Initial Implementation of Prep in Zambia: Health Policy Development and Service Delivery Scale-Up
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Open access Original research BMJ Open: first published as 10.1136/bmjopen-2020-047017 on 9 July 2021. Downloaded from Initial implementation of PrEP in Zambia: health policy development and service delivery scale- up Cassidy W. Claassen ,1,2,3 Daliso Mumba,4,5 Mwansa Njelesani,6 Derrick Nyimbili,7 Linah K Mwango,8 Mundia Mwitumwa,2,3 Ellen Mubanga,4 Lloyd B. Mulenga,2,3,5 Tina Chisenga,5 Brooke E. Nichols ,9,10 Cheryl Hendrickson ,10 Lastone Chitembo,11 Jackson Okuku,12 Heidi O'Bra13 To cite: Claassen CW, ABSTRACT Strengths and limitations of this study Mumba D, Njelesani M, et al. Introduction Daily pre- exposure prophylaxis (PrEP) Initial implementation of for HIV prevention is highly effective, but not yet widely ► This study documents how the Zambian pre- PrEP in Zambia: health policy deployed in sub- Saharan Africa. We describe how Zambia development and service exposure prophylaxis (PrEP) Task Force, consisting developed PrEP health policy and then successfully delivery scale- up. BMJ Open of health professionals from government, donors implemented national PrEP service delivery. 2021;11:e047017. doi:10.1136/ and implementing partners, rapidly drafted and im- Policy development Zambia introduced PrEP as a key bmjopen-2020-047017 plemented national PrEP health policy. strategy for HIV prevention in 2016, and established ► This study describes the national implementation ► Prepublication history for a National PrEP Task Force to lead policy advocacy and scale up of PrEP to >700 health facilities and this paper is available online. and development. The Task Force was composed of To view these files, please visit nearly 27 000 clients in 2 years. government representatives, regulatory agencies, the journal online (http:// dx. doi. ► PrEP service delivery is examined by key population international donors, implementation partners and civil org/ 10. 1136/ bmjopen- 2020- type as well as mapped to population density and society organisations. Following an implementation pilot, 047017). HIV prevalence. PrEP was rolled out nationally using risk- based criteria ► A limitation of this study is the use of aggregate data; Received 07 December 2020 alongside a national HIV prevention campaign. thus it does not include patient-level data for better Accepted 10 June 2021 National Scale-up In the first year of implementation, understanding of PrEP uptake and continuation. ending September 2018, 3626 persons initiated PrEP. ► The Zambia PrEP health policy development model By September 2019, the number of people starting PrEP http://bmjopen.bmj.com/ may be useful to other countries seeking to imple- increased by over sixfold to 23 327 persons at 728 sites ment PrEP. across all ten Zambian provinces. In the first 2 years, 26 953 clients initiated PrEP in Zambia, of whom 31% were from key and priority populations. Continuation when adherence is >70%0.7 PrEP has the remains low at 25% and 11% at 6 and 12 months, potential to limit HIV acquisition among respectively. at- risk populations, including those who Lessons learnt Risk- based criteria for PrEP ensures access to those most in need of HIV prevention. Healthcare may not be able to negotiate condom usage worker training in PrEP service delivery and health needs or who engage in high- risk activities. PrEP on September 27, 2021 by guest. Protected copyright. of key and priority populations is crucial. PrEP expansion can be taken discreetly, it offers high rates into primary healthcare clinics and community education is of protection, and does not require negoti- required to reach full potential. Additional work is needed ation with partners, unlike barrier methods to understand and address low PrEP continuation. Finally, and microbicide gels.8 9 PrEP is also associ- a task force of key stakeholders can rapidly develop and ated with few safety risks, and there is limited implement health policy, which may serve as a model for evidence of behavioural risk compensation.7 countries seeking to implement PrEP. Despite these promising results, PrEP roll-out has been slow in sub- Saharan Africa with only © Author(s) (or their a handful of countries implementing large employer(s)) 2021. Re- use INTRODUCTION scale national PrEP programmes, including permitted under CC BY-NC. No commercial re- use. See rights Daily pre- exposure prophylaxis (PrEP) with South Africa, Kenya, Uganda, Zimbabwe and 10 and permissions. Published by tenofovir disoproxil fumarate and emtricit- Zambia. BMJ. abine for the prevention of HIV infection Initial PrEP demonstration implementa- For numbered affiliations see is a highly effective prevention tool, recom- tion projects have shown high uptake among end of article. mended for persons