暨 南 丝 路 快 报

全球医疗健康动态汇编第 101 期

23/05/2022

目录

特别专题：疫情治理 01

·进入疫情平稳期的香港：清零还是共存？

·西方国家防疫策略转变中的政治与结构性因素

（The Role of Politics and Access in Changing Western Strategies to COVID-19 Measures）

经贸投资动态 38

公共政策动态 48

智库学界评论 60

主编

陈定定

执行主编

余卓朋

编辑

李 帆 余洁璐 顾珺楠

张启平 孙安迪 黄淑怡

排版

马文鲜

《全球健康医疗动态汇编》由

暨南大学国际关系学院/华侨

华人研究院/21 世纪丝绸之路

研究院/海国图智研究院联合

出版，对全球公共卫生事务和

医疗健康政策经济进行整合，

并在每期设置专题，通过撰写

有价值的原创文章和论文编译

对热点事件进行追踪。以通过

多方面的公共卫生研究，为全

球的健康协作治理提供多样化

的思路，并为读者提供更加客

观、更具时效性的资讯与分析。

《全球健康医疗动态汇编》由

暨南大学国际关系学院/华侨

华人研究院/21 世纪丝绸之路

研究院/海国图智研究院联合

出版，对全球公共卫生事务和

医疗健康政策经济进行整合，

并在每期设置专题，通过撰写

有价值的原创文章和论文编译

对热点事件进行追踪。以通过

多方面的公共卫生研究，为全

球的健康协作治理提供多样化

的思路，并为读者提供更加客

观、更具时效性的资讯与分析。

海国图智研究院

2022 年春季以来，新一轮疫情席卷中国香港和上海，

也引发国际社会对于区域防疫政策的讨论。本期杂志

设置特别专题【疫情治理】，讨论香港第五波疫情治

理背后的“清零”与“共存”之争，并就美国和欧洲

国家防疫政策转变背后的政治与结构性因素展开深入

分析。资讯汇编系列包括经贸投资动态、公共政策动

态及智库学界评论，引领读者开启对近期全球公共卫

生热点问题的深度探索。

全球健康医疗动态汇编第 101 期

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全球健康医疗动态汇编第 101 期

海国图智研究院

进入疫情平稳期的香港：清零还是共存？

作者：李帆 审校：余卓朋

海国图智研究院

海国图智研究院

全球健康医疗动态汇编第 101 期

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2022 年，香港新一波疫情来势汹汹。根据香港卫生防护中心的数据，截至 2022 年 4 月 30 日，累

计报告新冠感染者 745720 例，累计死亡人数 9085 例，病毒散播至全港各区 [1]。鉴于此前香港已

经经历过四次疫情起伏，此次病毒的大范围传播和感染人数的大规模增加被视为第五波疫情。

2021 年 11 月，香港报告了第一例 Omicron 突变株的感染病例，政府逐步采取多项措施严密管控

并获得不错效果；截至 2022 年 1 月底，香港因新冠肺炎疫情死亡的总数也只有 205 人。然而，随

着 Omicron BA.2 成为主要变异株，这些举措疲态尽显：两个月后，死亡人数骤增为 7945 且仍在

持续上升中 [2]。截至 4 月 19 日，香港疫情的病死率约为 0.7％，明显高于许多国家（如美国的新

冠病毒病死率也只有 0.4％）[3]。但其实，自 3 月 26 日单日新增降至四位数后，确诊数一直保持平稳；

4 月 15 日，香港单日新增个案进一步回落至三位数，此波疫情渐趋平缓。

早在第五波疫情急剧爆发时期，就曾出现一些关于香港防疫策略的社会讨论。行政长官林郑月娥对

此公开表示，讨论选择“动态清零”（Dynamic zero）还是“与病毒共存”（Living with covid）

的防疫策略为时过早，香港的政策重点应是尽可能控制疫情，降低确诊数和疫情危害。现阶段，第

五波疫情基本处于可控阶段，是时候重新提出对未来香港防疫策略的讨论。此外，自 2019 年底新

冠肺炎疫情爆发以来，随着新冠毒株的持续变种，全球疫情不断反复 , 疫情防控步入常态化。2022

年 3 月 30 日世界卫生组织（World Health Organization, WHO）发布了应对新冠疫情的最新方案

《战略预备、准备和相应计划》（Strategic Preparedness, Readiness and Response Plan to End

the Global COVID -19 Emergency in 2022）, 列出一系列关键战略计划与调整，并表示如果各国家

地区能够落实这些举措，全球有望在 2022 年结束疫情的紧急阶段 [4]。虽然该方案在结束新冠疫

情方面存在目标共识，但就目前来看，各国选择的路径并不相同，大部分国家已经在不同程度上接

受并适应“与新冠共存”的现实，而中国仍坚持清零政策（Zero-Covid Ppolicy）[5]。在上述两方

面的背景下，关于“清零”还是“共存”的讨论具有紧迫性与现实性。

海国图智研究院

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全球健康医疗动态汇编第 101 期

海国图智研究院

一、第五波疫情：产生与结果

香港第五波疫情期间每百万人的累计确诊病例数与累计死亡人数（2022.1.31-2022.4.19）

图源：Our World in Data

https://ourworldindata.org/coronavirus#explore-the-global-situation

https://ourworldindata.org/coronavirus#explore-the-global-situation

自第五波疫情爆发以来，关于疫情爆发原因的探讨层出不穷，其中疫苗接种与医疗系统是被普

遍提到的关键因素。

首先，老年人疫苗接种率低是此轮疫情爆发的主要原因。截至 2022 年 2 月底，香港养老院

的老年人疫苗接种率只有 15％，普通社区的老年人接种率也仅为 45％，与此相比，新加坡大约有

95％的老年人接种了疫苗 [6]。因此，即使 60 ～ 69 岁、70 ～ 79 岁和 80 岁以上群体仅占香港总

人口的 14.5％、7.6％和 5.4％，他们却分别占到住院病例的 13.5％、20.9％和 51.4％，以及第五

波疫情中死亡人数的 8.4％、16.6％和 70.8％。换言之，第五波疫情中 85.8％的住院病例和 95.8％

的死亡病例都来自以上三个年龄段的老年人群，且约 90％的死亡病例并未完成两剂疫苗的接种 [7]。

这一现象的根本原因可归结于疫苗接种在香港的高度政治化。公众普遍缺乏对政府的信任，认为香

港推行疫苗接种是来自大陆的“任务”，在媒体的发酵下，地区舆论整体偏向抹黑疫苗，增加了年

老体衰的高龄人群接种疫苗的被动性；在接种实践中，社区组织与议员网络在现有的政治架构中作

用微弱，缺乏动员公众参与大规模疫苗接种的外部环境；这导致许多老年人接种疫苗的主要渠道是

家庭医生或养老院，而舆论环境又使得这些媒介在该问题上态度保守谨慎。诸多因素共同发酵阻碍

了老年人甚至整个香港地区的疫苗接种进度 [8]。

海国图智研究院

海国图智研究院

全球健康医疗动态汇编第 101 期

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香港特别行政区不同年龄段的病死率 (2021.12.31-2022.4.6)

图源：South China Morning Post

https://www.scmp.com/news/hong-kong/health-environment/article/3173698/why-hong-kongs-coronavirus-death-rate-sohigh

其次，紧缺的医疗资源与不合理的医疗体系是此轮疫情大规模蔓延的重要原因。在第五波疫情

之前，香港整体感染率不高，医疗资源尚且能够满足防疫需求，通过坚持“早发现、早隔离、早治疗”

