The Mental Capacity Act and adult...
Transcript of The Mental Capacity Act and adult...
01/12/2016
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TheMentalCapacityActandadultsafeguarding
Steve Chamberlain
Scheduleforthesession
• Adultsafeguarding– Typesofabuseandresponsibilities
• Context– HouseofLordspost-legislativereport
• Supportingdecisionmaking,assessingcapacity• Bestinterests• Restraint,includingmedication• Deprivationofliberty• IndependentMentalCapacityAdvocates• Advancecareplanning
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Safeguardinginitsdifferentforms• Safeguardingagainstabuseandneglect
– CareAct2014– Adultsafeguardingprocedures
• Safeguardingpeople’shumanrights– Dutyofcareandrightstoautonomy– EuropeanConventiononHumanRights
• Article2:righttolife• Article3:righttofreedomfrominhumananddegradingtreatment
• Article5:righttoliberty• Article8:righttoprivateandfamilylife©SteveChamberlain2016
ADULTSAFEGUARDING
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Underpinningprinciples
• Empowerment– Supportandencouragepeopletomaketheirowndecisions
– Informedconsent• Prevention
– Bettertotakeactionbeforeharmoccurs
• Proportionality– Theleastintrusiveresponseappropriatetotherisk– Professionalswillonlygetinvolvedasmuchasneeded
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Underpinningprinciples
• Protection– Supportandrepresentationforthoseingreatestneed
• Partnership– Localsolutionsthroughservicesworkingwithcommunities– Treatingpersonalandsensitiveinformationinconfidence
• Accountability– Accountabilityandtransparencyindeliveringsafeguarding
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Whathaschangedaboutadultsafeguarding?
• Pre-CareAct– Nostatutorydutytoinvestigate– Riskofabusewasoneelementofeligibility
• CareAct2014(s42)– …wherealocalauthorityhasreasonablecausetosuspectthatanadultin
itsareaa) hasneedsforcareandsupport(whetherornottheauthorityis
meetinganyofthoseneeds),b) isexperiencing,orisatriskof,abuseorneglect,andc) asaresultofthoseneedsisunabletoprotecthimselforherself
againsttheabuseorneglectortheriskofit.– (2)Thelocalauthoritymustmake(orcausetobemade)whateverenquiries
itthinksnecessarytoenableittodecidewhetheranyactionshouldbetakenintheadult’scaseand,ifso,whatandbywhom.
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Typesofabuseandneglect
• Physicalabuse– Incl.misuseofmedication,inappropriaterestraint
• Domesticviolence– Incl.‘honour-based’violence
• Sexualabuse• Psychologicalabuse
– Incl.coercion,cyberbullying,deprivationofcontact
• Financialormaterialabuse– Incl.coercioninrelationtofinancialaffairs
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Typesofabuseandneglect
• Modernslavery– Humantrafficking,forcedlabour,domesticservitude
• Discriminatoryabuse• Organisationalabuse
– Incl.neglectandfailuretoprovideforneedsthroughorganisationalpoliciesandpractices
• Selfneglect– Incl.hoarding,failuretocareforpersonalhygiene,environment
– Maynotautomaticallytriggeras42investigation– Shouldbeconsideredonacase-by-casebasis
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Consentandsafeguarding
• Doesthepersonhavementalcapacitytomakedecisionsabouttheirownprotection?– Supporttomakeowndecision,or– Bestinterestsdecision
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Overridingobjectionstosharinginformation?
• Inwhatcircumstances?– Thepersonlackscapacity– bestinterestsdecision– Emergencyorlife-threateningsituation– Otherpeopleare,ormaybe,atrisk,includingchildren
– Sharinginformationcouldpreventaseriouscrime– Seriouscrimehasbeencommitted– Riskisunreasonablyhigh– caseconferenceneeded– Staffareimplicated– Courtorderorotherlegalauthoritytoshare
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Doesthepersonneedsupport?
