Public Disclosure Authorized
Public Disclosure AuthorizedPublic Disclosure Authorized
No. 43
February 23, 2021
Five Ways that COVID-19 Diagnoscs Can Save Lives: Priorizing Uses of Tests to Maximize Cost-Effecveness
Tristan Reed, William Waites, David Manheim, Damien de Walque, Chiara Vallini, Roberta Ga, and Timothy B. Halle
Supplies of diagnosc tests for SARS-CoV-2, the virus that causes COVID-19, are sll limited in many countries, and there is uncertainty about how to allocate the scarce supply across alternave types of tesng (use cases). This Research & Policy Brief quanfies the cost-effecveness of five alternave diagnosc use cases in terms of tests required per death averted. Across use cases, a single death can be averted by administering 940 to 8,838 tests, implying a large and posive return on investment in all use cases-even assuming a very low value for loss of life. That is, all five use cases pay for themselves many mes over. When prevalence of SARS-CoV-2 is high, the most cost-effecve uses of SARS-CoV-2 diagnoscs seem to be clinical triage of paents, at-risk worker screening, and populaon surveillance. Test-trace-isolate programs and border screening are also worthwhile, although they are more resource intensive per death averted if done comprehensively. These laer two intervenons become relavely more cost effecve when prevalence is low, and can stop the virus from entering a community completely. While governments should seek widespread deployment of tests in all five use cases, priorizing them in this way is likely to maximize the cost-effecveness of their use. As more contagious strains emerge, each use case will become more valuable than ever.
Introducon
SARS-CoV-2, like many infecous diseases, can be transmied from persons who are not obviously ill. This presents a major challenge because it means that a public health response cannot rely upon symptoms to track and control its spread (Fraser et al. 2004). Indeed, even if everyone immediately self-isolated upon the onset of symptoms, and the self-isolaon eliminated any risk, this would reduce transmission by, at most, 50 percent (Grassly et al. 2020)-and that is not enough to avert an epidemic of SARS-CoV-2.
Public Disclosure Authorized
Use case | Tests per | COVID-19 | Tests | Tesng | |
death averted | deaths averted | required | populaon | ||
1 | Clinical triage and cohorng | 940 | 106 | 100,000 | 100,000 paents upon admission |
2 | At-risk worker screening | 1,042- 5,208 | 19-96 | 100,000 | 100,000 workers for one week |
3 | Populaon surveillance to | 1,611 | 175 | 281,884 | Regular samples per 100,000 for one year |
trigger or avoid lockdown | |||||
4 | Test-trace-isolate | 4,459 | 392 | 1,763,485 | Regular samples per 100,000 for one year |
5 | Border screening | 8,838 | 11+ | 100,000 | 100,000 border crossers |
first quarter of 2020. In sengs where households lack buffer stocks of food and savings, and must leave their homes for their livelihoods in the absence of social protecon, lockdowns may not be feasible and there may be greater reliance on a set of "social distancing" measures. Such measures may have an important effect, but the available evidence does not suggest they would be sufficient to avert an epidemic (Flaxman et al. 2020), especially as contagiousness rises with new strains.
Because vaccinang enough of the populaon to reach herd immunity will take me, in both high-income countries (where a majority are hesitant to get the vaccine immediately) (Galewitz 2021) and in middle-income and low-income countries (where supplies could be constrained unl 2024, according to a risk-assessment by COVAX (Beaumont 2020), a global facility to provide universal vaccine access), countries connue to implement nonpharmaceucal intervenons, including social distancing and full or paral lockdowns. Lockdowns can arrest epidemic spread in many sengs (Flaxman et al. 2020) but carry enormous economic costs-perhaps 0.25 to 0.86 percent of GDP per week (see Acemoglu et al. 2020; Alon et al. 2020; de Walque et al. 2020; Eichenbaum, Rebelo, and Trabandt 2020). Notably, China's GDP declined by 0.86 percent per week in the
Fortunately, diagnoscs can be used to test persons for the presence of current infecon. This opens new approaches to control transmission and ease the trade-off between economic and health concerns with targeted rather than general containment measures. In combinaon with a range of other concerted acvies (self-isolaon and nonpharmaceucal intervenons), they could contribute enormously to saving lives and minimizing costly lockdowns.