的遏制策略，成功渡过了前几轮疫情。但 Omicron BA.2 突变株是目前所有 SARS-CoV-2 毒株中传

染性最强但致病性最低的，在香港第五波疫情中，超过 99.9％的 Omicron BA.2 感染病例无症状或

轻度表现。因此，之前的种种政策不再符合 Omicron BA.2 的调性。一方面，香港本身人口密度大，

大部分民众居住空间较小，而部分房屋对排污和通风管道的改装又导致空气流动性差，因此病毒

很容易散播 [9]。另一方面，即使大部分患者病情轻微，并不需要特殊的医疗护理，但仍旧出于预

防的考虑选择住院；而且第五波疫情爆发初期缺乏合理的风险评估和分诊系统，甚至将已经康复、

但核酸检测再次阳性的人重新召回医院，进一步挤兑了医疗资源。因此，自第五波疫情开始以来，

虽然重症患者及 ICU 患者总数均在 300 人以下，但错误的决策和资源配置仍旧造成了大量的医疗

浪费 [10]。

不断危急的疫情形势迫使香港逐步转变其先前的防疫策略，在内地指导下开始采取全员强制核

检、严防输入个案、收紧社交距离、提升疫苗接种等措施，将抗疫重点转向“三减三重一优先”，

全力减少死亡、减少重症、减少感染；处理一些重点人群、重点场所、重点机构；以长者为优先 [11]。

并建立分层分流治疗机制，在公立医院设立第一层、第二层治疗重症危症的新冠病人，其他轻症患

者分流到社区治疗设施、长者暂托中心；同时紧急引进两款新冠口服药物，提高治疗能力 [12]。

海国图智研究院

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全球健康医疗动态汇编第 101 期

海国图智研究院

伴随着防疫政策的调整与完善，Omicron BA.2 引发的第五波疫情在进入 3 月中旬后出现缓和

迹象。在 2022 年 3 月 21 日举行的抗疫记者会上，特首林郑月娥表示将于 4 月 1 日起取消 9 个国

家的“禁飞令”（英、美、法、加、澳、印、菲、尼泊尔、巴基斯坦）；4 月 21 日起，分三个阶

段逐步放宽社会防疫措施。根据政府公布的计划，第一阶段，公众地方群组聚集上限人数将放宽至

4 人；餐饮处所可恢复晚市堂食至晚上 10 时，每桌最多 4 人；重开康乐及文化事务署辖下体育场所、

博物馆、表演场地和图书馆等，但酒吧和酒馆须继续关闭。第二阶段，餐饮处所提供堂食时间延至

午夜 12 时，每桌人数上限增至 8 人，酒吧和酒馆等可重开。第三阶段，针对处所和顾客人数的限

制会尽量放宽，只执行佩戴口罩、限聚人数、使用“安心出行”和“疫苗通行证”等基本防疫要求 [13]。

这些举措很大程度上是出于提振经济的考虑。较前几次，第五轮疫情中对社交距离的限制时间

更长、程度更深、范围更广，对香港的经济冲击更大。根据香港统计局 3 月份的数据，香港的劳

动力市场正承受庞大压力：截至 2022 年 2 月底，失业率急升 0.6 个百分点至 4.5％，失业人士大

增 16.8％，而就业不足率（Underemployment rate）也从 1.8％上升到了 2.3％ [14]。同时，明

确的防疫路线图也能够鼓舞香港的抗疫士气。不过，香港大学医学院却对此表示，如果按照政府公

布的时间表放宽社交距离并假定 6 月 1 日起全面开放，第六波疫情高峰或许会在 6 月首个星期左

右出现，届时香港将再增加约 220 万的感染者 [15]。港大医学院院长梁卓伟同时也表示，香港在

社区未清零背景下放松社交措施必会引起疫情反弹，因此，理应在放宽社交距离措施之前，决定香

港未来的抗疫路线，选择“清零”抑或“共存”[16]。

二、防疫新路线：清零或共存

1. 清零与共存，各为何意？

清零与共存并非二元对立的立场，在清零与共存这一轴线上，针对共存时间、清零手段、共存

方式等各个问题的不同观点，存在迅速共存、渐进共存、先清再存、严格清零等多条具体的防疫路线。

在香港的防疫语境下，所谓“清零”，主要指回到第五波疫情之前的“动态清零”状态，秉

持“早发现、早报告、早隔离、早治疗”的原则，通过“外防输入”、“内防反弹”的防控举措，

隔离最后一位感染者，不让疫情在当地“生根”，并斩断其疫情传播链。实践中，需要政府制定

更为灵活的防疫政策，更严格地管控机场和酒店等地、开展全员核酸检测、合理安排新增感染者、

密接者及次密接者、缓和公众情绪、控制经济下滑。所谓“共存”，则是强调在“减重症、减死亡、

减医疗负荷”三大原则下，强化治疗能力和医疗水平、提高疫苗接种率，使市民在可控情况下产生“自

然免疫”，从而将疫情引向“风土病”方向，但同时也需要考虑到病毒再次变种所带来的危害 [17]。

海国图智研究院

海国图智研究院

全球健康医疗动态汇编第 101 期

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2. 科学与社会，如何决策？

公共卫生事件不但涉及生物学、生命科学等自然科学问题，而且也事关个人与国家之间的关系

以及社会中权力和资源分配等社会科学问题 [18]，因此，应对公共卫生事件理应考虑多层面因素后

选择最优解。尤其是面对新冠肺炎疫情这类国际公共卫生紧急事件（Public Health Emergency of

International Concern，PHEIC），更应该在结合当地情况、参照各地形势及平衡科学建议与社会

代价后，做出理性的策略选择。

许多医学专家都表示，在科学层面，“清零”与“共存”的策略选择只是时间早晚的问题：由

于新冠病毒会长留于世，因此选择“清零”只能是中转站，只有“共存”才是防疫的终点站 [19]。

首先，从生物学角度来讲，新冠病毒是一种动物宿主导致、能够快速和广泛传播的呼吸道病

毒，无法消灭或根除，所以彻底清零的政策并不符合病毒的生物学原理，反而还会损耗大量社会

资源 [20]。其次，通过“群体免疫”、“接种疫苗”以及“保持预防”等手段，人类有可能实现

与病毒的共存。最早出现的“共存”主张相信新冠感染者产生的抗体可以赋予自身强大而持久的

免疫力，从而使人类通过“群体免疫”（Herd Immunity）与新冠“共存”；但后来研究表明，无

论是过去感染过新冠的人还是以及完全接种疫苗的人都无法完全对新冠病毒免疫 [21][22]。美国疾

控中心曾经分析了 10262 个已经接种两针疫苗但是仍然感染新冠的“突破感染”（Breakthrough

infections) 病例，发现其中 27％无症状，10％病情严重到需要住院治疗，另有 2％死亡，且死亡

群体中年龄中位数为 82 岁 [23]。此外，疫苗所提供的抗感染保护也会随着时间的推移而减弱，因此，

我们理应在“保持预防”的同时追求与新冠病毒的“共存”，以确保整个社会的安全、开放 [24]。

另一方面，现有清零政策不够合理，侧重于关注感染数量而未能根据不同的感染症状提出相应

的防范措施，这也恰恰解释了为何第五波疫情中在港老年人群体成为最大的“受害者”，毕竟老年

人是最有可能成为重症患者的群体。在整个中国范围内，疫苗接种存在严重的年龄断层：88％的

公民已经完全接种了新冠疫苗，但在 80 岁及以上的公民中，只有半数接种了两针，五分之一的人

接种了加强针 [25]。但是，如果能够调整现有清零政策，结合香港的抗疫经验，通过快速抗原检测、

居家抗疫等新手段弥补政策缺陷，在科学层面坚持“动态清零”也并非不可能实现 [26]。

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全球健康医疗动态汇编第 101 期

海国图智研究院

3、香港该如何选择？

对香港政府来说，更值得关注的问题可能是“清零”与“共存”之争所外溢出的一系列社会经

济问题。在宏观政策层面，这种争论被复杂化为政治制度之间的矛盾 [27]。“动态清零”的政策

实践需要集中的社会管控力和制度执行力，使得政府能够通过相对较低的社会成本和经济代价维持

“动态清零”的状态。然而，香港具有不同于内地的治理体系、治理架构以及治理能力，使得特区

政府难以有力掌控社会资源。比如，当第五波疫情在社区规模性的爆发时，香港就曾出现医疗资源、

生活物资、公共服务等领域的资源挤兑现象。此外，第五波疫情末期正值香港行政长官换届选举，

北京方面的态度对此时的香港至关重要。“动态清零”是北京方面给予的政策导向，也是香港政府

的态度展现 [28][29]。

在社会舆论层面，相比于“动态清零”，追求“共存”在香港有着更为广泛的社会认同。在

受西方影响的香港文化背景下，“动态清零”对数据、信息的要求意味着公众对隐私权的部分让

渡，对戴口罩、核酸检测的强制要求则意味着对自由权的部分让渡，这些举措都会被部分公众视

为对其人权、自由的亵渎。香港民意研究所（Hong Kong Public Opinion Research Institute，

HKPORI）2 月初公布的一项基于 7000 名 12 岁以上市民的网上民意调查结果也显示，57％的受访

者认为“与病毒共存”的抗疫策略更适合香港，只有 32％的受访者认为香港应该“动态清零”，

其余的 11％受访者则表示“不清楚”或“不确定”[30]，这亦能反映出香港民众对政策执行的支

持情况。

在经济发展层面，严苛的疫情管控可能使香港经济持续受到冲击，但整体影响并不明显。一方

面，经济不平等现象将更为突出，贫富差距进一步拉大。这是由于香港的经济可分为本地经济和依

托于香港本土以外的经济两部分，且主要由后者支撑；而疫情的不断爆发对后者的冲击却更为猛烈，

尤其是对其中的基层经济。与外地访客有关的基层经济会因为严格的入境管控措施和迟迟难以开

放的通关难以为继，而金融等精英经济则可以通过线上办公规避疫情影响，并借助全球经济波动

加快发展速度，从而扩大香港的经济社会差距。另一方面，香港的人才、资本流速加快，经济发

展速度放缓。自年初以来，香港约有 15 万的居民净流出。欧盟商会（the European Chamber of

Commerce，EuroCham）3 月份发布的一项调查显示，近一半的欧洲公司在考虑离开香港；不过，

与此同时，海外华侨华裔、周边国家国民也正在流入香港地区 [31]。对此，香港政府在 2022-23

年的财政预算案中通过了一项超过 1700 亿港元的计划以推动经济复苏；从整体来看，香港经济在

2021-22 财年已经转亏为盈，下一年度经济也会继续转好 [32][33]。

因此，不论是在科学研究还是社会考量的层面，都有充分的理由支持香港选择“动态清零”的

抗疫策略；而香港目前应对第五波疫情的成果也再次证明，只有始终坚持“人民至上”、“生命至上”

理念，坚持“外防输入、内防反弹”总策略和“动态清零”总方针，才能尽快遏制疫情扩散蔓延势头，

最大限度保护人民的生命安全和身体健康 [34]。

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三、结语

在香港第五波疫情逐渐回落时期，一个和香港一样拥有高密度人口、发达经济和高水平医疗资

源的城市上海，也同样因 Omicron BA.2 陷入新一轮疫情。但不同于香港“居家隔离＋抗原检测”

的管控手段，上海借助强有力的政治强制采取了“集中隔离＋全员核酸＋网格化”的措施：包括对

于密切接触者、无症状感染者和轻型病例都实行集中隔离管理；对于次密接人员，只有符合一人一

户或一家一户居家条件的，才实行居家隔离，否则也必须进行集中隔离观察；强制全市人员必须接

受全员核酸检测；同时通过切块化网格化的管理措施尽可能缩小风险区域和风险人群，等等 [35]。

但其实际效果反而不明显。上海在后期参考了香港抗疫模式，采用了“抗原＋核酸”的组合筛查模式，

避免了可能发生的感染扩散，节省了大量的医疗资源，持续一个多月的疫情逐步好转，这也再度证

明了“动态清零”的灵活性和有效性。回顾上、港两地的抗疫成果，再考虑到各变种病毒感染性的

增强及致死率的降低，未来在疫苗接种基本覆盖的情况下，以抗原自测、居家抗疫为主的防疫举措

也许会是全国各地可借鉴的宝贵经验。

上海单日新增病例数（2022.3.1-2022.4.27） 图源：上观新闻

https://mp.weixin.qq.com/s/rX0wgSgenbtTj5aJiM6FIg

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参考资料

[1] 2019 冠狀病毒病第 5 波數據 . 香港卫生防护中心 .

https://www.covidvaccine.gov.hk/pdf/5th_wave_statistics.pdf

[2] Arisina Ma, Jane Parry. When Hong Kong’s “dynamic zero” covid-19 strategy met omicron, low

vaccination rates sent deaths soaring. BMJ.

https://www.bmj.com/content/377/bmj.o980

[3] Demographic Trends of COVID-19 cases and deaths in the US reported to CDC. Centers for Disease

Control and Prevention.

https://covid.cdc.gov/covid-data-tracker/#demographics

[4] Strategic Preparedness, Readiness and Response Plan to End the Global COVID -19 Emergency in 2022.

World Health Organization.

https://www.who.int/publications/i/item/WHO-WHE-SPP-2022.1

[5] China and the West have two very different approaches to Omicron. CNN.

https://www.cnn.com/2022/04/06/world/coronavirus-newsletter-intl-06-04-22/index.html

[6] Hong Kong’s Nursing Homes Are Unvaccinated Hotbeds of Covid. Bloomberg.

https://www.bloomberg.com/news/articles/2022-03-03/hong-kong-s-nursing-homes-are-unvaccinatedhotbeds-of-covid

[7] Lessons learned from the fifth wave of COVID-19 in Hong Kong in early 2022. Emerging Microbes &

Infections.

https://www.tandfonline.com/doi/full/10.1080/22221751.2022.2060137

[8] Arisina Ma, Jane Parry. When Hong Kong’s “dynamic zero” covid-19 strategy met omicron, low

vaccination rates sent deaths soaring. BMJ.

https://www.bmj.com/content/377/bmj.o980

[9] 央媒：来势汹汹的香港第五波疫情，为何传播较快？将如何应对？ 澎湃新闻 .

https://www.thepaper.cn/newsDetail_forward_16920703

[10] Lessons learned from the fifth wave of COVID-19 in Hong Kong in early 2022. Emerging Microbes &

Infections.

https://www.tandfonline.com/doi/full/10.1080/22221751.2022.2060137

[11] 夏寶龍：圍繞「三減三重一優先」有序鋪排下階段工作 . 香港文匯網 .

https://www.wenweipo.com/a/202203/17/AP6232726be4b036dce99f4118.html

[12] 梁萬年倡港診療分層分流 . 香港文匯網 .

https://www.wenweipo.com/a/202203/10/AP62293d8fe4b036dce99ccb23.html

[13] 視乎疫情 社交措施 4 月下旬放寬 . 香港政府新聞網 .

https://www.news.gov.hk/chi/2022/03/20220321/20220321_124329_218.html

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[14] Hong Kong's unemployment rate rises to 4.5 percent. The Standard.

https://www.thestandard.com.hk/breaking-news/section/4/188249/Hong-Kong's-unemployment-raterises-to-4.5-percent

[15] Forward planning after HK’s fifth wave of Omicron BA.2. The University of Hong Kong.

http://www.med.hku.hk/en/news/press//-/media/HKU-Med-Fac/News/slides/20220322-wave_5_omicron_

