would say the one big message was Recommendation (1) upon 

which they had already voted.

Dr. Baker pointed out that the first bullet of Recommendation (3) needed to read “25 through 64 

years of age.” 

Dr. Ehresmann inquired as to whether Recommendation (3) was a decision that would be made 

at the local level, or if it was to be made national as an expansion. She wondered how much 

autonomy the state and local levels would be given in terms of moving to the next step.

Dr. Fiore responded that the work group feeling was that this type of decision would not be 

made at the national level unless it became clear that there was some uniformity of availability 

and demand. Some areas are likely to exhaust the number of people interested in being 

vaccinated in the initial target groups earlier than others and may move on. While it could lead 

to confusion if there were major differences across the country, he did not think a move had to 

be made to the next group on a particular date. 

Given that supplies would be tallied nationally, it was not clear to Dr. Morse whether the 

decision would be left entirely to state and local groups or whether there would be some 

national weigh in.

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Dr. Schuchat replied that the intent at this point was the pro rata allocation of doses around the 

country to state or program areas. There is likely to be variable demand in different 

communities potentially related to disease occurrences and geographic variability. She 

anticipated local decision making about extending vaccine to other groups once they had 

exhausted demand within the initial groups, for those who still had vaccine. There could be a 

point in the season during which demand in some states is exhausted, while considerable 

demand continues in other states. There could be some shift of the allocation by state to a 

process that better matches demand wherever it is. 

Dr. Schaffner (NFID) stressed that this was what he was talking about earlier, that if there was 

no longer demand in a certain area for vaccine, providers would wonder how long they had to 

keep unused vaccine waiting for people in the priority group to present. This happens every 

time there is prioritization. The only sin is vaccine left in the refrigerator. 

Dr. Judson agreed.

Reflecting on the lessons learned from 2004, Dr. Lett preferred that the language make a 

statement that offering vaccine to other groups could occur fairly soon.

Dr. Beck thought the work group did a great job giving them an idea of how prioritization would 

work out over time. However, he wondered whether they were trying to do too much during this 

meeting with too little information that they did not necessarily have to do at this point. He was 

more concerned about having a single message going out to the public that could be easily 

understood and manageable. Then as they learned more over the next several months, they 

could adjust as necessary at that time. He feared that they were putting themselves in a box 

trying to do the impossible. While he thought this was good preparation, he suggested that they 

stay with the vote they had made on Recommendation (1) and end it there at this point.

Dr. Sawyer agreed, pointing out that they were called to this meeting to prioritize—not to map 

out the entire strategy. He was also concerned that it would be confusing if they tried to include 

the whole population. Even with the rosiest projections, there would not be enough vaccine for 

the other groups before the October ACIP meeting. Therefore, he liked the suggestion that they 

take up the remainder of the recommendations in October.

Dr. Englund agreed that Recommendation (3) could wait; however, she believed that 

Recommendation (4) needed to be voted on during this meeting. 

Dr. Morse inquired as to whether tabling Recommendation (3) would affect production.

Dr. Robinson replied that it would not have any impact. While BARDA will review the numbers 

ACIP recommended, they would continue as if they were going to immunize hundreds of 

millions of people until they found that the demand did not meet that. 

Dr. Neuzil pointed out that the work group’s thinking was also that they did not want vaccine left 

in the refrigerator. The first group through 24 years exceeds the October supply and represents 

somewhere above half the population. The work group presumed lower than 100% coverage. 

This is a generous first recommendation. 

Dr. Baker motioned to accept the Recommendation (4) as written. Dr. Judson seconded the 

motion. No vote was entertained at this time as discussion continued.

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Dr. Schuchat indicated that planning scenarios had been issued to states so that they could 

determine how they would reach possible populations. States are looking to ACIP for clarity or 

more specificity in their planning. She thought one issue that was emerging was the difference 

between the general adult population with an underlying condition and the general adult 

population that does not likely have such a condition. For planning purposes, she suggested 

differentiating using providers’ offices for those with underlying conditions from occupational 

settings, pharmacies, retail settings, et cetera. It was not clear whether public health 

representatives would be comfortable putting off a decision until October, given that it may limit 

the ability to enroll providers, pharmacies, other private sector partners, et cetera. 