This Brief considers five use cases (among many) to pinpoint the means by which tesng for SARS-CoV-2 can contribute to saving lives during the COVID-19 pandemic (table 1). These cases are provided as quantave illustraons of what may be possible. The precise way in which tests can be best put to use in any parcular seng, and the actual benefits derived, are highly sensive to many factors specific to the seng and mode of use. The Brief considers those tests that
Table 1. Summary of Diagnosc Cost Effecveness by Use Case
Source: Authors' calculaons.
Note: Tests per death averted may not match rao of tests required to COVID-19 deaths averted due to rounding. All scenarios consider the incremental value of tesng, compared to a scenario where individuals are isolated based on symptoms alone. The major effect of border screening is in minimizing the introducon of virus to the country and so contributes to making all the other aspects of migang epidemic more likely to work. " + " indicates that the esmate of deaths averted refers only to the number of infecons among those quaranned, who were not already infected.
Affiliaons: Tristan Reed, World Bank Development Research Group; William Waites, University of Edinburgh; David Manheim, University of Haifa; Damien de Walque, World Bank Development Research Group; Chiara Vallini, Boston Consulng Group; Roberta Ga, World Bank Human Development Global Pracce; and Timothy B. Halle, Imperial College London and Modelling Guidance Group of The Global Fund for the ACT Covid-19 Diagnoscs Accelerator. For correspondence: timothyy..hhaallelet@t@iimppeeriraial.la.acc.u.ukkandtreed@worlldbbaannkk.o.orgrg.
Acknowledgements: We are grateful to Norman Loayza, Young Eun Kim, and members ohfttpAs:C//wTwwA.ficncdedxl.eorrga/ctoovidr-1D9/iaactg-anccoesleractosr-pProigllreasrs/ for helpful comments, and Nancy Morrison for excellent editorial assistant.
Objecve and disclaimer: Research & Policy Briefs synthesize exisng research and data to shed light on a useful and interesng queson for policy debate. Research & Policy Briefs carry the names of the authors and should be cited accordingly. The findings, interpretaons, and conclusions are enrely those of the authors. They do not necessarily represent the views of the World Bank Group, its Execuve Directors, or the governments they represent.
detect infecon 90 percent of the me (test sensivity), and correctly idenfy negave cases 97 percent of the me (test specificity), in line with available angen-based rapid diagnosc tests. The details of each use case are considered in turn in the discussion that follows, although it is important to note that these cases do in fact interlock and depend upon one another.
The analysis also computes the cost-effecveness of each use case, as measured by "tests per death averted" (see results in table 1). The incremental impacts of diagnoscs are considered, over and above self-isolaon and social distancing. Given the low cost of a single test, the results suggest benefits that substanally exceed costs: a death can be averted for the cost of $4,700 to $44,190, depending on diagnosc use case, or the cost of 940 tests to 8,838 tests at $5 each. Following others who have quanfied a return on investment (ROI) with respect to the recommended value of a stascal life, the ROI of one test ranges between 3.5 (for the use case of border screening) and 41.6 (for the use case of clinical triage and cohorng) when assuming a low value of stascal life of only $200,000- which is 2 percent (1/50) of the esmate for the United States derived by Robinson et al. (2019). Higher valuaons would lead to even higher returns.
In certain circumstances (described in the discussion that follows), these returns are in addion to other major benefits, such as avoiding lockdowns and increasing confidence among consumers and workers.
These esmates tend to be conservave, as they do not incorporate several factors that are likely to be important. First, several of the calculaons consider only the effect of the intervenon on reducing transmission from a single person, and do not account for the effect that this may have in stemming a whole chain of transmission. The analysis focuses only on deaths, whereas SARS-CoV-2 also causes substanal illness, and long stays in hospital for many paents are costly and may overwhelm the health system, increasing the risk of death overall. The benefits of controlling hospital-acquired (nosocomial) infecons- by placing paents known to be infected with SARS-CoV-2 in isolaon wards together and screening health care workers may have the addional benefit of lessening disrupon of other services and freeing up staff to aend to other forms of care; this could help avoid knock-on consequences of
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the COVID-19 epidemic (Hogan et al. 2020). Other economic benefits may not be reflected in these calculaons: for instance, screening of key workers may enable more business to connue operang, and screening haulers at the border (rather than closing borders) helps internaonal trade to connue.