PHSM_update_final.ashx

[16] 社評：抗疫面臨關鍵抉擇 清零共存要說清楚 . 明報新聞網 .

https://news.mingpao.com/pns/%E7%A4%BE%E8%A9%95/article/20220323/s00003/1647972531514

[17] Living with Covid-19 is inevitable and Hong Kong’s ‘safest’ option is to transition sooner, top

HKU scientist says. Hong Kong Free Press.

https://hongkongfp.com/2022/03/23/living-with-covid-19-is-inevitable-and-hong-kongs-safest-option-is-totransition-sooner-top-hku-scientist-says/

[18] Bekker, M., Greer, S. L., Azzopardi-Muscat, N., & McKee, M. Public health and politics: how political

science can help us move forward. European journal of public health.

https://doi.org/10.1093/eurpub/cky194

[19] 港大推算已有约 440 万港人染疫 梁卓伟：“清零”是中转站 “风土病”是终极站 . 大公网 .

http://www.takungpao.com/lens/235128/2022/0323/701188.html

[20] Public Health on Call Podcast. Johns Hopkins Bloomberg School of Public Health.

https://publichealth.jhu.edu/headlines/public-health-on-call-podcast

[21] We’re going to have to find a way to coexist with the coronavirus. The Washington Post.

https://www.washingtonpost.com/opinions/we-keep-waiting-for-the-new-normal-it-might-already-behere/2020/05/04/7a4032ca-8e41-11ea-a9c0-73b93422d691_story.html

[22] Coexisting with the Coronavirus. The New Yorker.

https://www.newyorker.com/science/annals-of-medicine/coexisting-with-the-coronavirus

[23] COVID-19 Vaccine Breakthrough Infections Reported to CDC. Centers for Disease Control and

Prevention.

https://www.cdc.gov/mmwr/volumes/70/wr/mm7021e3.htm

[24] Now’s not the time to dispense with covid-19 precautions. The Washington Post.

https://www.washingtonpost.com/opinions/2022/04/20/covid-pandemic-mask-mandate-flights-not-thetime-to-lift-precautions/

[25] Dynamic zero COVID policy in the fight against COVID. The Lancet Respiratory Medicine.

https://www.thelancet.com/journals/lanres/article/PIIS2213-2600(22)00142-4/fulltext

[26] Lessons learned from the fifth wave of COVID-19 in Hong Kong in early 2022. Emerging Microbes &

Infections.

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https://www.tandfonline.com/doi/full/10.1080/22221751.2022.2060137

[27] Dynamic zero COVID policy in the fight against COVID. The Lancet Respiratory Medicine.

https://www.thelancet.com/journals/lanres/article/PIIS2213-2600(22)00142-4/fulltext

[28] China says Hong Kong must stick to "dynamic zero" COVID strategy. Reuters.

https://www.reuters.com/world/china/china-says-hong-kongs-priority-is-cut-covid-infectionsdeaths-2022-03-08/

[29] The Dilemma of Hong Kong’s Fixation on Zero COVID. The Diplomat.

https://thediplomat.com/2022/01/the-dilemma-of-hong-kongs-fixation-on-zero-covid/

[30] 民調：57% 認為與病毒共存更適合香港 學者籲勿將”共存”與”清零”對立 . VOA.

https://www.voacantonese.com/a/6437103.html

[31] Hong Kong faces brain drain as talent flees ‘zero COVID’ controls. Al Jazeera.

https://www.aljazeera.com/economy/2022/4/2/hong-kong-faces-brain-drain-as-talent-flees-zero-covidcontrols

[32] HK economy is to grow quickly once Omicron outbreak is controlled. Global Times.

https://www.globaltimes.cn/page/202202/1253137.shtml

[33] 2022/23 香港特别行政区财政预算案 . Deloitte.

https://www2.deloitte.com/cn/zh/pages/tax/articles/hk-budget-2022-2023-analysis.html

[34] 香港疫情防控态势向好，珍惜成果不可大意 . 新华网 .

http://www.news.cn/gangao/2022-04/21/c_1211639039.htm

[35] 香港第五波新冠疫情有哪些教训？对于上海疫情防控有何启示？ 知识分子 .

http://www.zhishifenzi.com/news/multiple/12208.html

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海国图智研究院

西方国家防疫策略转变中的政治与结构性因素

作者：余洁璐 审校：余卓朋 翻译：顾珺楠

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引言

西方国家在应对新型冠状病毒的过程中，已经逐渐将其策略从“危机模式”转向“控制模式”[1]。

这意味着当大规模的公共健康危机再次发生时，西方政府会采取一种“常态化”的治理模式来取代

短期的紧急管控治理。在此治理状态下，病毒将与人们的日常生活并存，大规模的停产以及隔离措

施将被废除。这与中国采取的“动态清零”模式大相径庭。造成决策差异的重要因素之一是社会成

员对于病毒的免疫率（包括先前新型冠状病毒的感染者以及疫苗接种者），这也解释了为什么一些

欧盟国家对将新冠病毒常态化为流行病犹豫不决。就美国而言，我们仍能看到政府结构和政治动机

对那些使弱势群体承担风险的医疗保健措施造成的影响。因此，在讨论新冠肺炎政策的决策结果对

社会公民的影响时，关于特权的分析发挥着重要作用。

Ⅰ 美国

1.1 新冠肺炎疫情的现状

Omicron 的高传染性 BA.2 亚变体已成为引起美国新冠肺炎的主要感染源。如下图所示，尽管

美国的新冠肺炎感染病例数曲线低于欧洲，但感染率仍有不断上升趋势。尽管如此，官方数据可能

还并不能反映所有的真实情况。近几个月进行的家庭检测的研究数据表明，政府和新闻机构发布的

关于新冠肺炎感染率的数据很可能低于实际感染数据。针对该现象的可能解释如下：首先，由于新

冠病毒检测监管力度的降低以及接受强制检测的人数越来越少，可能导致无症状病例不能及时被发

现。第二，先前感染过病毒的个体获得了免疫，也可能是导致美国新冠肺炎病例数下降的因素之一

[2]。

欧洲与美国累计病例数

图源：Worldometer

https://www.worldometers.info/coronavirus/worldwide-graphs/#europe-usa-cases

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1.2 个体意识作为公共卫生规则制度化的动力

个体政治意识形态在美国公众对疫情防控措施（包括疫苗接种）的反应中扮演重要的角色。疫

苗接种是一种经过科学验证、可以增强免疫力并降低感染新冠病毒风险的方法。然而，由于美国政

治认同的两极分化，不同地区疫苗接种推广计划取得的进展和成效程度不一。

（左）美国各州新冠肺炎疫苗接种率

图源： Mayo Clinic

https://www.mayoclinic.org/coronavirus-covid-19/vaccine-tracker

（右）美国各州保守意识形态百分比

图源：Gallup https://www.theatlantic.com/politics/archive/2011/03/the-conservative-states-of-america/71827/

由上可知，政治地位和疫苗接种率之间具有显著的相关性，疫苗接种率可能是由地区之间的

党派差异决定的。与保守派、共和党投票区相比，美国自由派、民主党投票区的人口完全接种疫

苗的比例要高得多——例如加州的疫苗接种率为 75%，而怀俄明州只有 46%[3][4]。这种现象的出

现并不新鲜。早在 2021 年 9 月，地区间的接种率差异已经非常明显：投票给拜登的州中有 52.8%

的人完全接种了新冠疫苗，而在投票给特朗普的州中，这一比例为 39.9%[5]。不幸的是，由于对

于疫苗接种的漠视态度始终存在，以及政府没有采取定期的公共卫生预防措施，疫苗接种率的差距

随着时间的推移而逐渐扩大。因此，大多数倾向于保守派的美国社区居民最终难免感染新冠病毒。

尽管那些感染病毒的幸存者获得了更高的免疫力，但在疫苗接种率较低和公共卫生法规尚不健全的

保守地区，病毒导致的死亡人数仍然居高不下 [2]。因此，保守派群众中的潜在疾病威胁更高，但

保守派总体上并不太关心新冠肺炎带来的影响。最近的一项研究分析了保守的政治信仰与疫情防控

之间的关系来解释这种差异产生的原因。它指出，个体的政治意识形态提供了人们认识周围环境的

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世界观，基于这种世界观，个体将“疾病”与“威胁”联系在一起。例如，控制疫情需要政府颁布

检疫和口罩强制令等一类措施，但这与保守意识形态背道而驰。因此，保守派可能更倾向于淡化、

甚至否认疾病带来的潜在威胁，以降低政府管制措施在群众心理上的合法性，但这也导致公众对于

新冠病毒的态度更加冷漠 [6]。

此外，与新冠病毒相关的担忧、倦怠和基于某种程度的自信心理，已成为美国公众服从政府的

管制性公共卫生措施的意愿下降的因素之一。美国应对新冠病毒的方法似乎是“忽视病毒，希望

病毒消失以及期待现有的干预措施已经足够有效，使新冠疫情保持在社会的合理承受范围内”[7]。

疫苗的生产以及 2021 年 12 月至 2022 年 1 月间 Omicron 病毒威胁的衰减给美国民众带来了希

望——他们认为新冠肺炎疫情正在退行为流行病，不再具有更致命、更严重的社会危害。由于确诊

病例的大规模减少，许多州在 2021 年 2、3 月取消了“关于佩戴口罩”的规定。由于部分公众对

于口罩的抵制态度以及其他种种因素，政府可能不会再推行口罩强制政策，尽管 BA.2 等高传染性

新冠肺炎变体的感染率仍在上升 [8]。综上，无论是美国社会成员对政治意识形态的确认，还是对

公共卫生预防措施日益增长的自满情绪，都反映出公众反应是影响美国当前新冠疫情发展的重要因

素之一。

1.3 更大的博弈：各州与联邦

在 2021 年 12 月至 2022 年 1 月期间，Omicron 入侵导致美国病毒感染率和住院率不断飙升。

但疾病控制中心（CDC）对新冠肺炎患者和接触者的隔离时间建议却缩短了一半。疾病预防控制中

心为这一建议的修正提供辩护，声称科学数据显示大多数疾病传播只发生在感染前期。这一修正被

视为是受到政治利益而非公共卫生利益驱动，其目的是缓解医疗保健、零售、餐饮和旅游业等行业

的经济压力和人员短缺。例如，Omicron 病毒感染人数的激增导致许多员工请病假，大规模的请

假导致四分之一以上的商业航空服务被迫中断，同时也降低了医疗保障系统的工作能力。疾控中心

（CDC）声称，该政策的修正将确保工人能够重返工作岗位，保证社会以安全、平稳的方式运行。

然而，科学和医学界的专家们对新指南的颁布与新冠病毒传播之间的关系表示关切。因为研究表明，

人与人之间在病毒传播的时间和范围上存在广泛的差异。由于自检试剂盒和 N95 口罩的供应量有

限，指南修正时期病毒传播风险程度可能更高。 因此，虽然新冠肺炎指导方针的调整适应了美国

经济和政治的利益需求，却在一定程度上忽视了公共卫生危机的潜在风险 [9]。

此外，在瞬息万变的疫情局势下，联邦、州和地方政府关于“口罩佩戴”所作出的反应并不一致，

这也导致了地方秩序的混乱。在联邦一级，口罩强制令于 2021 年 1 月生效，并于 2022 年 4 月 18

日到期。自 2 月以来，Omicron 浪潮后确诊病例数字就不断下降。然而，即使住院人数和死亡率

仍居高不下，各州还是普遍采取放弃关于“佩戴口罩”的相关规定。总统拜登指出取消口罩强制令

为时过早，同时基于公共健康安全考量，将飞机和公共交通中的口罩强制令延长至 5 月 3 日。但是，

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4 月下旬，佛罗里达州的一名联邦法官推翻了联邦的口罩强制令，并指控疾控中心有越界嫌疑。作