Dr. Morse indicated that it would affect New York’s planning as they would be left in limbo in 

terms of whether to go forward or gear up for the population in the mid age groups, and also in 

terms of the prioritization if there was a fall-back, if for some reason there were only 20 million 

doses that would be exhausted in the first two months.

Dr. Lett also did not believe planning could wait until October. She thought it would be much 

easier to tell people that they could basically take all-comers after prioritizing certain groups in 

the beginning. If they keep asking providers to hold clinics over and over, there will be clinic 

fatigue, particularly following early seasonal clinics.

Dr. Ehresmann agreed that in terms of planning purposes states were in a vacuum of 

information. She thought the more information they could give states, the better. Therefore, if 

the group felt it was possible to vote on all four recommendations during this meeting, that 

would be the best option from a planning perspective.

Dr. Campos-Outcult (AAFP) thought they would have to say something about the other two 

groups (e.g., healthy 24 to 64 and those over 65). If they say nothing, there would be an 

unknown about whether to vaccinate these groups. He also thought they needed to prioritize in 

a certain way. Those 65 and above were the last priority, but in a normal year they would be at 

the top of the priority list and are used to presenting early for their shots. They will present early 

for their seasonal flu shots and will want to know why they cannot also receive the H1N1 

vaccine as well. Some thought should be given to that; however, they should not receive the 

H1N1 vaccine right away because they will use up all of the vaccine. The issue must be 

addressed in some way.

Dr. Temte indicated that AAP and AAFP convene their annual scientific meetings in early to mid 

October before the next ACIP meeting. Therefore, he thought it was important to reach 

resolution. In terms of what had been decided so far, age is simple to identify clinically and 

through data systems, immunization registries, electronic medical records, billing data base, or 

vital records. Thus, it should be fairly easy for systems to quickly enumerate what their need 

could be. The rest is fairly easy to identify through ICD-9 and CPT coding. 

For Recommendation (3), Dr. Englund recommended amending the terminology to read, “When 

vaccine availability is sufficient at the local level, in consultation with state and local health 

departments, to routinely vaccinate . . .” to have consistency at the local level. She also 

recommended voting on Recommendations (2), (3), and (4).

This was not acceptable to Dr. Baker. 

This was also not acceptable to Dr. Judson, who thought that each recommendation should be 

voted upon separately.

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Dr. Baker indicated that she would be willing to amend her motion for Recommendation (4) to 

include Recommendation (2).

Dr. Morse suggested that since Recommendation (4) seemed to be universal, it made sense to 

vote on it separately.

Motion: Recommendation (4)

 

Dr. Baker motioned to accept Recommendation (4) as written. Dr. Judson seconded the 

motion. The motion passed unanimously with 14 affirmative votes, 0 negative votes, and 0 

abstentions. 

Motion: Recommendation (2)

Dr. Ehresmann motioned to accept Recommendation (2) with an amendment to revise the last 

bullet to read, “Children less than 19 years of age with chronic medical conditions.” Dr. Baker 

seconded the motion. The motion passed unanimously with 14 affirmative votes, 0 negative 

votes, and 0 abstentions. 

 

Dr. Ehresmann motioned to accept Recommendation (3) with an amendment to the first bullet to 

read, “When vaccine availability is sufficient at the local level, in consultation with state and local 

health departments, to routinely vaccinate initial target populations, vaccination against novel 

influenza A(H1N1) is recommended for healthy adults aged 25 through 64 years old” and to 

correct the typographical error in the second bullet to read, “Vaccination of persons aged 65 or 

older . . .” 

Dr. Schuchat thought it would be helpful if the committee was going to vote to separate 

Recommendation (2) into two votes, given that the phrasing of the second bullet included some 

conditionality. 