Five Use Cases
1. Clinical Triage and Cohorng
In a clinical seng, diagnosc tests may be used to confirm paents' infecon so that infected paents may be grouped together and isolated from other paents, a policy known as cohorng. Without a test for SARS-CoV-2, this may be done instead based on symptoms, whereby hospitals group all paents without symptoms together. As a result, those who are not infected may be grouped with those who are infected with SARS-CoV-2 but are asymptomac.
Authors' calculaon shows that cohorng using a diagnosc test rather than symptoms alone can reduce infecons originang from the hospital by 87 percent, resulng in 106 fewer deaths per 100,000 paents at the peak of the epidemic. It is assumed that 50 percent of paents entering the hospital have SARS-CoV-2 at the peak of an epidemic. To account for risk of in-hospital infecon, it is assumed that the potenal for transmission (i.e., R0, the basic reproducon number) is 2.5 in the hospital seng (meaning that each infecon leads to 2.5 more infecons), but this does not affect the proporonate reducon in transmission risk that is provided by the
use of tesng (see Excel spreadsheet for calculaon).
https://drive.google.com/file/d/1HJ04XH23Ak7h7ARvBEqVH-TtuGGbZA1e/view
2. At-Risk Worker Screening
The risk of any group of workers contribung to onward transmission can be reduced by screening them for SARS-CoV-2. Screening enables those persons who are infected but not symptomac to self-isolate (in addion to those who have symptoms) (Grassly et al.2020). The impact depends on how oſten they are screened and the delay unl they self-isolate (if the test is posive). If screening is done weekly and test results are provided before they risk infecng others, this could reduce the risk of onward transmission by about 32 percent.
The cost of at-risk worker screening depends on the number of tests needed to find one person who is currently infected who would not self-isolate without screening: that is, the prevalence of SARS-CoV-2 among those without symptoms in that group. Thus, screening is more cost effecve when it is done on higher-risk groups, such as health care workers, and those in public-facing roles. This prevalence will depend on the epidemic stage and other factors: for example, it was found to be as high as 10 percent among health workers in London at the peak of the epidemic (see, for example, Treibel et al. 2020), and 20 percent among those on COVID-19 wards in an Oxford hospital (Eyre et al. 2020), but 2 percent in frontline workers in the United Kingdom overall some weeks later (see, for example, the 2020 ONS survey in the United Kingdom). Between these high and low extremes, the number of tests per death averted ranges between 1042 and 5208, respecvely (figure 1). Thus, when deployed among a group at very high risk, this would appear to be one of the most cost-effecve and widely applicable use cases.
3. Populaon Surveillance to Trigger or Avoid Lockdown
If the policy is to implement a lockdown in an area (such as a large city) if there is a chance that the prevalence of SARS-CoV-2 infecon is more than 2 percent, random samples could be drawn from the populaon to inform that decision. This trigger value of prevalence is chosen somewhat arbitrarily. Smaller trigger values would require
larger sample sizes but lead to longer periods of lockdown. It is an open queson (not addressed here) as to the opmal triggers to use in this regard.
As an example, a daily random sample of 772 persons (or an equivalent) could be used to check if it can be ruled out (with 99 percent certainty) that prevalence exceeds 2 percent (see https:/o/driven.googlle.iconm/filee/d/1Pj-gaJaoepH_QEphjiURefHZdn6Me8dNaS2i-T7x/view?Ausp=shafringor derivaon) To have the same certainty that the prevalence is below 0.1 percent would require a random sample of 15,745 persons. The same-size sample is required to measure prevalence (with a given level of certainty) in any populaon, if the sampling is representave.
Using the epidemiological model described inhttpos://drnive.gologilen.come/file/d/15aah-8rpDspbpkNzvteYh9AneVX3dJNIdjiJ1xzB/viewB?usp=,sharing this analysis calculates lives saved from a lockdown policy that triggers when more than 2 percent of tests are posive, and is released when less than 1 percent of tests are posive. The lockdown is calibrated to reduce interpersonal contact such that the Reproducon Number (R) falls below 1. If implemented for one year, the lockdown policy guided by random sampling is expected to avert 175 deaths per 100,000 people at the cost 281,884 tests per year (that is, 772 tests per day), leading to a cost-efficiency of 1,611 tests per death averted.