为回应，疾控中心在公共卫生基础上对保护公众免受冠状病毒传播的必要授权事宜提出了上诉要求

[10]。这一上诉结果对维护疾控中心在公共卫生领域中的权力具有极大的政治意义。如果联邦法院

的裁决不被推翻，它将阻碍疾控中心在未来应对疫情所能发挥作用的能力，同时削弱该机构的权威。

这一过程反映出联邦政府在公共卫生措施中权力的有限性，国会可以修改这些规定来赋予疾控中心

以更多的权力 [11]。然而，围绕新冠病毒的尖锐的政治分歧阻碍了有效法律措施的通过，这将使

联邦政府陷入两难困境。由于国会与立法机构在为无保险的美国公民提供新冠肺炎疫苗、检测和治

疗等方面的财政援助，以及数十亿美元的各州的固定资金的使用问题上无法达成一致，美国人民无

法及时获得社会保障和资源援助 [12]。综上，美国的新冠肺炎政策的制定和颁布在很大程度上受

到政治因素的影响，而非健康指标。

1.4 公共卫生措施改变的结果

美国每日新增新冠肺炎确诊病例数

图源：Our World in Data

https://ourworldindata.org/coronavirus/country/united-states

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尽管与欧洲国家相比，美国新冠肺炎感染率总体上升幅度较低，但同样面临着严峻的挑战。

如上图所示，自 2021 年 12 月开始，可以观察到感染率的快速上升，并一直持续到次年 1 月底，

Omicron 病毒最终席卷了美国。为了保持经济运行而缩短检疫和隔离的政策可能是使这种感染扩

散的诱因之一。随后的数据波动下降可能是因为政府提高了对疫苗以及（免费的）家庭检测试剂盒

的投入。同时，为了减少病毒的传播，政府提出了一系列防护措施，涉及疫苗、口罩、常规检测、

隔离、检疫、改善通风和过滤条件，等等 [13]。因此，如果对口罩、隔离和检疫的管控有所减少，

对于疫苗接种和其他层面的管控就应该强化。这表明国会可能需要搁置其他党派的意见，并批准公

共卫生方面的预算。这对于包括有色人种、社会经济地位低下者、难以获得医疗保障者以及高感染

风险行业的从业者内的弱势群体的健康保障具有极强的现实意义。例如，新冠肺炎对有色人种社区

的影响尤为严重。与非西班牙裔白人相比，非裔美国人、西班牙裔美国人和美国印第安人的住院率

和死亡率要高得多 [14]。当佩戴口罩没有得到立法强化时，他们获得空气过滤和及时检测的机会

更少 [13]。因此，立法改革对公共卫生产生了实际和重大的影响，由政府制度和政治动机驱动的

非理性化的卫生政策将使弱势群体承担更大的风险。

按种族 / 民族划分的美国民众住院率和死亡率

图源：CDC

https://www.cdc.gov/coronavirus/2019-ncov/covid-data/investigations-discovery/hospitalization-death-by-raceethnicity.html

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II 欧洲国家

2.1 疫情现实状况

近几个月来，欧洲因新冠肺炎导致的住院率和死亡率较此前呈下降趋势，特别是与 1 月底最

为盛行的 Omicron 浪潮相比有明显的缓和。几乎所有的欧洲国家都已取消出入境管控，但进入欧

盟国家仍需要凭借有效的欧盟电子新冠肺炎证明。这使得个人健康状况成为影响欧盟国家出入境防

疫管控措施的决定因素，而非根据区域一级的流行病学情况采取放之四海而皆准的方法 [15]。从 5

月 16 日起，航空出行方面有关口罩佩戴方面的规则被取消 [16]。一些国家已经开始放松了对于新

冠的管控，同时仍有一些国家对于新冠始终采取消极的管控措施。根据疫苗接种率的差异，各国主

要呈现出两种不同的策略来应对不断变化的疫情形势。

欧洲新冠肺炎感染病例数 图源：Statista

https://www.statista.com/statistics/1102209/coronavirus-cases-development-europe/

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2.2 放松对新冠病毒的管制的欧洲国家

疫苗接种率高的国家可以相对自由地采取应对新冠肺炎的地方性策略，因为在高接种率的前提

下，病毒的存在不会对日常生活造成重大影响。这种关于采取地方性办法的讨论仅限于富裕国家。

这些国家凭借着疫苗获取能力 以及本身拥有的强有力的公共卫生系统，能够以较为轻松的态度讨

论这一流行病的严重情况。以西班牙为例，截至 2022 年 4 月，该国 87% 的人口已经接种了两剂

疫苗。由于西班牙人民受到疫苗接种和群体免疫性的双重保护，西班牙卫生部选择将冠状病毒疾病

作为一种常规疾病进行惯常处理，并遵循欧盟目前使用的应对流感的“哨点监测”模式 [1]。

西班牙疫苗接种率 图源：Statista

https://www.statista.com/statistics/1218713/covid-19-share-of-people-vaccinated-in-spain/

在英国，确诊病例的不断下降促使政府取消了针对 Omicron 病毒的紧急管控。数据显示，

95% 的英国人口通过感染或疫苗接种获得了针对新冠病毒的抗体，同时完全接种 3 剂疫苗的比率

提高到 82%[17]。取得这一成果的部分原因是英国成功地在三个月前与欧盟达成疫苗批量交付协议，

这使英国在大规模疫苗接种方面取得优势。此外，与西班牙类似，英国政府也开始采取地方性策略：

1 月下旬，政府取消了在公共场佩戴口罩和出示新冠肺炎健康证明的要求，PCR 检测和密接人员的

追踪服务也相继取消，法律也不再强制核酸检测结果为阳性的个体进行自我隔离 [1]。只要那些抵

达英国者接种了疫苗，就不再需要出示核酸阴性证明 [18]。在此基础上，由于部分欧洲国家能够

通过疫苗接种来保护其居民，采取新冠肺炎的地方性策略就成为可能。

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2.3 推行新冠病毒法的欧洲国家

另一方面，尚未达到目标疫苗接种率的国家无法实现新冠肺炎常态化，因为仍然需要集中力量

来提高不自愿接种疫苗群体的接种率。在德国，新冠感染率以每天超过 123000 例的态势迅速攀升。

数据显示，只有不到 76% 的人口完全接种了疫苗，低于德国政府计划的 80% 接种率目标。令人

担忧的是，仍有 200 万 60 岁以上的老年人没有接种疫苗，该数字高出其他疫苗接种国 3 到 4 倍 [19]。

鉴于新冠肺炎疫情的严重性，德国将重点转向为老年人口接种疫苗，甚至提出在全国范围内为 60

岁以上的人接种疫苗，试图以此方法来尽可能保护弱势公民。然而，德国议会没有通过这项决策，

他们声称疫苗接种的强制性过高，而个体有自由选择是否接种疫苗的权利。当然，无论如何，德国

有关新冠肺炎的一些管控措施仍然十分严格。例如，德国封锁管控措施延长了一个月，持续到四月，

在此期间将禁止公共集会以降低感染率 [20]。

意大利也实施了一些非常严格的疫情防控措施，例如强制所有工作和公共场所使用新冠病毒

绿色通行证，违者将处以罚款 [21]。虽然其他欧洲国家一直在放宽关于疫苗接种和佩戴口罩的规

定，但意大利已将其疫苗接种的目标扩大到所有 50 岁及以上公民，并对未接种疫苗的工人处以高

达 1500 欧元的罚款。接种疫苗仍然也仍然是进入公共场所和乘坐公共交通的基本要求。此外，意

大利政府已采取强制措施提高疫苗接种率，将反对疫苗的少数群体拒绝接种疫苗视为一个公共卫生

问题，特别是在面临更易传播的新冠病毒变种的情况下 [22]。在此前的实践中，意大利为 80 岁以

上的老年人接种疫苗的推广速度比较缓慢，效率低下。由于意大利是全世界范围内老年人口数最多

的国家之一（可以被理解为存在许多弱势和高危公民），这些困难可能会造成严重的公共卫生后

果 [23]。幸运的是，严格的政府干预似乎取得了一定成效。如下图所示，所有 12 岁及以上年龄组

的疫苗接种率都高于 81%，超过 90% 的弱势老年人也受到了疫苗保护。因此，疫苗接种率是一部

分欧洲国家执行严格的新冠肺炎指导方针的明确动机，这也凸显了保护弱势群体的重要性。

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意大利按年龄组分列的新冠肺炎疫苗接种率 图源：Statista

https://www.statista.com/statistics/1264088/share-of-population-vaccinated-against-covid-19-in-italy-by-age-group/

III 结论

在美国，取消新冠病毒管制的决定主要是由政治和经济因素驱动的。公众对公共卫生建议的服

从程度的下降，源于个人政治意识形态和消极心理情绪的双重影响。同时，联邦和州一级的法规之

间的冲突，以及疾控中心作为值得信赖的公共卫生的角色权威和可信度受到的质疑也加剧了这一情

况。此外，国会的党派纷争阻碍了政府为弱势社区分配公共卫生保障资金。

在欧洲，由于各国疫苗接种状况不同，在应对新冠肺炎方面也体现出不同的行动方式。疫苗接

种率较低或弱势群体占总人口比例较高的国家仍采取严格的新冠管控措施，而疫苗接种率或先前

感染率较高、群体免疫力较高的国家正在采取地方性策略，放松管制，将新冠病毒的管理常态化。

但在所有国家中，弱势群体是否能够获得疫苗接种和健康保障服务，都是政策变化期间需要考虑的

一个重要因素。

因此，尽管西方国家正在朝着新冠病毒常态化和放松管控的方向迈进，但仍有过早取消管控的

嫌疑。从公共卫生的角度来看，由于高度传染性变种可能带来的风险仍然存在，以及新冠肺炎确诊

数带来的的潜在威胁，现在取消新冠肺炎相关的管控措施还为时过早。许多与医疗健康相关的服务

都受到紧急新冠肺炎申报撤销的影响，例如为无保险人提供医疗保健服务和为州公共卫生计划提供

资金。紧急申报可以帮助联邦、州和地方政府采取必要措施来应对危机，更好地分配资金和其他资

源，以确保公共卫生的保护和安全 [24]。 各国政府应更慎重地考虑新冠肺炎应对措施对处于不利

地位的弱势群体的影响，以确保他们可以获得更多资源。

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参考资料

[1] ABC News. Europe considers new COVID-19 strategy: Accepting the virus. https://abcnews.go.com/

Health/wireStory/europe-considers-covid-19-strategy-accepting-virus-82368788.

[2] New York Times. A New Covid Mystery. https://www.nytimes.com/2022/04/06/briefing/covid-cases-usomicron-subvariant.html?action=click&pgtype=LegacyCollection&state=default&module=styln-coronavi

rus&variant=show&region=BELOW_MAIN_CONTENT&block=storyline_flex_guide_recirc.

[3] California All. Vaccination Data. https://covid19.ca.gov/vaccination-progress-data/#overview.

[4] Wyoming Department of Health. COVID-19 Data. https://health.wyo.gov/publichealth/immunization/

wyoming-covid-19-vaccine-information/covid-19-vaccine-distribution-data/.

