WHO adopts historic Pandemic Agreement to strengthen global health security
The World Health Assembly has formally adopted the first-ever Pandemic Agreement after three years of negotiations, establishing a framework for equitable pandemic prevention, preparedness and response.
The conclusion of discussions on the Pandemic Agreement in Committee at the World Health Assembly 2025. © WHO / Chris Black
The World Health Organization (WHO) has reached a significant milestone in global health governance with Member States formally adopting the world’s first Pandemic Agreement by consensus at the 78th World Health Assembly. This landmark decision, approved on 20 May 2025, represents the culmination of more than three years of intensive negotiations initiated in response to the COVID-19 pandemic.
A new framework for pandemic response
The Agreement, described by WHO Director-General Dr Tedros Adhanom Ghebreyesus as “a victory for public health, science and multilateral action,” aims to make the world both safer from and more equitable in response to future pandemics. It establishes principles, approaches and tools for better international coordination across various domains of pandemic management.
The Agreement was initially approved by vote in Committee with 124 Member States in favour, none objecting, and 11 abstentions, before being formally adopted in a plenary session of the World Health Assembly.
“The world is safer today thanks to the leadership, collaboration and commitment of our Member States to adopt the historic WHO Pandemic Agreement,” said Dr Tedros. “It will ensure we, collectively, can better protect the world from future pandemic threats.”
Key provisions for equitable access
A central feature of the Agreement is the establishment of multiple mechanisms to ensure equitable access to pandemic-related health products. These include a Pathogen Access and Benefit-Sharing System (PABS), a Global Supply Chain and Logistics Network (GSCL), and provisions for technology transfer.
Under the PABS system, pharmaceutical manufacturers will play a crucial role by committing to provide “rapid access targeting 20% of their real time production of safe, quality and effective vaccines, therapeutics, and diagnostics for the pathogen causing the pandemic emergency.” The distribution of these products will be prioritized based on public health risk and need, with particular attention to developing countries.
The Agreement also addresses technology transfer and intellectual property concerns, reaffirming that the TRIPS Agreement and Doha Declaration “does not and should not prevent Member States from taking measures to protect public health.”
Sovereignty and national authority preserved
A key provision clarifies the limits of WHO authority, stating: “Nothing in the WHO Pandemic Agreement shall be interpreted as providing the Secretariat of the World Health Organization, including the Director-General of the World Health Organization, any authority to direct, order, alter or otherwise prescribe the national and/or domestic law, as appropriate, or policies of any Party, or to mandate or otherwise impose any requirements that Parties take specific actions.”
This language addresses concerns raised during negotiations about potential encroachment on national sovereignty.
Implementation timeline
The adopted resolution outlines the next steps toward implementation, including the establishment of an Intergovernmental Working Group (IGWG) to draft and negotiate the Pathogen Access and Benefit Sharing system. Once this annex is adopted at next year’s World Health Assembly, the Agreement will be open for signature and ratification. After 60 ratifications, it will officially enter into force.
Dr Teodoro Herbosa, Secretary of the Philippines Department of Health and President of this year’s World Health Assembly, emphasized the urgency of implementation: “Now that the Agreement has been brought to life, we must all act with the same urgency to implement its critical elements, including systems to ensure equitable access to life-saving pandemic-related health products.”
Beyond the legal framework
The Agreement establishes several concrete mechanisms to enhance pandemic preparedness, including a Coordinating Financial Mechanism to promote sustainable financing and a Global Supply Chain and Logistics Network to “enhance, facilitate, and work to remove barriers and ensure equitable, timely, rapid, safe, and affordable access to pandemic-related health products for countries in need.”
It also addresses issues of research and development, regulatory systems strengthening, and the development of sustainable and geographically diversified local production capacities for pandemic-related health products.
Historical context
This represents only the second international legal agreement negotiated under Article 19 of the WHO Constitution. The first was the WHO Framework Convention on Tobacco Control, adopted in 2003 and entered into force in 2005.
The Agreement’s adoption comes at a critical moment as the world continues to process lessons from the COVID-19 pandemic while facing ongoing threats from emerging infectious diseases.
While formal adoption marks a significant achievement in multilateral health diplomacy, the real test will come with implementation as countries work to translate the Agreement’s principles into practical systems for preventing and responding to future pandemic threats.