Dr. Neuzil thought it was important for people to understand the intent of the work group. While 

the language may not be precise, based on the supply data the intent was to have a large first 

group. This was sequential. Only if needed (e.g., very early pandemic wave, very limited 

supply, highly increased severity, et cetera) would the first group be taken down to the 40 

million. The work group was looking at this incrementally. In the very first work group call, it 

was agreed that if there were no supply issues and no roll out of supplies, they would be 

recommending vaccinating everyone. However, that was not the work group’s charge and that 

was not what they were told to do. That would also not be particularly helpful at the local and 

state levels. 

Dr. Ehresmann indicated that she was flexible about breaking up the recommendation, but 

because these were important issues and the hour was getting late, she wanted to ensure that 

they covered everything.

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Dr. Schuchat pointed out that much of the discussion had been about supply and risk of 

disease. Because there is not information about these particular vaccines, safety was taken off 

the table. However, people were discussing programmatic issues. When this vaccine goes into 

large numbers of people, things will happen to those people, some of which will be random and 

some of which will be vaccine-associated. Bad things happen more frequently to people 65 and 

older that may or may not be vaccine-related. Therefore, as they thought about a program that 

differed from seasonal influenza and tried to institute as good a safety monitoring and 

communication system as possible, it would be worth considering the challenges of interpreting 

signals in the elderly. This has been a challenge in the past. 

With that, Dr. Ehresmann suggested dividing the motion.

Dr. Sawyer did not believe they could separate the two groups. Making a recommendation on 

25 to 64 and remaining silent on 65 and above made no sense. He preferred that they remain 

silent on this entire recommendation until they received further information, with the recognition 

that they would have time to do so in October.

Dr. Ehresmann clarified that her intent was to march through these systematically so that they 

could have a discussion on all of them during this meeting, but break it up in case there were 

problems with the linkage. 

Dr. Judson agreed that this recommendation should be for healthy adults older than 25 and that 

they not use an arbitrary cut off that was not supported by any data seen so far—that they be 

offered vaccine if they want it. He suggested that this vaccine and this virus are next year’s 

seasonal flu. Hopefully they would not be having this discussion next summer.

Dr. Neuzil clarified that the work group discussed this recommendation with many liaison 

representatives, and felt that it was worth splitting out based on the epidemiology and antibody 

data reviewed. Both groups may ultimately fall into the category, but the work group did believe 

that there was evidence to support dividing these.

Dr. Judson noted that the cut off was not 65. It was born after 1950.

Motion: Recommendation (3a)

Dr. Ehresmann motioned to accept the first component of Recommendation (3a) with an 

amendment to read, “When vaccine availability is sufficient at the local level, in consultation with

state and local health departments, to routinely vaccinate initial target populations, vaccination 

against novel influenza A(H1N1) is recommended for healthy adults aged 25 through 64 years 

old.” Dr. Lett seconded the motion. The motion passed with 8 affirmative votes, 6 negative 

votes, and 0 abstentions. 

 

Dr. Lett suggested that Recommendation 3b be worded in the same way as 3a with the phrase 

“in consultation with state and local health departments.” 

Dr. Schaffner (NFID) could not imagine how this could be operationalized from the point of view 

of public health or clinicians—the distinction in a sequence of events. Life is too chaotic for that. 

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Dr. Seward wondered whether it would be easier to implement if all of the recommendations 

were simply put into a list in sequential order.

Dr. Lett said she fluctuated between the need for prioritization and not wanting vaccine to go 

wasted. What Dr. Seward was suggesting offered people a framework within which to think 

about the issues in the beginning while they wait to better understand supply and demand.

Dr. Pickering said the issue was that when vaccine is available it should be utilized. The 

question regarded whether (3b) was sequential or simultaneous to (3a).

Dr. Neuzil stressed that they had a first group of 160 million potential vacinees. Now they were 

deciding whether there should be a second group of everybody else, or there should be two 

more incremental groups.