[5] Kaiser Family Foundation. The Red/Blue Divide in COVID-19 Vaccination Rates. https://www.kff.org/

policy-watch/the-red-blue-divide-in-covid-19-vaccination-rates/.

[6] Elsevier Public Health Emergency Collection. Why are conservatives less concerned about the

coronavirus (COVID-19) than liberals? Comparing political, experiential, and partisan messaging

explanations. https://www.ncbi.nlm.nih.gov/pmc/articles/PMC8416547/.

[7] Fortune. A new COVID wave is probably coming, and America just doesn’t seem to care. https://

fortune.com/2022/04/09/new-covid-wave-return-to-office-fauci-omicron-subvariant/.

[8] The Washington Post. The bar for reimposing mask mandates is getting higher and higher. https://

www.washingtonpost.com/health/2022/05/09/mask-mandate-covid-cases/.

[9] The New York Times. As Omicron Surges, Officials Shorten Isolation Times for Many Americans.

https://www.nytimes.com/2021/12/27/health/omicron-cdc.html.

[10] The New York Times. Justice Dept. Appeals to Reinstate Transportation Mask Mandate. https://www.

nytimes.com/2022/04/20/us/politics/cdc-transportation-mask-mandate.html?action=click&pgtype=Article

&module=&state=default&region=footer&context=breakout_link_back_to_briefing.

[11] Kaiser Family Foundation. Judge’s Ruling on the CDC Mask Mandate Highlights the Limits of the

Agency’s Power. https://khn.org/news/article/mask-mandate-ruling-covid-cdc-authority/.

[12] The New York Times. Pandemic aid stalled in the Senate and Shanghai remained in lockdown: The

week in Covid news. https://www.nytimes.com/2022/04/09/world/pandemic-aid-stalled-in-the-senate-andshanghai-remained-in-lockdown-the-week-in-covid-news.html?smid=url-copy.

[13] The Washington Post. Mask mandates are falling prematurely. We can still keep people safe. https://

www.washingtonpost.com/outlook/2022/02/14/mask-mandates-alternatives/.

[14] CDC. Risk for COVID-19 Infection, Hospitalization, and Death By Race/Ethnicity. https://www.cdc.

gov/coronavirus/2019-ncov/covid-data/investigations-discovery/hospitalization-death-by-race-ethnicity.

html.

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[15] Council of the European Union. Timeline - Council actions on COVID-19. https://www.consilium.

europa.eu/en/policies/coronavirus/timeline/. [16] BBC News. Covid mask rules relaxed for EU air travel.

https://www.bbc.com/news/world-europe-61413015.

[17] Center for Infectious Disease Research and Policy. UK unveils game plan for 'living with COVID'.

https://www.cidrap.umn.edu/news-perspective/2022/02/uk-unveils-game-plan-living-covid.

[18] The New York Times. Covid News: European Nations Take Divergent Approaches. https://www.

nytimes.com/live/2022/01/26/world/omicron-covid-vaccine-tests?smid=url-copy#omicrons-spread-acrosseurope-prompts-some-countries-to-lift-restrictions-and-others-to-add-them.

[19] The Guardian. German government drops plan for Covid vaccine mandate. https://www.theguardian.

com/world/2022/apr/08/german-government-drops-plan-for-covid-vaccine-mandate.

[20] France24. Germany extends Covid-19 restrictions into April. https://www.france24.com/en/

europe/20210323-germany-extends-covid-19-restrictions-into-april-including-strict-easter-lockdown. [21]

Independent. Italy to impose some of strictest measures in world requiring all workers to show Covid

green pass. https://www.independent.co.uk/news/world/europe/green-pass-covid-vaccine-italy-b1921841.

html.

[22] Politico. Vaccine mandates test the limits of persuasion. https://www.politico.eu/article/italy-vaccinecoronavirus-mandate-test-limit-persuasion/.

[23] The New York Times. Supply Isn’t the Only Thing Stymying Europe’s Vaccine Rollout. https://

www.nytimes.com/2021/03/25/world/europe/europe-covid-19-vaccine-shortage.html.

[24] Verywell Health. Experts Say It's Too Soon to End the COVID State of Emergency. https://www.

verywellhealth.com/pandemic-state-of-emergency-5221905.

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The Role of Politics and Access in Changing

Western Strategies to COVID-19 Measures

Author: Jielu Yu Reviewer: Zhuopeng Yu

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Abstract:

Western countries have gradually shifted their strategy when dealing with COVID-19 from “crisis

mode to control mode.” [1] This means that the next infection surge will not be treated as a short-term

emergency but as an illness that is here to stay, so that the virus becomes a part of daily life and people

can carry on without full shutdowns and other disruptions. As such, Western countries are adjusting to

living with COVID-19, very much unlike China’s dynamic zero response. A nuance that went into picking

one approach over another includes the rate of immunity in the population from previous infections and

vaccination, explaining why some EU countries are hesitant to normalize the pandemic into an endemic.

In the case of the US, we still see the influences of governmental structure and political motivation on

healthcare measures, which place vulnerable populations at risk. Therefore, privilege plays an important

role in decisions around COVID-19 policies and the impact of those decisions on populations.

I United States

1.1 Current COVID Situation

The highly contagious BA.2 subvariant of Omicron has become the dominant form of Covid in the U.S.

As shown in the graph below, cases in the U.S. have been rising lately, though not as steeply as in Europe.

However, this is not indicative of the severity of the situation, as the shift towards at-home testing in recent

months means that a smaller share of actual Covid cases may be showing up in the data that government

agencies report and news organizations publish. With less regulations around COVID testing, less people

are receiving mandated tests and asymptomatic cases go undetected. Individuals who have had a previous

contraction of the virus have increased immunity, which can also contribute to the trend of decreasing

COVID cases in the United States [2].

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Cumulative Number of Cases, Europe vs USA

Source: Worldometer

https://www.worldometers.info/coronavirus/worldwide-graphs/#europe-usa-cases

1.2 Individual Perception as Motivator for Public Health Guideline Compliance

Personal political ideologies play a large role in the U.S. public’s reactions toward pandemic control and

prevention measures, including vaccinations. Vaccinations are a scientifically proven method of increasing

immunity and decreasing the risk of infection from COVID. However, vaccination roll out programs have

experienced varying degrees of success due to politically polarized responses.

(left) COVID-19 Vaccine Rates by State

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Source: Mayo Clinic

https://www.mayoclinic.org/coronavirus-covid-19/vaccine-tracker

(right) U.S. States Ranked by % Conservative Ideology

Source: Gallup https://www.theatlantic.com/politics/archive/2011/03/the-conservative-states-of-america/71827/

Correlations between political standing and vaccination rates as demonstrated by the comparison of the

figures above. Vaccination rates are delineated by the partisan divide between geographic regions,

with liberal, Democrat-voting parts of the U.S. having much higher percentages of its population fully

vaccinated compared to conservative, Republican-voting, examples being California with a vaccination

rate of 75% versus Wyoming with only 46% [3] [4]. This is not a new phenomenon. This difference was

already apparent as of September 2021: 52.8% of people in counties that voted for Biden were fully

vaccinated compared to 39.9% of Trump counties [5]. Unfortunately, this gap in vaccination rates has

since widened over time due to dismissive attitudes, such that regular public health precautions have not

been taken. As a result, many Americans in those conservative-leaning communities end up contracting

COVID. Even though those who survived gain increased immunity, the death count due to the virus has

been higher in conservative regions with lower vaccination rates and fewer public health regulations [2].

As such, disease threat is higher among the conservative population, yet conservatives care less about

COVID-19 overall. A recent study explained this discrepancy by looking at how conservative political

beliefs that intersect with the pandemic. An individual’s political ideology provides a worldview through

which they assigned a level of threat to the disease. For example, controlling the pandemic requires

governmental restrictions of quarantine and mask mandates, which goes against conservative ideologies.

Therefore, conservatives may be motivated to downplay and not acknowledge the severity of disease

threat so that governmental restrictions are less psychologically plausible, leading to a more dismissive

attitude towards COVID [6].

In addition, worry burnout and complacency related to COVID have become motivators for the American public’s decreasing

willingness to comply with restrictive public health precautions. The American approach to COVID seems to be “ignore

it and hope it goes away, and hope the interventions we have right now are functional enough to make it tolerable” [7].

The creation of vaccines and the sudden vanishing of the December and January Omicron wave created hope that the COVID

pandemic is shrinking into endemicity and denial of more deadly, severe waves in the future. Mask mandates were lifted in

many states during February and March due to the sudden decrease in cases. This shift away from mask mandates does not

seem like it will be reversed even despite the rise of highly contagious and transmissible COVID variants such as BA. 2, partly

due to the public being so mask-adverse [8]. Therefore, through both political ideology and growing complacency over public

health precautions, the public reaction is a contributor to the current COVID situation in the U.S..

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1.3 The Larger Picture: State and Federal Levels

The U.S. experienced a soar in infection and hospitalization rates in December 2021 to January 2022 due

to the Omicron wave, yet Centers for Disease Control (CDC) shortened the recommended quarantine

and isolation times by half for patients with COVID and those exposed to COVID during the height of

the wave. CDC justifies this update by claiming that scientific data demonstrates that the majority of

transmissions occur early in the course of illness. This change has been perceived as a political guideline

rather than a public health one, aimed at helping relieve the economic stress and personnel shortage in

industries such as healthcare, retail, restaurants, and tourism. The surge of highly transmissible Omicron

infections has led to many staff being out on sick leave, interrupting more than a quarter of commercial

air traffic during the holiday season as well as decreasing healthcare system capacities. The CDC claims

that this policy shift will ensure that workers can return to their jobs and keep society running smoothly

in a safe way. However, members of the scientific and medical community had express concern that the

new guidelines will enable transmission of COVID, as studies have demonstrated a wide variation in

the periods where people remain contagious. The risk of spread is high particularly during the time the

guidelines were changed due to the then-limited availability of self-testing kits and N95 masks. Therefore,

COVID guidelines were adjusted based on economic and political needs of the country and did not

account for the risk of perpetuating the public health crisis [9].

Furthermore, federal, state, and local governments do not employ the same COVID regulations around

masking, creating discordance and confusion during an ever-evolution pandemic situation. On the federal

level, the mask mandate was placed in January 2021 and set to expire on April 18th, 2022. However,

states have been gradually shifting away from universal mask mandates since February as the number of

cases fell post-Omicron wave, though hospitalizations and deaths remain high. President Biden deemed

the lifting of mask mandates premature and extended the mask mandate in planes and public transit until

May 3rd. However, this federal mask mandate was struck down in late April by a federal judge in Florida,

claiming that the CDC had overstepped its authority. In responses, the CDC filed an appeal against on a

public health basis that mandate was necessary to protect the public from the spread of the coronavirus

[10]. The outcome of this appeal has political significance in preserving CDC’s public health powers.

If the federal court ruling is not overturned, it will hamper CDC’s ability to respond to future outbreaks

and lessen the agency’s authority. This situation also highlights the limited role of the federal government

in public health measures, which can be amended by Congress granting more power to the CDC [11].

However, the sharp political divide around COVID prevents Congress passing effective legislation. A

stalemate in the Congress involving financial aid to cover COVID vaccines, tests, and treatment for

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uninsured Americans, as well as billions of dollars of state-designated funds, remain tied up in

legislaturesdeadlocked over how to spend them, leading to greater inaccessibility for the public to

receive care and resources [12]. As such, COVID regulations and legislation in the U.S. have been largely

motivated by political reasons rather than health metrics.

