Select Committee on Health Minutes of Evidence


Memorandum by Marie Curie Cancer Care (PC35)

1.  INTRODUCTION

  1.1  Marie Curie Cancer Care welcomes the opportunity to contribute to the House of Commons Health Select Committee Inquiry into Palliative Care.

  1.2  The Charity is delighted that the committee has chosen to look at an area of healthcare where inequity, lack of real choice, too little sharing of best practice and difficulties around funding need close examination.

  1.3  We believe this inquiry is timely following the Government's pledge as part of its "choice" agenda ". . . to offer all adult patients nearing the end of life, regardless of their diagnosis, the same access to high quality palliative care so that they can choose if they wish to die at home"1.

  1.4  It is now crucial that Government and Non-Governmental Organisations (NGOs) work together to ensure the right structures, mechanisms and funding are in place to make the commitment to choice a reality for cancer patients and their families.

  1.5  This year, Marie Curie Cancer Care will provide general and specialist palliative care to more than 23,000 cancer patients and around 1,000 patients with other life-limiting illnesses such as Motor Neurone Disease, HIV/Aids and Multiple Sclerosis.

  1.6  Marie Curie Cancer Care is the largest single provider of hospice beds and specialist palliative care outside the NHS. For this memorandum we intend to confine our response mainly to the delivery of palliative care in the home. We believe all relevant points regarding hospice care will be covered in submissions from the National Council for Hospice and Specialist Palliative Care Services and Help the Hospices.

2.  ABOUT MARIE CURIE CANCER CARE

  2.1  Established in the same year as the NHS (1948), the Charity provides palliative care services to patients in both community and hospice settings. The Charity also conducts scientific research, palliative care research and provides palliative care education to healthcare professionals.

  2.2  Charitable expenditure on nursing, hospice and education services in the last financial year was £41 million. The charity received £14 million of statutory funding.2

  2.3  Working in communities across the UK are 2,500 Marie Curie Nurses caring for cancer patients in their own homes. In general, care will be provided in the last three or four weeks of life, with Marie Curie Nurses mainly working eight or nine hour shifts overnight on a one-to-one basis with the patient. On average, patients in the community will have six shifts of Marie Curie Nursing, although this can vary considerably.

  2.4  The Charity has contracts with 96% of Primary Care Trusts (PCTs) to provide a nursing service. Care is always free of charge to patients and their families, with costs split 68% Marie Curie Cancer Care and 32% PCT.

  2.5  Marie Curie Cancer Care also funds and operates 10 hospices around the UK with a total of 220 beds. The hospices are in London, Cardiff, Caterham, Solihull, Bradford, Liverpool, Newcastle, Edinburgh, Glasgow and Belfast. There is also a Day Therapy Centre in Devon.

  2.6  In addition to providing specialist palliative care for in-patients, all Marie Curie hospices offer a range of additional services, such as day therapy, outpatient clinics and home care teams aimed at helping patients to remain in the community. In 2003, community support through Marie Curie Hospices involved 15,669 day therapy attendances, 11,071 outpatient attendances, 12,847 home care visits and 18,178 other home care contacts (eg telephone support).

  2.7  The Marie Curie Palliative Care Research and Development Unit aims to foster high quality research which will lead to improvements in care for those affected by cancer and other life threatening illnesses through the implementation of evidence-based practice.

  2.8  Our education department provides a wide range of courses up to Degree and Masters level to enable nurses and other healthcare professionals drawn mainly from the NHS to learn the latest techniques for caring for cancer patients. In 2003 the charity invested £2.3million in education and delivered 9,600 face-to-face training days.

3.  ISSUES OF CHOICE

  3.1  A number of research projects have looked at people's preferences regarding choice of place of death. In the most recent survey, commissioned by Marie Curie Cancer Care, 64% of those asked "where would you like to be cared for if you were dying?" said they would like to be cared for at home, with 23% choosing a hospice and 4% opting for hospital. (See Appendix 1 for full results). This is in marked contrast to actual place of death. Around 47% of patients die in hospital, with 17% dying in hospices, 25% dying at home and 12% in nursing homes.3

  3.2  Probable reasons why cancer patients end up being admitted to hospital when they wish to remain at home will include:

    3.2.1  Family/Carer Fatigue: Many families will struggle to support someone through a terminal illness at home. However, modern lifestyles mean that families may be scattered, with the women working full time as well as caring for children. Sympathetic employers can make a considerable difference to a carer's ability to cope. In Canada, there is mandatory six weeks' compassionate leave for those caring for the terminally ill.