By the same token, because lockdown can be released quickly (or avoided altogether when unnecessary), days of unnecessary lockdown are avoided, and this would minimize disrupons to the economy. Box 1 describes how such an approach may have contributed to imposing and relieving lockdowns in Italy.
Box 1. Populaon Surveillance to Guide a Response in Pracce
Italy was the country second worst affected by COVID-19 aſter China by March 2020. When the country suffered its first death on February 22 in the small town of Vo (3,000 inhabitants) in Veneto, the whole town was put in quaranne and every inhabitant was tested. During the first round of tesng, 89 people tested posive. During the second round, 9 days later, only 6 were infected. Interesngly, the Italian authories found that at the me of the first symptomac case, about 3 percent of the populaon had already been infected and most of them were completely asymptomac. Through mass tesng and isolaon of those infected, the virus was eradicated from the town rapidly. At least 60 percent of all people infected by the virus were asymptomac. Mass tesng can give a clear picture of how many people are carrying the virus and can transmit it to others.
Source: Crisan and Cassone 2020.
4. Test-Trace-Isolate
Box 2. Test-Trace-Isolate in Pracce
Research & Policy Brief No.45
The Republic of Korea experienced a steep growth in COVID-19 cases early in the pandemic, but it quickly reduced rates of infecon and maintained low numbers of daily new cases. Korea did not implement strict lockdown measures, but focused on case-based contact tracing and cluster tesng and isolang. The country expanded tesng capacity from 3000/day on February 7, 2020 to 15,000/day to 20,000/day, with a turnaround me of 6 hours to 24 hours by the end of March. All suspected cases and paents under invesgaon are tested. Contact-tracing is performed through a mix of paent interviews and analysis of mobile phone locaon, credit card transacons, and health data.
Source: Dighe et al. 2020.
The analysis focuses on a highly effecve tesng and tracing system whereby tests are provided quickly (90 percent within 48 hours) to those who are self-isolang; the message to self-isolate is conveyed to all contacts rapidly (90 percent within 48 hours); and the intervenon begins from a point when incidence is low (0.01 percent of the populaon infected). It considers a city of 100,000 people in which other available intervenons have already been used. The analysis assumes that the R0 is 1.5, having been reduced through effecve social distancing measures, and further assumes that 25 percent of persons self-isolate effecvely upon the onset of symptoms that could be caused by COVID-19. In addion, persons may have symptoms that are caused by another pathogen but that are mistaken as being those of COVID-19, and this leads to unnecessary periods of isolaon for some.
Compared to a scenario without it, the test-trace-isolate intervenon could help avoid a wave of the epidemic, prevenng 392 deaths per 100,000. If a more general lockdown would have been ordered (as per the same criteria), the intervenon would also help avoid that lockdown. This would spare the economy a loss of 12 percent of GDP, assuming producvity under lockdown is 70 percent lower than normal.
The disncve contribuon of the tesng component (as opposed to the tracing and isolang components) is to allow persons who are not actually infected to avoid the period of isolaon (which they would endure if there were no tesng and they had symptoms or were in recent contact with someone who did and were traced). An intervenon that includes tesng leads to 29 percent fewer person-days spent in isolaon than one that does not include tesng.
These calculaons are sensive to many assumpons but are broadly consistent with other independent analyses of the impact of
Again using the epidemiological model outlined ihttnps://driove.gonoglel.ciomn/filee/d/15ahA-8rDsppbkpNzvtYeh9AneVX3dJNIdijJx1zB/viBew?u,sp=sharing contact tracing (Ferre et al. 2020; Grassly et al. 2020; Kucharski et al.
the analysis considers a "test-trace-isolate" (TTI) intervenon being rolled out, whereby an index person who has had symptoms (who is self-isolang) receives a test. If the test is posive, their recent contacts are instructed to self-isolate, and they, in turn, are tested. If their test is negave, they will cease self-isolang. If the test is posive, a new round of contact tracing occurs whereby their own recent contacts are instructed to self-isolate and then are tested. TTI is the most targeted form of lockdown; it is applied only to those who are infecous. Box 2 presents a the case study of this intervenon in pracce.