1.4 Results of Public Health Measure Changes

Daily New Confirmed COVID-19 Cases

Source: Our World in Data

https://ourworldindata.org/coronavirus/country/united-states

Despite the lower rise in COVID infections in the U.S. overall compared to European countries, the

situation is no less dire. As shown in the graph above, a big spike in infections can be observed starting in

December 2021 and continuing until the end of January 2022, when Omicron hit the US. This may have

been exacerbated by the shortened quarantine and isolation policies aimed to keep the economy running.

The decrease after is likely to due to the increased availability of vaccines and free at-home testing kits for

the public. Vaccines, masks, routine testing, isolation and quarantine, improved ventilation and filtration

all layer together to reduce the spread of the virus [13]. Therefore, when there are increasingly less

restrictions on masking or on isolation and quarantine, vaccination and other layers must remain

strong, demonstrating the need for Congress to put aside partisan opinions around COVID and

approve public health budgets. This is particularly important in ensuring the health of vulnerable

populations, such as people of color, low socioeconomic status, limited access to healthcare, and

occupations with a high risk of exposure to the virus. For example, COVID has disproportionately

impacted communities of color, as African Americans, Hispanic persons, and American Indian persons

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have experienced much higher hospitalization and death rates compared to Non-Hispanic White persons

[14]. They have less access to mitigation measures such as

air filtration and rapid tests when mask mandates are not reinforced by legislation [13]. Thus, legislation

changes have real and significant impact to public health, and reckless health polices driven by

governmental systems and political motivations will put vulnerable populations at risk.

Hospitalization and Death by Race/Ethnicity

Source: CDC

https://www.cdc.gov/coronavirus/2019-ncov/covid-data/investigations-discovery/hospitalization-death-by-race-ethnicity.html

II EU Member States and the UK

2.1 Current situation

In Europe, hospitalization and death rates due to COVID lately have been proportionally lower than in

previous surges, especially compared to the Omicron wave which reached its peak in late January. All

countries have resumed travel but with the restriction of requiring a valid EU Digital COVID Certificate

for entry into EU countries, which makes the individual’s personal health status the determinant for

COVID-related travel measures as opposed to a one-size-fits-all approach according to the epidemiological

situation at regional level [15]. Mask mandates will be relaxed for air travel starting May 16th [16].

Some countries have started to loosen up COVID regulations while others have been clamping down,

demonstrating two different approaches in response to the changing pandemic situation depending on each

country’s vaccination rates.

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Number of COVID cases in Europe

Source: Statista https://www.statista.com/statistics/1102209/coronavirus-cases-development-europe/

2.2 European Countries Easing COVID Restrictions

Countries with a high vaccination rate have the luxury of moving towards an endemic approach for

COVID, so that the presence of the disease does not cause significant disruption in everyday life. This

discussion about moving to an endemic approach is limited to wealthy nations that can afford to

speak about the worst of the pandemic in the past tense, thanks to their access to vaccines and robust

public health systems. An example is Spain, with 87% of its population already having received two

vaccine doses as of April 2022. Because Spanish residents are highly protected against COVID due to

vaccine-acquired immunity and prior widespread infection, the Spanish Health Ministry opts to take a more

routine handling of COVID as a regular illness and follow the existing model of “sentinel surveillance”

currently used in the EU for monitoring the flu [1].

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Vaccination Rates in Spain

Source: Statista https://www.statista.com/statistics/1218713/covid-19-share-of-people-vaccinated-in-spain/

The United Kingdom has been experiencing a decline of cases, prompting the removal of emergency

pandemic restrictions being put in place in response to the Omicron wave. 95% of the British population

has developed antibodies against COVID-19 either from infection or vaccination, and the UK boosts of an

82% vaccination rate of 3 doses [17]. This is in part due to UK success in its promptness to strike a deal on

vaccine deliveries batches three months before the EU’s, giving the UK a head start on mass vaccination

rollout to protect its citizens. Similar to Spain, UK’s government has started to take on an endemic

approach as well: mask-wearing in public places and the COVID passport requirement were dropped in

the late January, PCR tests and contact tracing services continue to wind down, and individuals testing

positive were no longer legally required to self-isolate [1]. Those arriving in the UK are no longer required

to show a negative test result as long as they are fully vaccinated [18]. Thus, certain European countries

have adapted or shifted towards an endemic approach to COVID thanks to their ability to access vaccines

to protect their residents.

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2.3 European Countries Enforcing COVID Regulations

On the other hand, countries that have not achieved target vaccination rates cannot normalize COVID-19

because they still need to focus their efforts on increasing vaccination rates among reluctant groups.

Germany has experienced rapidly growing infection rates of more than 123,000 cases per day, a threatening

phenomenon given that less than 76% of the population is fully vaccinated, which is less than the

government’s target of 80%. Especially concerning are the 2 million seniors over age 60 who remain

unvaccinated, a number that is 3 to 4 times higher than that in comparable countries [19]. Given the

seriousness of the COVID situation, Germany turns its focus on vaccinating the elderly population and

has even proposed a nationwide vaccine mandate for those over 60 years old to protect these vulnerable

citizens. However, the measure was not passed in Parliament, with the opposing side claiming that a

vaccine mandate is too patronizing and that the decision to vaccinate must remain a personal decision.

Regardless, other COVID measures remain stringent in Germany. Lockdown measures were extended by

a month into April and bans on public gatherings were announced in an effort to decrease the soaring case

rates [20].

Italy has been known to impose some of the strictest COVID measures in the world, for example

mandating a COVID green pass for all workplaces and public spaces, with consequences of a fine if not

followed [21]. While other European countries have been relaxing vaccine and mask mandates, Italy has

extended its vaccination mandate to all citizens ages 50 or older and imposed fines up to 1,500 euros for

unvaccinated workers. Vaccination remains a requirement at public spaces and on public transportation.

The Italian government had turned to compulsory mandates to address the anti-vaccination minority,

whose refusal to vaccination is a public health concern especially in the face of more transmissible

COVID variants [22]. In addition, initial vaccine rollout was slow and steeped with inefficiencies with

vaccinating elderly individuals over 80 years old. These difficulties have the potential to deliver serious

public health consequences given that Italy has one of the oldest populations in the world, translating to

a lot of vulnerable, at-risk citizens [23]. Fortunately, these strict government interventions seem to be

successful, as seen in the figure below. Vaccination rates are greater than 81% for all age groups 12 years

and older, with over 90% of vulnerable senior citizens protected with both shots. Thus, vaccination rates

are a clear motivator behind some European countries’ reasons to enforce strict COVID guidelines,

highlighting the importance of access and protecting vulnerable populations.

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COVID Vaccination Rates by Age Group in Italy

Source: Statista https://www.statista.com/statistics/1264088/share-of-population-vaccinated-against-covid-19-in-italy-by-age-group/

III Conclusion

In the U.S., decisions to lift COVID restrictions are driven by political and economic factors. The

public’s decreasing compliance to public health recommendations stem from a mixture of personal political

ideologies and worry burnout, exacerbated by conflicting regulations across federal and state levels.

CDC’s authority and trustworthiness as a reliable public health figure have also been put into question.

Furthermore, Congressional gridlock along partisan lines have prevented the distribution of pandemic

response funds that serve vulnerable communities. In Europe, divergent actions regarding COVID

responses are taken according to each country’s vaccination status. Countries with lower vaccination

rates or a higher percentage of vulnerable populations remain stringent on COVID measures. On the other

hand, countries with higher immunity due to greater vaccination rates or previous infections are taking an

endemic approach by loosening up restrictions and incorporating COVID into normal life. In all cases,

access to vaccination and services for vulnerable groups emerge as an important factor to consider during

policy changes.

As such, though Western countries are moving towards normalizing COVID and easing precautionary

measures, there are threats of lifting restrictions too early. From a public health standpoint, it is

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premature to lift COVID regulations given the risk of highly transmissible variants and the threat of

more surges of COVID. Many services are impacted with the withdrawal of the emergency COVID

declarations, such as the availability of healthcare services for uninsured persons and funding for state

public health programming. Emergency declarations help federal, state, and local governments to do

what is necessary to respond to a crisis, allocating funds and other resources to ensure the protection and

safety of public health [24]. Therefore, governments should more carefully consider the impact of COVID

responses on vulnerable populations to ensure availability and access to resources to already disadvantaged

groups.

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References:

[1] ABC News. Europe considers new COVID-19 strategy: Accepting the virus. https://abcnews.go.com/Health/wireStory/

europe-considers-covid-19-strategy-accepting-virus-82368788.

[2] New York Times. A New Covid Mystery. https://www.nytimes.com/2022/04/06/briefing/covid-cases-us-omicronsubvariant.html?action=click&pgtype=LegacyCollection&state=default&module=styln-coronavirus&variant=show&region=

BELOW_MAIN_CONTENT&block=storyline_flex_guide_recirc.

[3] California All. Vaccination Data. https://covid19.ca.gov/vaccination-progress-data/#overview.

[4] Wyoming Department of Health. COVID-19 Data. https://health.wyo.gov/publichealth/immunization/wyoming-covid-19-

vaccine-information/covid-19-vaccine-distribution-data/.

[5] Kaiser Family Foundation. The Red/Blue Divide in COVID-19 Vaccination Rates. https://www.kff.org/policy-watch/thered-blue-divide-in-covid-19-vaccination-rates/.

[6] Elsevier Public Health Emergency Collection. Why are conservatives less concerned about the coronavirus (COVID-19)

than liberals? Comparing political, experiential, and partisan messaging explanations. https://www.ncbi.nlm.nih.gov/pmc/

articles/PMC8416547/.

[7] Fortune. A new COVID wave is probably coming, and America just doesn’t seem to care. https://fortune.com/2022/04/09/

new-covid-wave-return-to-office-fauci-omicron-subvariant/.

[8] The Washington Post. The bar for reimposing mask mandates is getting higher and higher. https://www.washingtonpost.

com/health/2022/05/09/mask-mandate-covid-cases/.

[9] The New York Times. As Omicron Surges, Officials Shorten Isolation Times for Many Americans. https://www.nytimes.

com/2021/12/27/health/omicron-cdc.html.

[10] The New York Times. Justice Dept. Appeals to Reinstate Transportation Mask Mandate. https://www.nytimes.

com/2022/04/20/us/politics/cdc-transportation-mask-mandate.html?action=click&pgtype=Article&module=&state=default&r

egion=footer&context=breakout_link_back_to_briefing.

[11] Kaiser Family Foundation. Judge’s Ruling on the CDC Mask Mandate Highlights the Limits of the Agency’s Power.

https://khn.org/news/article/mask-mandate-ruling-covid-cdc-authority/.

[12] The New York Times. Pandemic aid stalled in the Senate and Shanghai remained in lockdown: The week in Covid news.

https://www.nytimes.com/2022/04/09/world/pandemic-aid-stalled-in-the-senate-and-shanghai-remained-in-lockdown-theweek-in-covid-news.html?smid=url-copy.

[13] The Washington Post. Mask mandates are falling prematurely. We can still keep people safe. https://www.washingtonpost.

com/outlook/2022/02/14/mask-mandates-alternatives/.

[14] CDC. Risk for COVID-19 Infection, Hospitalization, and Death By Race/Ethnicity. https://www.cdc.gov/

coronavirus/2019-ncov/covid-data/investigations-discovery/hospitalization-death-by-race-ethnicity.html.

[15] Council of the European Union. Timeline - Council actions on COVID-19. https://www.consilium.europa.eu/en/policies/

coronavirus/timeline/.