Dr. Ehresmann clarified that they already voted for the 25 to 64 year old age group, and now

they were simply wrapping it up to say that the final group would be 65 and older.

Dr. Englund motioned to accept Recommendation (3b) revised as follows, “When vaccine 

availability is sufficient at the local level, in consultation with state and local health departments, 

and initial target populations and healthy adults less than 65 years of age have been routinely

vaccinated, vaccination against novel influenza A(H1N1) is recommended for persons age 65 

and older,” with the rest of this recommendation to remain the same. Dr. Ehresmann seconded 

the motion. 

Dr. Neuzil thought she was hearing people say that at the same time it was rolled out in 25 to 64 

year olds, it could be rolled out in 65 or older. The original intent of the work group, based on 

the planning assumptions, was for this recommendation to be sequential. The planning 

assumption was that there would be a pandemic wave before there was ample vaccine. That 

was the task that the work group was asked to address. 

Dr. Lett thought that from a practical point of view, they would not want to turn people away. For 

example, grandparents or parents may want to be vaccinated along with a child in a public 

venue. She was concerned that too much emphasis was being placed on sequential 

vaccination.

Dr. Ehresmann pointed out that it was important to consider that because these decisions could 

be made at the local level, it may be the case that a local venue may decide to implement (3a) 

and (3b) closely or simultaneously. This would not preclude simultaneous administration to 

these two groups, but it would leave it sequential should there be issues requiring a particular 

order. 

To consider a compromise between the need to prioritize and the desire not to turn people 

away, Dr. Duchin (NACCHO) inquired as to whether the group would consider amending the 

first bullet to read, “When vaccine availability is sufficient at the local level, in consultation with 

state and local health departments, vaccine is recommended for healthy adults aged 25 and 

older.” This way there would be only two major stratifications and people could use their own 

judgment about how they apply the recommendation. 

With regard to the recommendation for those 65 and older, Dr. Fiore pointed out that the way it 

was phrased was deliberately softer for that group. The idea was that it should be 

recommended for the 25 to 64 year old group, but the idea was to offer it to 65 and older but to 

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focus on seasonal vaccine for the short-term. The data are unclear in terms of whether that age 

group will need the pandemic vaccine or will benefit from it.

Dr. Symaya thought they were losing track of the main purpose of the emphasis of the target 

groups by bringing in other groups at this time under (3a) or (3b). He thought that this would 

simply add more confusion.

Dr. Englund stressed that the reason for having the 65 or older age group was based on the 

epidemiology, with a significantly lower attack rate incidence of confirmed influenza of 0.06 per 

100,000. This was based on data.

Drs. Englund and Ehresmann withdrew their motion to accept Recommendation (3b) revised as 

follows, “When vaccine availability is sufficient at the local level, in consultation with state and 

local health departments, and initial target populations and healthy adults less than 65 years of 

age have been routinely vaccinated, vaccination against novel influenza A(H1N1) is 

recommended for persons age 65 and older,” with the rest of this recommendation to remain the 

same. 

Motion: Recommendation (3b)

Dr. Englund motioned to accept Recommendation (3b) revised as follows, “Vaccination should 

be offered to persons aged 65 or older once vaccination programs are capable of meeting 

demand for vaccination from younger age groups. The recommendation to offer vaccine to 

persons aged 65 or older might need to be reassessed as new epidemiologic, immunologic, or 

clinical trials data warrants and in the context of global need for novel H1N1 vaccines. 

Vaccination with seasonal vaccine should be encouraged and should begin as soon as 

seasonal vaccine available for persons aged 65 or older.” Dr. Ehresmann seconded the motion. 

The motion passed with 11 affirmative votes, 0 negative votes, and 0 abstentions. 