• Hascapacitytomakedecisions• Hascapacitybut
– has‘substantialdifficulty’understanding,retaining,weighing,communicating,and
– nosuitablepersontorepresentandsupport• Independentadvocate(CareActs67)
• Lackscapacitytomakedecisionsregardingprotection
• IndependentMentalCapacityAdvocate(IMCA)
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MakingSafeguardingPersonal
• ‘Shouldbeperson-led,outcome-focused’• ‘Enhancesinvolvement,choiceandcontrol’• ‘Improvesqualityoflife,well-being,safety’
CareActstatutoryguidance14.15
• Adultssupportedtomaketheirowndecisions• Adultshaveageneralrighttoindependence,choiceandself-determination,includingcontroloverinformationaboutthemselves
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Currentprocedures
• Concern• Enquiry• Safeguardingplanandreview• Closingtheenquiry
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Concern
• …anyworryaboutanadultwhohasorappearstohavecareandsupportneeds,thattheymaybesubjectto,ormaybeatriskof,abuseandneglectandmaybeunabletoprotectthemselvesagainstthis.
• Canberaisedbyanyone
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LBWANDSWORTHTHRESHOLDGUIDANCE
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PhysicalIsolatedincident:notsafeguarding• Staffcausingnoharme.g.
frictionmarkonskinduetoillfittinghoistsling
• Minoreventsthatstillmeetthecriteriafor“incidentreporting”
• Bruisingcausedbyfamily/carerduetopoorliftingandhandlingtechnique.Noharmintended,immediatelyresolvedwhengivencorrectadvice/equipment
Possiblesafeguarding• Inexplicableminormarking
foundwherethereisnoclearexplanationastohowtheinjuryoccurred.
• Unwantedphysicalcontactfrom‘informal’carer– noharmandquicklyresolved
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Physical(medication)Isolatedincident:notsafeguarding• Adultdoesnotreceive
prescribedmedication(missedorwrongdose)– noharmoccurs
Significant:safeguardingresponseneeded• Recurrentmissedmedication
oradministrationerrorsthataffectmorethanoneadultand/orresultinharm
• Time-critical/dose-criticalerror
• CovertadministrationwithoutpropermedicalsupervisionoroutsidetheMentalCapacityAct
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Possiblesafeguarding• Recurrentmissed
medicationoradministrationerrorsinrelationtooneserviceuserthatcausednoharm
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Referencesandcontacts
• LBWandsworthadultsafeguardingthresholdguidance2016– http://www.wandsworth.gov.uk/downloads/file/12136/safeguarding_threshold_guidance_2016
• Adultsocialcaresafeguardingcontactdetails– 02088717707– [email protected] (notsecureemail)
• Communitymentalhealthteamcontactdetails– 02087673411– [email protected] (notsecureemail)
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Safeguardingandcapacity?
• Mentalcapacity≠Safeguarding• Whatdotheyhavetodowitheachother?
– Choiceandcontrol– Abilitytokeepselfsafefromharm– Autonomyandrisk-taking– Dutyofcare– Protectingvulnerableadultsfromharm
• Whatdoes“vulnerable”mean?• Vulnerable≠incapacitated
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MENTALCAPACITY
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CodesofPractice
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HouseofLordspost-legislativescrutinyreport(Mar14)
• TheAct…continuestobeheldinhighregard– but…
• …theprevailingculturesofpaternalism(inhealth)andrisk-aversion(insocialcare)havepreventedtheActfrombecomingwidelyknownorembedded.
• Theempoweringethoshasnotbeendelivered.
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Thepresumptionofcapacity
“Evidencetothisinquirysuggeststhattheimplementationofthisprincipleispatchy,atbest.Theprincipalreasonsforthisareatendencyamonghealthandsocialcarestafftomakeassumptionsbasedonimpairment;thefailuretoconductassessmentswhennecessary;thepoorqualityofassessmentsgenerally,andthefailuretotakeintoaccounttheimpactofspecificconditionsonassessment.”
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Thepresumptionofcapacity
“…patientsaredeemedtolackcapacityon‘assumptions’ofprofessionalsbecauseofamentalillness,deafness,appearance,age”.
AdvocacyServiceCymru
Peoplewerebeingfoundtolackcapacity“forreasonswhichtheActdoesnotallow,i.e.ablanketassumptionbasedupondiagnosisoranunwisedecision”.
MentalHealthFoundation
Inmedicalsettingsespecially“theretendstobeanimmediateassumptionoflackofcapacity”.
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Assessingcapacity
A BestInterestsAssessor,describeda“strongreluctance”bysomenursesandsocialworkerstoundertakeanassessmentduetoafearthattheirdecision“mightbetestedbythelegalprofessioninacourtoflaw”.WealsoreceivedevidencefromaGP,whoarguedthatcapacityassessmentsassetoutbytheActrequiredalegalratherthanmedicaldecision,whichwas“disruptivetomedicalassessment”and“liabletocauseconfusion”.