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[16] BBC News. Covid mask rules relaxed for EU air travel. https://www.bbc.com/news/world-europe-61413015.

[17] Center for Infectious Disease Research and Policy. UK unveils game plan for 'living with COVID'. https://www.cidrap.

umn.edu/news-perspective/2022/02/uk-unveils-game-plan-living-covid.

[18] The New York Times. Covid News: European Nations Take Divergent Approaches. https://www.nytimes.com/

live/2022/01/26/world/omicron-covid-vaccine-tests?smid=url-copy#omicrons-spread-across-europe-prompts-some-countriesto-lift-restrictions-and-others-to-add-them.

[19] The Guardian. German government drops plan for Covid vaccine mandate. https://www.theguardian.com/world/2022/

apr/08/german-government-drops-plan-for-covid-vaccine-mandate.

[20] France24. Germany extends Covid-19 restrictions into April. https://www.france24.com/en/europe/20210323-germanyextends-covid-19-restrictions-into-april-including-strict-easter-lockdown.

[21] Independent. Italy to impose some of strictest measures in world requiring all workers to show Covid green pass. https://

www.independent.co.uk/news/world/europe/green-pass-covid-vaccine-italy-b1921841.html.

[22] Politico. Vaccine mandates test the limits of persuasion. https://www.politico.eu/article/italy-vaccine-coronavirusmandate-test-limit-persuasion/.

[23] The New York Times. Supply Isn’t the Only Thing Stymying Europe’s Vaccine Rollout. https://www.nytimes.

com/2021/03/25/world/europe/europe-covid-19-vaccine-shortage.html.

[24] Verywell Health. Experts Say It's Too Soon to End the COVID State of Emergency. https://www.verywellhealth.com/

pandemic-state-of-emergency-5221905.

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02

经贸投资动态

1. 创响生物 OX40 拮抗剂获得 FDA 临床研究许可

创响生物（Inmagene Biopharmaceuticals，以下简称 " 创响 "）宣布，美国食品药品管理

局（FDA）批准了其候选药物 IMG-007（一种靶向 OX40 的单克隆抗体药物）进入 I 期临床开发。

IMG-007 是创响与和黄医药（中国）有限公司（简称 " 和黄医药 "）（纳斯达克 / 伦敦证交所 :

HCM，香港交易所 :13）合作开发的项目。

IMG-007 能高效阻断 OX40 与 OX40L 的结合，从而有效降低 OX40L 引导的下游信号传递和 T

细胞释放的细胞因子。因此，IMG-007 对 OX40 + T 细胞介导的多种免疫性疾病具有治疗潜力，包

括特应性皮炎 (AD) 等。

此项 I 期临床研究是一项双盲、随机、安慰剂对照的剂量递增研究，计划在健康的成人受试者

和特应性皮炎患者中进行。该研究将用于探索 IMG-007 在健康受试者中的药物安全性和耐受性，

以及在特应性皮炎患者中的有效性和安全性。

此前，IMG-007 的 I 期临床试验也已获得澳大利亚临床研究机构伦理委员会（HREC）的伦理

许可和澳大利亚药品管理局（TGA）的临床试验批准。

" 大量临床前研究数据让我们确信 IMG-007 是全球最具潜力的 OX40 候选药物之一”，创响董

事长兼首席执行官王健博士表示：“创响正在把许多像 IMG-007 这样的同类最佳的创新药物从早

期发现或药物候选阶段带入到全球临床研究。"

创响首席开发官 Jean-Louis Saillot 博士表示：" 已有阻断 OX40/OX40L 相互作用的抗体药物

在 II 期临床试验获得了成功。这证明了针对该通路的药物有潜力成为治疗包括 AD 在内的免疫疾病

的新疗法。IMG-007 在临床前研究中展现了同类最佳的潜力，我们期待着此项目的启动，为 AD 和

其他免疫性疾病患者带来一种创新、有效且安全的治疗方案。"

https://www.prnasia.com/story/359946-1.shtml

海国图智研究院

整理：张启平

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2. 辉瑞肺癌创新药第三代 ALK 抑制剂博瑞纳中国获批

4 月 29 日，辉瑞公司宣布全球首个第三代 ALK 抑制剂博瑞纳 ®（Lorbrena®，通用名：洛拉

替尼片 /Lorlatinib Tablets）获国家药品监督管理局批准，单药适用于间变性淋巴瘤激酶（ALK）

阳性的局部晚期或转移性非小细胞肺癌（NSCLC）患者的治疗。辉瑞创新肺癌靶向药物博瑞纳 ®

为患者无进展生存期（PFS）带来重大突破，更强穿透血脑屏障，更少耐药，被最新国际指南推荐

为一线优选治疗 [1]，重塑现有治疗格局，为 ALK 阳性晚期非小细胞肺癌患者带来长久获益。

" 今天我们达成了 ALK 阳性晚期 NSCLC 治疗史上又一重大里程碑。随着博瑞纳 ® 这一突破性

创新疗法的获批，患者将获得更长更高质量的生存，这是辉瑞践行‘为患者带来改变其生活的突破

创新 ' 使命的又一例证。" 辉瑞生物制药集团中国区总裁彭振科表示：" 辉瑞肿瘤秉持‘科学致胜，

共克癌症 ' 的理念，持续为肿瘤治疗提供创新药物，积极促进国内肿瘤诊疗事业发展，我们相信，

在与各界的共同努力下，我们终将战胜癌症这一严重威胁人类健康的疾病，助力《健康中国 2030

规划纲要》中 ‘到 2030 年实现整体癌症 5 年生存率提高 15%' 战略目标的达成。"

在中国，肺癌高居发病率和死亡率首位 [2]，疾病负担日益增加，其中 ALK 阳性晚期 NSCLC

患者平均年龄在 52 岁 [3]，正处于年富力强的黄金期，数据显示：20-40% 的 ALK 阳性晚期非小

细胞肺癌患者在初诊时就已发生脑转移，且发生率随时间延长而升高，即使经过 ALK 抑制剂治疗，

45-70% 的患者也会出现脑部进展 [4]，对患者生存带来严峻挑战。

" 近期美国癌症研究学会（AACR）公布的临床研究数据表明，博瑞纳 ® 一线治疗 ALK 阳性

NSCLC 的无进展生存期（PFS）已突破三年，表现出了前所未有的疾病无进展生存时间。" 博瑞纳

® 中国注册研究主要研究者、广东省肺癌研究所名誉所长吴一龙教授指出：" 博瑞纳 ® 具备出色的

血脑屏障穿透能力，无脑转移的患者接受其治疗能有效阻遏脑转移发生。而有脑转移的患者治疗后，

颅内客观缓解率高达 83.3%。这些数据得到了业界的高度关注，也为医生选择一线治疗方案提供

了理论依据。"

" 博瑞纳 ® 是专为穿透血脑屏障和抑制其他 ALK 抑制剂导致的耐药突变而研发，为预防和延缓

疾病进展提供了出色的解决方案。" 博瑞纳 ® 中国注册研究主要研究者、上海交通大学附属胸科医

院陆舜教授介绍：" 目前针对 ALK 阳性 NSCLC 的传统治疗中，普遍存在多点位的耐药问题，导致

药物疗效下降，患者不得不中断治疗。我们一直期待突破耐药局限的新药上市，对于接受过 ALK

抑制剂治疗发生耐药的患者，我们发现博瑞纳 ® 显示出了强大抗肿瘤活性和颅内活性，可以进一步

抑制肿瘤生长，为患者争取更长的生存时间。"

2020 年 7 月，博瑞纳 ® 作为临床急需进口药品获得海南省药监局批准进口，患者在海南开始

接受治疗，目前已有数位患者获益于博瑞纳 ® 的治疗。同时，博瑞纳 ® 被纳入 " 乐城全球特药险 "

并与北京、山西、湖南等省市惠民保对接，通过补偿型医疗保险等形式，减轻患者治疗负担，提高

药物可及性。

海国图智研究院

海国图智研究院

全球健康医疗动态汇编第 101 期

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https://www.prnasia.com/story/359806-1.shtml

3. 创胜集团宣布硬骨抑素单抗 TST002 治疗骨质疏松的中国临床研

究完成首例患者给药

创胜集团（06628.HK），一家具备生物药发现、研发、工艺开发和生产全流程整合能力的临床

阶段的生物制药公司，今日宣布硬骨抑素单抗 TST002 用于治疗骨质疏松的中国 I 期研究成功完成

首例患者给药。

I 期临床试验为一项随机双盲、安慰剂对照、单次给药、剂量递增的多中心研究，旨在评估

TST002 用于骨质疏松患者治疗的安全性、耐受性及药物代谢动力学特征。

TST002 (Blosozumab) 是一种治疗骨质疏松和其他骨质流失疾病的人源化抗硬骨素单克隆抗

体候选药物，具有增强骨合成代谢和抗骨吸收的双重作用，可促进骨骼形成并抑制骨吸收，从而

能快速提升骨骼密度和增加骨骼强度。在接受抗硬骨素抗体治疗或自然发生的基因缺失的人群中，

阻断抗硬骨素活性已被证实是提高骨密度 (BMD) 及降低骨折风险的有效方法。目前只有安进的

Romosozumab 已经在美国、欧洲和日本获得批准，但中国还没有获批准的抗硬骨素抗体疗法。

创胜集团于 2019 年获得礼来公司（礼来）Blosozumab (TST002) 在大中华区开发及商业化的

授权。礼来已在美国和日本完成 Blosozumab 的 II 期临床研究并且获得了很好的安全性和疗效数

据。创胜集团成功完成了技术转移，在杭州奕安济世生产基地建立了生产工艺并完成了用于临床

研究用的 GMP 生产，并完成了 CDE 要求的 TST002 在中国进行 IND 申请所需的额外临床前研究。

TST002 中国研究的 IND 申请于 2021 年 9 月 22 日获得国家药监局批准，可开展 TST002 直接用于

骨质减少患者的试验。

创胜集团执行副总裁、全球研发负责人兼首席医学官石明博士表示：“TST002 有望成为全球

第二款硬骨抑素靶点的单抗，我们期待深入的研究，进一步评估 TST002 的安全性和耐受性，为我

国骨质疏松患者带来更加高效及多元化的治疗方案。”

https://www.prnasia.com/story/359635-1.shtml

海国图智研究院

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全球健康医疗动态汇编第 101 期

海国图智研究院

4. 百济神州宣布百泽安 ® 联合化疗治疗一线晚期食管鳞状细胞癌的

全球 3 期临床试验达到主要终点

百济神州（纳斯达克代码： BGNE；香港联交所代码：06160；上交所代码：688235）是一家

立足于科学的全球性生物科技公司，专注于开发创新、可负担的药物，旨在为全球患者改善治疗效

果，提高药物可及性。公司今日宣布，根据独立数据监查委员会（IDMC）在预先设定的期中分析

中评估，一项百泽安 ® 联合化疗针对既往未经治疗的晚期或转移性食管鳞状细胞癌（ESCC）患者

的全球 3 期临床试验 RATIONALE306 已达到总生存期（OS）的主要终点。该期中分析中，百泽安

® 联合化疗的安全性和耐受性特征与既往试验一致，未发现新的安全性警示。

"ESCC 作为一类难以治愈的疾病，给患者带来了沉重的负担。在 RATIONALE306 临床试验中，

百泽安 ® 联合化疗显示出生存获益令我们无比振奋。我们设计了覆盖全球的拓展性临床开发项目来

探索百泽安 ® 治疗实体瘤的潜力。此次研究是百泽安 ® 第 7 项取得积极结果的 3 期关键性试验，

验证了百泽安 ® 的治疗获益，对我们来说意义深远。" 百济神州实体瘤首席医学官 Mark Lanasa 医

学博士表示，" 此前在 RATIONALE302 临床试验中，我们评估了百泽安 ® 对比化疗，作为二线治

疗方案对于 ESCC 患者的效果，并观察到总生存期获益，而本次 RATIONALE306 研究的结果再次

扩充了我们的临床证据，进一步验证了百泽安 ® 作为 ESCC 标准治疗方案的潜力。我们由衷感谢参

与这两项关键性 3 期研究的 1,100 多位 ESCC 患者，并期待在未来的学术会议上与业界同仁共享

RATIONALE306 的研究结果。"