2020). The assumpon used here that half the people infected with SARS-CoV-2 have no symptoms but have the same risk of transmission as others makes our esmates of the impact of the "test-trace-isolate" intervenon conservave. However, the intervenon would be substanally less effecve if it was slower to test and trace persons than assumed here, or started from a point of a higher number of cases. The intrinsic value of tesng per se would also be lower if the frequency of symptoms not caused by SARS-CoV-2 (but rather by influenza) was lower, or adherence to self-isolaon did not increase even if those tested received a posive test result.
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5. Border Screening
The number of infected persons entering a country can be reduced through tesng and quaranne of those tesng posive. Again, this approach is more effecve than solely quaranning persons who have symptoms. The proporonal reducon in the number of persons with SARS-CoV-2 who enter the country following screening is equal to the sensivity of the test: so, a 90 percent sensivity test implies 90 percent fewer introducons of infecon to the country, compared to screening with symptoms alone. The fewer persons who enter a country with infecon, the less likely it is that the infecon will spread widely and the more likely it is that effecve measures can be put in place to control it. Of course, the effecveness of border screening also depends on what coverage of border-crossers can be achieved.
There is further risk that, without tesng, quaranne of persons with symptoms crossing the border can result in addional infecons, if those quaranned are housed in the same locaon as those without SARS-CoV-2 (for example, Zimbabwe reports new infecons at quaranne facilies, ACF 2020). Authors' calculaons show that "border screening" could achieve 11 fewer deaths per 100,000 people crossing the border. Here, it is assumed that 1 percent of the populaon crossing the border has SARS-CoV-2, and that R0 is 3.0, to account for the fact that social distancing may not be adhered to at border crossings. A lower R0 would imply fewer deaths averted per
test (see Excel spreadsheet with the calculaon).
https://drive.google.com/file/d/1HJ04XH23Ak7h7ARvBEqVH-TtuGGbZA1e/view
Economic Consideraons
This Brief has illustrated five ways that SARS-CoV-2 diagnoscs can save lives, and has esmated the cost-effecveness of each use case using a standard epidemiological approach. There is a large and posive return on investment in diagnoscs in all five use cases, even for a very low value of a stascal life. Clinical triage and cohorng; populaon surveillance to trigger or avoid lockdown; and at-risk worker screening appear to be the most cost effecve, followed by test-trace-and-isolate programs and border screening. While governments should seek supplies to deploy diagnoscs in all use cases, priorizing them in this order is likely to maximize the cost-effecveness of their use.
To arrive at these results, the analysis has assumed that disease prevalence is very high-that is, the pandemic is out of control-as is the case in many countries. A caveat demonstrated in figure 1 is that deaths averted per test falls as disease prevalence falls, because with lower prevalence more tests will be used on those who are not infected. For countries with very low prevalence and where very few cases would be detected in a clinical seng, border screening may be more cost effecve than either clinical triage and cohorng or
screening of at-risk workers. Readers may use our Excel tool to
https://drive.google.com/file/d/1HJ04XH23Ak7h7ARvBEqVH-TtuGGbZA1e/view
compare cost-effecveness under alternave levels of prevalence.
Addional consideraons concern how transmissibility and virulence affect the calculaons. New, more contagious strains imply that any single social interacon is more likely to lead to infecon, which will only make tesng more valuable. Differences in the age distribuon and obesity rates across communies may affect the case fatality rate (Goldberg and Reed 2020) and thus deaths averted per test, though such differences will not materially affect the ranking of use cases by cost effecveness within a community. Moreover, even with a lower case fatality rate, each tesng use cases will sll have an ROI greater than 1, even for a very low value of a stascal life.
The effecveness of tesng is linked to how much sociees invest in it. If countries invest more in the research and development of more accurate and rapid tests and in the complementary skills required for delivery and tracing, this investment can help save even more lives and livelihoods.
Finally, social returns from tesng are higher than individual returns. Indeed, contagion implies a negave externality (a cost to others that is not internalized by the contagious individual), while tesng implies a posive externality (a benefit that extends to society beyond the contagious individuals' benefit). This wedge between private and social benefits is parcularly high for asymptomac but infecous people because they have no incenve to get tested or to isolate themselves. To solve this externality, governments should think about using incenves for people to get tested. Such incenves for tesng have been used in the past for tuberculosis (TB) and HIV (Geffen 2011; Keang 2013).
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