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Assisteddecision-making
“…thereisstillatendencytounderstandtheActasaframeworkformakingdecisionsfororonbehalfofapersonratherthanencouragingandmaximising theirparticipationinthedecisionmaking.”
BristolMindIMCAservice
“…thefocuscontinuestobeonprotectionratherthanenablement,andonbestinterestdecisionmakingasopposedtosupporteddecision-makingbytheimpairedperson.”
LawSociety
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Unwisedecisions“…thereisstillatendencytoactinapaternalistic/authoritarianfashionandmakedecisionsbasedonthestaff’sperception”.
BritishPsychologicalSociety
A“protectionimperative”oftenexisted,especiallyinhospitalsettings.
GloucestershireMCAgovernancegroup
Astudyofhealthcarestafffoundapaternalisticmodelofcarewherebestinterestsdecisionswerefavouredoversomeonebeingfoundtohavecapacityandmakinganunwisedecision.
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Bestinterests
“…professionalspickandchoosewhentoinvolve[carers]”TheCarers’ Trust
“Thecentralityoftheperson’swishes,beliefs,valuesandhistorywithinabestinterestviewisverygood.However,alltoooften‘bestinterests’isinterpretedinamedical/paternalisticsensewhichiswhollyatoddswiththatsetoutintheAct”
BritishInstituteofLearningDisabilities
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5keyprinciples(MCAs1)
1. Assumptionofcapacity2. Supportingpeopletomaketheirown
decisions3. Therighttomakeunwisedecisions4. Anythingdonefororonbehalfofpeople
mustbeintheirbestinterests5. Theleastrestrictiveintervention
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Thenatureofmentalcapacity
Capacityisdecision-specific– Veryfew(conscious)peoplehave‘nocapacity’– “Mrs Joneslackscapacity”- ???– “Mr Smithhasnocapacity”- ???
Capacityistime-specific– Deterioration(dementia,MND,etc.)– Recovery(fromstroke,braininjury)– Fluctuations(e.g.Korsakoff’s)
NB.TheMCAappliesto≥16yearolds– ExceptLPA,Advancedecisions,DoLS(all18yrs)
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Supporteddecision-making
• Allreasonablestepsmusthavebeentakentohelpthepersonbeforeconcludingthattheylackcapacity(MCAs1(3))
– Communicationmethods– Timeofday– Location– Thepresenceofatrustedother– Helptounderstandtheinformation
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Assessingcapacity
• Twoparttest1. Doesthepersonhaveanimpairmentor
disturbanceofthemindorbrain,and2. Aretheyableto…
• Understandtheinformation,and• Retainit,and• Useorweighitinthebalancetocometoadecision,and• Communicatethedecision
• Theinabilitymustbebecauseoftheimpairment
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Understandingtheinformation
• Thepersonneedstounderstandthe‘salientfactors’– Whatinformationisrelevanttothedecision?– Notnecessarilyeverydetail
• Thelevelofunderstandingshouldnotbesettoohigh.
• Donotstartwitha‘blankcanvas’– Peopleneedtheopportunitytoweighuptheactualoptionsavailable
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‘Relevant’information?
• “Thenatureandpurposeoftheproposedtreatment,thelastoftheseentailinganunderstandingofthebenefitsandrisksofdecidingtohaveornotthehaveoneoftheotherofthe[interventions],orofnotmakingadecisionatall”
• “Abroad,generalunderstandingofthekindthatisexpectedfromthepopulationatlarge.”