百泽安 ® 用于治疗既往化疗后的晚期或转移性 ESCC 的新药上市申请已获得美国食品药品监督

管理局（FDA）和欧洲药品管理局（EMA）的受理，目前正在审评过程中。此外，百泽安 ® 治疗既

往接受化疗后的晚期或转移性非小细胞肺癌（NSCLC），以及与化疗联合用药治疗既往未经治疗

的晚期或转移性 NSCLC 的申请也已获 EMA 受理，目前正在审评中。2021 年 1 月，百济神州宣布

与诺华达成合作，授权诺华在北美、欧洲和日本开发、生产和商业化百泽安 ®。

百泽安 ® 已获中国国家药品监督管理局（NMPA）批准用于八项适应症的治疗，包括最近获批

用于既往接受过一线标准化疗后进展或不可耐受的局部晚期或转移性 ESCC 患者。目前，百泽安 ®

在中国以外国家或地区尚未获批。

https://www.prnasia.com/story/359444-1.shtml

海国图智研究院

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02

Economic Dynamics

海国图智研究院

1. Inmagene Receives FDA's IND Clearance for OX40 Antagonist

Inmagene Biopharmaceuticals ("Inmagene") announces that the U.S. Food and Drug Administration

(FDA) has cleared drug candidate IMG-007, a monoclonal antibody against OX40, to proceed to Phase I

clinical development. Inmagene is developing IMG-007 in partnership with HUTCHMED (China) Limited

("HUTCHMED") (Nasdaq/AIM:HCM; HKEX:13).

IMG-007 is highly potent at blocking the binding of OX40 to OX40L, thereby reducing OX40L-dependent

downstream signaling and cytokine release by T cells. It has the potential to treat OX40+ T cell-mediated

immune diseases, including atopic dermatitis (AD).

The planned Phase 1 study is a double-blind, randomized, placebo-controlled dose-escalation study in

healthy adult subjects and AD patients. The study will be used to explore IMG-007's safety and tolerability

in healthy subjects, and its efficacy and safety in AD patients.

In Australia, this Phase 1 study has also received the approval from the Human Research Ethics Committee

(HREC) and the acknowledgement of clinical trial repository from the Therapeutic Goods Administration

(TGA).

"Research data has given us the confidence that IMG-007 is one of the strongest OX40 drug candidates

worldwide," said Dr. Jonathan Wang, Chairman and CEO of Inmagene. "Inmagene is taking many

innovative drug candidates like IMG-007 from discovery or candidate stage to global clinical studies."

Dr. Jean-Louis Saillot, Inmagene's Chief Development Officer, said, "The antagonism of the OX40/

OX40L interaction by monoclonal antibodies has been shown to be successful in phase 2 clinical trials,

which highlights the importance of targeting this axis as a promising approach for the treatment of immune

disorders, including AD. IMG-007 has demonstrated a best-in-class potential in preclinical studies. We

look forward to the initiation of the IMG-007 clinical program with the hope of developing an innovative,

safe and effective treatment option for patients with AD and other immunological diseases."

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全球健康医疗动态汇编第 101 期

海国图智研究院

https://www.prnewswire.com/news-releases/inmagene-receives-fdas-ind-clearance-for-ox40-

antagonist-301534060.html

2. China approves Pfizer's lung cancer therapy

Biopharmaceutical company Pfizer announced on Friday that Lorbrena, the world's first third-generation

anaplastic lymphoma kinase inhibitor, has been approved by China's National Medical Products

Administration for the treatment of patients with ALK-positive locally advanced or metastatic non-small

cell lung cancer.

As Pfizer's innovative targeted lung cancer therapy, the tablet demonstrates breakthrough in improving

patients' progression-free survival, can better penetrate blood-brain barrier, and have less drug resistance,

said the company.

It is recommended by the latest global guidelines as a preferred first-line therapy, and is expected to

reshape the treatment landscape of the disease by providing patients with long-term benefits, the company

said.

"This innovative therapy is a great example of how Pfizer fulfills its mission to deliver 'breakthroughs that

change patients' lives'," said Jean-Christophe Pointeau, president of Pfizer Biopharmaceuticals China.

"With the joint efforts of all, we believe that we'll eventually beat cancer, and contribute to the ambition

to increase the overall five-year survival rate of cancer patients by 15 percent by 2030 under the Healthy

China 2030 Initiative," he said.

Lung cancer has the highest incidence and mortality rates among all malignant tumors in China. The

average age of patients with ALK-positive advanced NSCLC is 52. Data showed that 20 to 40 percent of

the patients had brain metastasis at initial diagnosis, and the incidence rose over time.

http://www.chinadaily.com.cn/a/202204/29/WS626ba85ba310fd2b29e5a368.html

海国图智研究院

全球健康医疗动态汇编第 101 期

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3. Transcenta Announces First Patient Dosed in China Study of

Anti-sclerostin Monoclonal Antibody TST002 for the Treatment of

Osteoporosis

Transcenta Holding Limited ("Transcenta") (HKEX: 06628), a clinical stage biopharmaceutical company

with fully-integrated capabilities in discovery, research, development and manufacturing of antibody-based

therapeutics, announces the successful dosing of first patient in China Phase I Study of TST002 for the

treatment of osteoporosis.

This Phase I clinical trial is a randomized and double-blind, placebo-controlled, single-ascending-dose,

multi-center study designed to evaluate the safety, tolerability, and pharmacokinetics profile of TST002 as

a treatment in patients with osteoporosis.

TST002 (Blosozumab) is a humanized anti-sclerostin monoclonal antibody as a drug candidate for

osteoporosis and other bone loss diseases. It has a dual effect possessing both anabolic and anti-resorptive

effects, which stimulates bone formation and inhibits bone absorption, resulting in fast increase in bone

mineral density and bone strength. Blocking sclerostin activity in human treated with anti-sclerostin

antibody or with naturally occurring genetic deletion has been shown to be an effective approach in

increasing bone mineral density (BMD) and reducing bone fracture. Currently there is no approved antisclerostin antibody therapy in China yet although Romosozumab from Amgen has been approved in the

United States, Europe and Japan.

Transcenta in-licensed Blosozumab (TST002) from Eli Lilly and Company ("Eli Lilly") for development

and commercialization in Greater China in 2019. Eli Lilly has completed phase II clinical studies of

Blosozumab in the United States and Japan and obtained promising safety profile and efficacy data.

Transcenta successfully completed technology transfer, established manufacturing process in its Hangzhou

HJB facility, and completed GMP production for clinical use as well as the additional preclinical studies as

required by the CDE for TST002 IND application in China. IND for TST002 China study was cleared from

the NMPA on Sept. 22nd, 2021 for testing TST002 directly in patients with osteopenia.

"TST002 can potentially become the second anti-sclerostin monoclonal antibody in the world." said Dr.

Michael Shi, EVP, Head of Global R&D and CMO of Transcenta. "We look forward to conducting in-depth

study to further evaluate the safety and tolerability of TST002 and bring more efficient and diversified

treatment options for Chinese patients with osteoporosis."

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全球健康医疗动态汇编第 101 期

海国图智研究院

Currently there are over 100 million of people with various degree of osteoporosis in China and over

4 million of them are suffering from osteoporotic fractures. These numbers are increasing due to the

influence of lifestyle, diet and aging population, which result in significant health, economic and social

burdens associated with osteoporosis related fractures. There are significant unmet needs in this disease

area especially in patients with severe osteoporosis despite the availability of a number of agents antiresorptives such as bisphosphonate and anti-RANKL inhibitor and anabolic agent targeting PTH.

https://www.prnewswire.com/news-releases/transcenta-announces-first-patient-dosed-in-china-study-ofanti-sclerostin-monoclonal-antibody-tst002-for-the-treatment-of-osteoporosis-301535093.html

海国图智研究院

全球健康医疗动态汇编第 101 期

- 46 -

4. Global Phase 3 Trial of BeiGene's PD-1 Inhibitor, Tislelizumab, in

Combination with Chemotherapy Meets Primary Endpoint in FirstLine Advanced Esophageal Squamous Cell Carcinoma

BeiGene (NASDAQ: BGNE; HKEX: 06160; SSE: 688235), a global, science-driven biotechnology

company focused on developing innovative and affordable medicines to improve treatment outcomes and

access for patients worldwide, today announced the Independent Data Monitoring Committee (IDMC)

determined at a pre-planned interim analysis that RATIONALE 306, a global Phase 3 trial of tislelizumab

in combination with chemotherapy, had met the study's primary endpoint of overall survival (OS) in

patients with previously untreated advanced or metastatic esophageal squamous cell carcinoma (ESCC).

The safety and tolerability profile for tislelizumab in combination with chemotherapy at this interim

analysis was consistent with previous trials and no new safety signals were identified.

"ESCC is a difficult to treat disease that imposes a significant symptom burden on patients. We are

encouraged by the survival benefit seen in the tislelizumab and chemotherapy group in RATIONALE

306. We have designed an expansive clinical development program, with a global scope, to investigate

tislelizumab as a potential treatment for solid tumors, and it is rewarding to deliver the seventh positive

Phase 3 pivotal trial to demonstrate benefit with tislelizumab treatment," said Mark Lanasa, M.D.,

Chief Medical Officer, Solid Tumors at BeiGene. "Combined with the overall survival benefit seen in

RATIONALE 302, the second-line evaluation of tislelizumab versus chemotherapy in ESCC, the results

from 306 add to the body of evidence supporting tislelizumab as a potential standard of care for patients

suffering from this disease. We are grateful to the more than 1,100 patients with ESCC who chose to

participate in these two pivotal Phase 3 studies and look forward to sharing the RATIONALE 306 study

results with the community at a future scientific conference."

Tislelizumab is currently under review by the U.S. Food and Drug Administration (FDA) and the European

Medicines Agency (EMA) for advanced or metastatic ESCC after prior chemotherapy. The EMA is

also reviewing tislelizumab for advanced or metastatic non-small cell lung cancer (NSCLC) after prior

chemotherapy, and in combination with chemotherapy for previously untreated advanced or metastatic

NSCLC. In January 2021, BeiGene announced a collaboration with Novartis to accelerate the clinical

development and marketing of tislelizumab in North America, Europe, and Japan.

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全球健康医疗动态汇编第 101 期

海国图智研究院

Tislelizumab is approved by the China National Medical Products Administration (NMPA) as a treatment

for eight indications, including a recent approval for use in patients with locally advanced or metastatic

ESCC who have disease progression or are intolerant to first-line standard chemotherapy. Tislelizumab is

not approved for use outside of China.

https://www.finanznachrichten.de/nachrichten-2022-04/55882976-global-phase-3-trial-of-beigene-s-pd-1-

inhibitor-tislelizumab-in-combination-with-chemotherapy-meets-primary-endpoint-in-first-line-advancedesophag-004.htm