 

Discussion

I hereby certify that to the best of my 

knowledge, the foregoing Minutes of the 

July 29, 2009 ACIP Meeting are accurate 

and complete: 

_____________________ 

 Date ________________________________

 Dale Morse, M.D., M.S. Chair,

 Advisory Committee on 

 Immunization Practices (ACIP)

Certification

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Discussion

Non- US Citizens

Bablani Pankaj India

Butt Tausif United Kingdom

Chu Susan United Kingdom

Dekonor Emmanuella United Kingdom

Djalo Mamadu Guinea-Bissau

Edelman Laurel Canada

Florez Jorge Colombia

Galacho Campoy Juan Miguel Spain

GENTILE ANGELA Argentina

Ismail Shainoor Canada

Kamiiya Hajime Japan

Lagos Rosanna Chile

Landry Monique Canada

Law Barbara Canada

Mike Unyime Anthony Nigeria

Muñoz Alma Chile

Naus Monika Canada

Omer Saad Pakistan

Raina Ajit pal Singh India

Romano-Mazzotti Luis Mexico

Schuind Anne Belgium

Sever Perica Canada

Shindman Judith Canada

Tan Litjen Singapore

York Laura Canada

US Citizens

Abramson Allison United States

Adirim Terry United States

Ambrose Christopher United States

Arnold Kate United States

Arthur Phyllis United States

Ault Kevin United States

Baggs James United States

BAILOWITZ ANNE United States

Baker Carol J. United States

Bandell Allyn United States

Bardenheier Barbara United States

Baylor Melisse United States

Beck Robert L United States

Begley Anne Marie United States

Birkhead Guthrie United States

Blankas-Hernaez Nida United States

Bocchini, Jr. Joseph United States

bonita betty United States

List of Attendees

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Bova Bernice United States

Brace Sherry United States

Bradfield Debi United States

bradley sharon United States

Bravo-bonilla jose United States

Brent Patricia United States

Brewer Katherine United States

Buchanan Anna United States

Buchanan Martha United States

Buehler James United States

Burkholder Brenton United States

Bush Kim United States

Cadaret Ken United States

Cameron-Sayre Paula United States

Campos-Outcalt Doug United States

Cannon Patricia United States

Capriotti Linda United States

Carey Kathy United States

Cary Donna United States

Casasanto Peter United States

Chaney Mike United States

Cheek James United States

Chilton Lance United States

CHISHOLM DENISE United States

Chuan Yuan United States

Clover Richard United States

Cochrane Donna United States

Coelingh Kathleen United States

Coit Rennie United States

Colwell Chris United States

Cooney Lenore United States

Copeland Julie United States

Cuomo-Whitney Susan United States

Daborowski Nancy United States

Dalrymple Donald "Dack" United States

dayton lilyan United States

DeGrasse Enjoli United States

DeGregorio Margaret United States

Dennis Betty United States

DeNoon Daniel United States

Dinovitz Richard United States

Drews Judy United States

Dubin Gary United States

Duchin Jeffrey United States

Dunn Kaye United States

DuVall Sarah United States

Dzubin Shannon United States

Ehresmann Kristen United States

Englund Janet United States

Etkind Paul United States

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Evans Geoffrey United States

Evans Jim United States

Farley Jim United States

Felice Pamela United States

Ferraro Ralph United States

Filipski Brian United States

Fischer Neal United States

Fix Amy United States

Friedland Leonard United States

Frost Phillip United States

Fuller AManda United States

Gargano Lisa United States

Garrett W. Matthew United States

Geddes Cathy United States

gensheimer kathleen United States

Gorman Richard United States

Greenberg David United States

Grimm Sandy United States

Gurunathan Sanjay United States

haber penina United States

Hachey Wayne United States

Hadley Jennifer United States

Hage Raymond United States

Halsey Neal United States

Hammer Sandra Jo United States

Hannan Claire United States

Harshman Robert United States

Hay Kelly United States

Haywood Regina United States

Heaton Penny United States

Herrera Guillermo United States

Hitt Emma United States

Hosbach Philip United States

Howe Barbara United States

Hsiao Jane United States

Hughes Michael United States

Innis Bruce United States

Jackson Kimberley United States

James Andrea United States

Jolly Tilman United States

Jones Marolyn United States

Juan Sempertegui United States

Judson Franklyn United States

Kalish Scott United States

Kanesa-thasan Niranjan United States

kasparian loucine United States

Keyserling Harry United States

Khan Farid United States

Khoury Peter United States

Kingsley Mary Lee United States

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Kinsinger Linda United States