• “Commonstrategiesfordealingwithunpalatabledilemmas(indecision,avoidanceorvacillation)arenottobeconfusedwithincapacity.”HeartofEnglandNHSFoundationTrustvJB [2014]EWCOP342
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Retainingtheinformation
• Thefactthatapersonisabletoretaintheinformationrelevanttoadecisionforashortperiodonlydoesnotpreventhimfrombeingregardedasabletomakethedecision. (MCAs3(3))
• Theabilitytomakethedecision‘atthematerialtime’
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Usingandweighingtheinformation
• “Thecapacityactuallytoengageinthedecision-makingprocessitselfandtobeabletoseethevariouspartsoftheargumentandtorelatetheonetoanother.”ThePCTVP,AH&thelocalauthority[2009]EWMisc 10(COP)
• Anapparentlyirrationaldecisionisnotthesameasaninabilitytomakeadecision
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Communicatingthedecision
• Anyresidualabilitytocommunicate• Anymeansofmakingoneselfunderstood.• Relevanttoolstofacilitatecommunication
– Signlanguage– Pictureboards– Facialexpressions
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Whentoassesscapacity?“…itisvitalthatwishesandfeelingsarestrictlyconfinedtothebestinterestsanalysisanddonotactsubtlytoundermineacapacityassessment.Where…thereisnodoubtaboutincapacitythenthewishesandfeelingsofthe[patient]cannotalterthatfacteveniftheyhappentoalignexactlywitharational,"capacitous",decision.CDcannotmakesuchadecision.Ithastobemadeforher.Inreachingthatdecisiontheremustbeanobjectiveanalysisofwhatisbestforher;andinthisregardwhatshewantsisveryimportantbutbynomeansdecisive.”
AhospitaltrustvCD[2015]EWCOP74
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Bestinterests(MCAs4)
• Thereisnosuchthingasbestinterestsuntilandunlessthepersonhasbeenestablishedaslackingcapacitytomakethedecision
• Bestinterestsisdeterminedbythedecision-maker
• …afterconsiderationofthestatutory checklistfordeterminationofbestinterests
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Bestinterestschecklist(MCAs4)
• Donotdiscriminateonbasisofage,appearance,diagnosis,etc.• Considerallrelevantcircumstances• Isthepersonlikelytoregaincapacity?• Encourageandfacilitateparticipation• Life-sustainingtreatment:decisionmustnotbemotivatedbya
desiretobringaboutdeath• Considerpastandpresentwishesandfeelings,beliefsandvalues• Consultandtakeintoconsiderationtheviewsof
– Anyonecaringforthepersonorinterestedintheirwelfare– Anyonenamedbytheperson– Anyattorneyordeputyappointedbythecourt
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Wishesandfeelings• Theclosertotheborderline,themoreweightinprincipletobegiventotheperson’swishes
• ThestrengthandconsistencyofviewsITWvZ&M
• Needtoconsidermattersfromthepatient’spointofview• “…insofarasitispossibletoascertainthepatient’swishesandfeelings,hisbeliefsandvaluesorthethingswhichwereimportanttohim,itisthosewhichshouldbetakenintoaccountbecausetheyareacomponentinmakingthechoicewhichisrightforhimasanindividualhumanbeing.”
Aintree UniversityHospitalvJames©SteveChamberlain2016
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Whatisrestraint?
• Theuseofforce,orthreatofforce,tomakesomeonedosomethingtheyareresistingOr
• Therestrictionofaperson’sfreedomofmovement,whethertheyareresistingornot.
• Sorestraintcanbeseentobeanyrestrictivepractice
• Restraintisnotabadthingperse©SteveChamberlain2016
Whencanrestraintbeused?
• NotexplicitlypermittedbytheAct• Butprotectionfromliabilityifcertainconditionsaresatisfied:– Thepersonlackscapacitytomakethedecision,and– Theactionisintheperson’sbestinterests,and– Thepersonisatriskofharm(tothemselves),and– Therestraintisproportionate tothelikelihoodandseriousnessoftheharm
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MEDICATION,RESTRAINTANDDEPRIVATIONOFLIBERTY
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NHSEngland“urgentpledge”
• Urgentactionpledgedonover-medicationofpeoplewithlearningdisabilities (14/07/2015)– “NHSEnglandhastodaypromisedrapidandsustainedactiontotackletheover-prescribingofpsychotropicdrugsto[PWLD]afterthreeseparatereportshighlightedtheneedforchange”
• Prescribinginprimarycare (PHEJune2015)– 29.5%ofadultswithLDandautism(excl.inpatients)beingprescribedantipsychotics/antidepressants/moodstabilisers/anxiolytics/hypnotics
– 58%receivingantipsychoticsand32%prescribedantidepressantshadnorelevantindicationsrecorded
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Dementiaandantipsychotics
• DHreportbyProf. Sube Banerjee(Oct2009)– 180,000peoplewithdementiaonantipsychoticsp.a.– Ofthose,≤ 36,000derivesomebenefit– Negativeeffects
• Additional1,800deathsp.a.• Additional1,620cerebrovascularadverseeventsp.a.