at substantial risk of HIV serodiscordant couples (SDCs),11 12 adoles- 1 13 14 Correspondence to infection by WHO since 2015. PrEP effective- cent girls and young women (AGYW), 2–6 15–17 Dr Cassidy W. Claassen; ness is highly correlated to adherence, with female sex workers (FSWs) and men who cclaassen@ ihv. umaryland. edu studies showing that PrEP is most effective have sex with men (MSM).18 19 Interest in, and Claassen CW, et al. BMJ Open 2021;11:e047017. doi:10.1136/bmjopen-2020-047017 1 Open access BMJ Open: first published as 10.1136/bmjopen-2020-047017 on 9 July 2021. Downloaded from uptake of, PrEP is high but PrEP continuation remains a government agencies, donors, and implementing part- challenge in many groups, particularly AGYW. Successful ners for the roll-out of PrEP in Zambia. We also report national PrEP programmes in Africa have invested in on the current status, challenges faced, and lessons learnt creating PrEP awareness and demand via mass media and from PrEP policy and service delivery implementation in community health talks, have streamlined PrEP delivery Zambia. via not only ART clinics but also drop-in centres for key populations (KPs) and DREAMS (Determined, Resil- PrEP policy and implementation ient, Empowered, AIDS- free, Mentored, Safe) centres for Development of PreP health policy and implementation guidelines AGYW, and have built PrEP capacity among healthcare in Zambia workers (HCWs) via trainings and mentorship. Chal- In 2016, the Zambian Ministry of Health (MOH) adopted lenges in PrEP programming persist, including the need the 2015 WHO guidelines1 recommending daily oral to improve PrEP access, streamline PrEP delivery models, PrEP for people at substantial risk of HIV infection, increase HCWs trained in PrEP and finally increase PrEP defined as HIV incidence greater than 3 per 100 person- continuation.10 years (see figure 1 for a timeline of PrEP policy and imple- Zambia’s HIV epidemic is generalised, with a persistently mentation). PrEP was introduced in the 2016 Zambia high prevalence of 12.0% and annual incidence of 0.61% Consolidated Guidelines for Treatment and Prevention among adults 15–59 years old.20 Concentrated pockets of of HIV Infection27 and further expanded in the 2018 high HIV transmission disproportionately affect popu- version.28 In September 2017, the National PrEP Task lations who face substantial psychosocial and structural Force was established, comprising key personnel from barriers to accessing health services and continue to drive MOH, National HIV/AIDS/STI/TB Council, WHO, epidemic transmission. These include SDCs; AGYW; UNAIDS, US President’s Emergency Plan for AIDS Relief FSW and their clients; MSM21; transgendered (TG) indi- (PEPFAR), US Agency for International Development viduals22 and high- risk men, particularly those under (USAID), US Centers for Disease Control and Prevention 30, engaged in migrant work (eg, truck drivers,23 cane (CDC), PEPFAR implementing partners (IPs) and civil cutters24 or in prison).25 26 These groups have a higher HIV society organisations (CSOs). The Task Force’s mandate prevalence compared with the general population, and was to lead policy advocacy and formulate a national would benefit the most from HIV prevention methods, PrEP implementation framework to guide PrEP service including biomedical interventions such as PrEP. delivery. The Task Force created three sub- committees: Beginning in 2016, Zambia introduced PrEP as a (1) medical/technical service delivery and monitoring component of combination HIV prevention services, and evaluation (M&E); (2) logistics and supply chain and which also includes counselling, family planning, volun- (3) social behavioural change communication and policy tary male medical circumcision and condom distribution. advocacy. Within each subcommittee, technical experts http://bmjopen.bmj.com/ In this paper, we present a model of integrated health reviewed the latest evidence and guidelines for the larger policy and technical service delivery accomplished by Task Force (table 1, next page). Additionally, the Task on September 27, 2021 by guest. Protected copyright. Figure 1 Timeline of PrEP policy and implementation in Zambia. PrEP, pre- exposure prophylaxis; SDC, serodiscordant couples; UMB, University of Maryland Baltimore; UTH, University Teaching Hospital. 2 Claassen CW, et al. BMJ Open 2021;11:e047017. doi:10.1136/bmjopen-2020-047017 Table 1 Subcommittee membership, mandates and activities for PrEP policy development Subcommittee Chaired by Members Mandates Activities Medical/Technical MOH and University Doctors and ► Guide the development of the ► Reviewed PrEP implementation literature. of Maryland Baltimore nurses from the 2018 PrEP guidelines. ► Assessed PrEP deployment in other sub- Saharan countries. MOH, PEPFAR ► Guide the development of the ► Developed