Knorr Alberta United States

Kroger Andrew United States

Kudis Amanda United States

Laird Susan United States

Lancaster Karen United States

Lance Judy United States

Lavelle Tara United States

Lee Houghton United States

Lett Susan United States

Lewin Clement United States

Lorick Suchita United States

Lovell Ethan United States

Malinoski Frank United States

Malone Robert United States

Marcy S Michael United States

Marill Michele United States

Marlowe Steven United States

Mason Dean United States

Matthews James United States

Mazur Marie United States

McDevitt Sue Ann United States

McFarland Jeffrey United States

McKenna Maryn United States

Medley-Lane B. Sue United States

meeker charlie United States

Meissner Cody United States

Michaels Jacqueline United States

Miller Marie United States

Miller Mike United States

Moore Kelly United States

Morita Julie United States

Morse Dale United States

Muhammad Riyadh United States

Mulligan Mark United States

murphy linda United States

Neale Todd United States

Netoskie Mark United States

Neuzil Kathy United States

Nuzzo Jennifer United States

Owen Bill United States

Paradiso Peter United States

Peeler Kelly United States

Peterson Diane United States

Pietroski Nancy United States

pillsbury patton carol United States

Poland Gregory United States

Provost Denise United States

Puch Alan United States

Rathore Mobeen United States

This document has been archived for historical purposes. (8/1/2009) 

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Advisory Committee on Immunization Practices (ACIP) Summary Report July 29, 2009

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Ray Jill United States

Redwood Lyn United States

Reeves-Hoche MK United States

rennels margaret United States

Rhodes Brenda E. United States

Richards Steve United States

Roehm John United States

Rousculp Matthew United States

Rowe-West Beth United States

Rozen-Adler Nuphar United States

Sawyer Mark United States

Schaffner William United States

Schell James United States

Schoenstadt Lorraine United States

Schuchat Anne United States

Scott Laura United States

Seib Katy United States

Shelton Jerry United States

Sherman Alli United States

Shiff Jeffrey United States

SIEVERT ALAN United States

Steber Christian United States

Stobbe Michael United States

Stoddard Jeffrey United States

Strikas Raymond United States

Stuerke Stacy United States

Sumaya Ciro United States

Sun Wellington United States

Sylvester Gregg United States

Talley Sandra United States

Tammi Stacy United States

Tasker Sybil United States

Temte Jonathan United States

Thomas Lonnie United States

Thomsen Pamela United States

Townsend Tiffany United States

Trigg Monica United States

Trizzino John United States

Tsai Theodore United States

Turner James United States

Turski Theresa United States

Uzzalino Sandra United States

Van De Velde Steve United States

Vaughn David United States

Vaupel Christine United States

Vigliarolo Peter United States

Wallace Fred United States

Warner Amy United States

Watson Diane United States

Wexler Deborah United States

This document has been archived for historical purposes. (8/1/2009) 

https://www.cdc.gov/vaccines/acip/meetings/downloads/min-archive/min-jul09-508.pdf
Advisory Committee on Immunization Practices (ACIP) Summary Report July 29, 2009

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Whitney Ellen United States

Wichser Colleen United States

Williamson Donald United States

Yamauchi Terry United States

Young Collette United States

Yu Hongjie United States

Yuan Chuan United States

Zimmerman Richard United States

This document has been archived for historical purposes. (8/1/2009) 

https://www.cdc.gov/vaccines/acip/meetings/downloads/min-archive/min-jul09-508.pdf