• Theproportionoftheseprescriptionswhichwouldbeunnecessaryifappropriatesupportwereavailableisunclear…butmaywellbeintheorderoftwothirdsoverall
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Guidelines
• ”Low-doseantipsychoticsinpeoplewithdementia”– NICE/SCIEguidelinesondementiabeingupdated– dueSeptember2017
• Consultationwiththeperson,theirfamilyandcarers• Antipsychoticscanbewithdrawnwithoutdetrimentaleffectsonbehaviourinmanypeople
• Prescriptionideallyforupto12weeks• Treatmentshouldbereviewedatleastmonthlywithreductionorcessationactivelyconsideredateachreview
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BMJOpenASzczepura etal(20/09/2016)
• 4-yearstudylookingatimpactofNationalDementiaStrategy(2009)onprescribingofanti-psychoticsinL/Tresidentialcare– Nostatisticaldifferenceinoverallprescribingoverthe4-yearperiod
– Nosignificantshifttonewerantipsychotics– Dosagesabovemaximumindicatedin1.3%cases– Durationofprescribingexcessivein69.7%cases
http://bmjopen.bmj.com/content/6/9/e009882.full
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Sedativemedicationanddeprivationofliberty
“Inmyviewtheadministrationtoapersonofmedication,inanyrateofantipsychoticdrugsandothertranquilisers,isalwaysapointertowardstheexistenceof[deprivationofliberty]:foritsuppressesherlibertytoexpressherselfasshewouldotherwisewish.”
LordJusticeWilson,CourtofAppeal(2011)“Inassessingwhetherheisatliberty,itisalsoimportanttonotethatEhasbeenprescribedHaloperidol…toreducehisagitationandmorechallengingbehaviour.Hehasnocontrolovertheadministrationofthatmedication.”
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CovertMedication
• NICEguidelines(March2015)– Onlyinexceptionalcircumstances– InaccordancewiththeMentalCapacityAct– Following
• Anassessmentofcapacity,and• Abestinterestsmeetinginvolvingcarehomestaff,prescriber,pharmacist,family/advocate
– Planonhowthemedicationcanbecovertlyadministeredsafely
– Regularreviewsbuiltintotheplan
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DEPRIVATIONOFLIBERTY
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Wherecanitoccur?
• Carehomesandhospitals– DeprivationofLibertySafeguards(DoLS)– ≥18yearsold
• If<18years,needcourtauthorisation
• Communitysettings– Requirescourtauthorisation– ≥16yearsold
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Howlongbeforerestraintbecomesadeprivationofliberty?
• Restrictionsmustbefora‘notnegligiblelengthoftime’
• Butthereisnosettimethreshold• Dependsontheintensityoftherestrictivemeasuresandtheimpactontheindividual
• Asintensityandimpactincrease,thenrestraintwillturntodeprivationoflibertymorerapidly
• Unlikelyunderanycircumstancestoextendbeyond2-3days
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Deprivationofliberty:“theacidtest”
• Article5(EuropeanConventiononHumanRights:ECHR)– Righttoliberty
• Deprivationoflibertyoccursiftheperson…1. Lackscapacitytoconsenttotheiraccommodationforthe
purposeofcareandtreatment,andtheyare2. undercontinuoussupervisionandcontrol,and3. notfreetoleave
• Deprivationoflibertymustbeauthorised,by– TheDeprivationofLibertySafeguards(DoLS),or– TheMentalHealthAct1983– Bycourtorder
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Continuoussupervisionandcontrol
• Whatis‘continuoussupervisionandcontrol’?– Doesnotneedtobe‘lineofsight’supervision– Thepatientdoesnotneedtobe‘specialled’– Controloverday-to-dayactivities:sleep,meals,24hourcare
• ‘Ruleofthumb’questionstoask– Doyoubroadly knowwherethepersonisandwhattheyaredoingatalltimes?
– Isthereaplaninplaceregardingwhatwouldhappenifyoudidnotknowwherethepersonis?
