I think it can only be reactive given we don't how, where or when a pandemic will happen. Crystal ball type stuff.
For example. The UK/Scotland was recognised as having one of the best pandemic plans in the world on paper. OK the torys had ignored the plan and maybe surprisingly
had withdrawn funding over the years. But the biggest problem with covid was its a new type of virus and no-one knew how to tackle it. It was the wrong type of pandemic! Also plans can only go on for so long and then the authorities have to think on their feet.
Our plan had the UK government at the head. The Scottish Government plan fed into that. Our local governments, NHS, and other public bodies fed into that and so on.
If this pandemic has taught us one thing that's not a very good model. Pandemics don't respect borders. Governments around the world did their own thing and in my opinion that was a major failure.
The alternative though is someone like WHO or the UN or both need to lead and be properly funded to do so. That's not going to happen though so as it stands we're globally fucked for the next pandemic too.
Just my thoughts, as someone who helped prepare previous versions of the Scottish plan.