– Ifbothanswersareyes,pointstowardscontinuoussupervisionandcontrol
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Freedomtoleave
• Whatisnotrelevant?– Notbeingphysicallycapableofleaving– Notaskingtoleaveorshowingsignsofwantingtoleave– Thepresence,orlackofalockorkeypad– Nothavinganywhereelsetogo
• ‘Ruleofthumb’questionstoask– Wouldthepersonbeallowedtoleaveiftheywantedto,ortriedto
– Orifafamilymembercametoremovethem?
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TheDoLSprocess
• Six-partassessment– Age(mustbeover18years)– Mentalcapacity(lackscapacityforhospitalisation)– Mentalhealth(hasamentaldisorder– asperMHA1983)– Norefusals(NoadvancedecisionorattorneywhichwouldpreventthetreatmentorDoLSfromproceeding)
– Eligibility(Arethey‘eligible’forDoLS,orshoulditbeMHA?– Bestinterests
• isitadeprivationofliberty?• Isitintheirbestinterests?
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Deathsandthecoroner• CoronermustbenotifiedofanyonewhodiessubjecttoaDoLSauthorisation
• ChiefCoronerconfirmsitisadeath‘instatedetention’• Coronermustholdinquest• Doesnothavetobejuryinquestifnaturalcauses
– “Inmanycasesofthiskindwhichareuncontroversialtheinquestmaybea‘paper’inquest,decidedinopencourtbutonthepaperswithoutwitnesseshavingtoattend.Intelligentanalysisofrelevantinformation(withouttheneedforapost-mortemexamination)maybethebestapproach.Bereavedfamiliesshouldhaveallofthisexplainedtotheminadvance.”
ChiefCoroner’sGuidanceNo.16(Dec2014)
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Updateoncoroner’srules
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• Nov2016:GovernmentacceptedamendmenttoPolicingandCrimeBill2016
• DetentionunderMCAwillnolongerbeconsideredstatedetentionforthepurposestheCoroner’sandJusticeAct2009
• WillnolongerbemandatoryinquestforalldeathsunderDoLS(whenActcomesintoforce)
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IMCAs• Mandatorycriteria
– Thepersonlackscapacitytomakethedecision,and– Hasnofamilyorfriendsavailableorappropriatetoconsult
• NOT wherefamilyorfriendsdisagreewithdecision
• “Relevantdecisions”– Movingaccommodationformorethan8weeks– Hospitalisedformorethan28days– Seriousmedicaltreatmentisproposed
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Seriousmedicaltreatment
• Provision,withholdingorwithdrawaloftreatment
• Whatisseriousmedicaltreatment(SMT)?– Ifasingletreatment,thereisafinebalancebetweenthelikelybenefitsandburdens
– Finelybalancedchoicebetweentreatments– Proposedtreatmentlikelytohaveseriousconsequences
• Seriousmedicaltreatmentcanbegiveninurgentsituations(butneedtorecordwhy)
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IMCAs
• Discretionarycriteria– Adultsafeguarding
• Whenprotectivemeasuresareproposed• IfthepersonmaybenefitfromanIMCA• Eveniftherearefamilyandfriendstoconsult
– Care(accommodation)reviews• Andnofamilyorfriendstoconsult
• DeprivationofLibertySafeguards(DoLS)– Duringtheprocess– Tosupportthepersonafteranauthorisation
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Advancecareplanning• LastingPowersofAttorney(LPA)
– Healthandwelfare– Propertyandaffairs
• Advancedecisionstorefusetreatment• Writtenstatementsofwishes
• Maximisingchoiceandcontrol• Planningforprotection
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Advancedecisions• Legallybinding,if ‘validandapplicable’• Ifrelatingto life-sustainingtreatment,mustbe…
– Inwriting,and– Signedandwitnessed,and– Clearlystatethatthedecisionapplieseveniflifeisatrisk
• Isitvalidandapplicable?– HasPdoneanythingthatgoesagainstit?– HasPwithdrawnit?(whencapacitated)– HasPsubsequentlyconferredthepowerontoanotherperson?(e.g.LPA)
– WouldPhavechangedthedecisionwithmoreinformationaboutthecurrentcircumstances?(e.g.advancesintreatment)
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Whatwehavecovered
• Adultsafeguarding– Responsibilitiesandtypesofabuse– Wandsworth’s thresholdguidance
• MentalCapacityAct:whereareweatnow?• Supporteddecision-makingandassessingcapacity• Bestinterests• Restraint,medication• Deprivationofliberty• IMCAsandadvancecareplanning
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