    3.2.2  Lack of Information/Advice/Support: Easily accessible sources of information and practical support can often make a considerable difference to the family/carer's confidence. Widely distributed, balanced and easily understood information on the issue of care at home must be provided in print and over the internet. Carers need reassurance that what they are doing is right.

    3.2.3  Health Professional Lack of Knowledge/Training: The average GP will only have a few terminally ill cancer patients per year on his/her list. Very few feel entirely competent to manage the death of a symptomatic patient at home. Many hospices run education programmes for GPs, but up-take is patchy. Guidance for the management of common symptoms is now available within most cancer networks, but their use is not uniform. This problem can be addressed by ensuring palliative care is seen as a mainstream part of GP work and is an integral part of their training and on-going practise development. It should also feature in audit and clinical governance.

    3.2.4  Health Professional Guidance: The recently announced funding to enable wider implementation of structural programmes such as the Marie Curie Liverpool Care Pathway for the Dying Patient and the Macmillan Cancer Relief Gold Standards Framework will improve knowledge and general standards of care among all healthcare professionals.

    3.2.5  Uncoordinated Care: The changes in out-of-hours cover for GPs highlight the need for robust communication between many teams of professionals. Lack of information about the management plan and the patient's wishes results in many inappropriate out-of-hours admissions to hospital. The forthcoming introduction of Electronic Patient Records (EPR) could go a long way to solving this problem. However, healthcare professionals employed by voluntary organisations such as Marie Curie Cancer Care will need to have free access to this service to ensure the benefits of EPR are maximised.

    3.2.6  Difficulties in Co-ordinating the Home Care Package: This is often a combination of services provided by the GP, clinical nurse specialist in palliative care, District Nurse, Marie Curie Nurse, Social Services and voluntary services (eg Crossroads—a charity providing practical support for carers).

    3.2.7  Patients Unaware of How the System Works: Surveys also clearly show that patients dislike having to repeat their problem to different on-call services. Although the continuing development of NHS Direct is welcome, there will need to be careful consideration of its role in supporting the delivery of out-of-hours palliative care.

    3.2.8  Patients' wishes may change as their health deteriorates.

    3.2.9  Patients may develop symptoms which are unmanageable in the home.

    3.2.10 Patients' Lack of Knowledge and Confidence: The patient's choice of place of death may be influenced by the attitude of professional carers if they sense that the professionals are reluctant for them to be at home. Primary Health Care Teams (PHCT) require access to sources of information about all aspects of managing a cancer death at home and education in the management of the common symptoms of end stage cancer. Most of the Marie Curie Cancer Care hospices run regular programmes of education for GPs.

    3.2.11 All these factors mean that, while the choice of place of care is in theory available to a patient, in practice the choice may already have been made for them by healthcare professionals

  3.3  To set this issue in context, it is worth noting that the early development of palliative care services across the country was driven by local enthusiasm rather than by strategic health service planning. Fundraising committees were set up and buildings completed before any scientific consideration of the needs of the local population was made. The `choice' of the services available was driven by the founders of each hospice rather than the patients who would use the service.

  3.4  The more recent introduction of Cancer Networks has led to a mapping of the available services and an attempt to ensure that all types of palliative care provision are available appropriately for all patients. In reality, because of limited funding and, more particularly, limited numbers of specialist staff, the access of patients to services is often determined by the professionals' assessment of need rather than the patient's choice. The guidance from the National Institute for Clinical Excellence, which will be published in March, will require a network-wide view of services to be taken, and will focus attention on areas of under provision.

  3.5  The allocation of statutory funds to all types of general and specialist palliative care services varies widely, often across PCTs which have similar demographic distributions of population. This variation is often based on historical allocations and on the advocacy of individuals lobbying for funding for the specialty.

4.  EQUITY OF PROVISION: BY GEOGRAPHY

  4.1  The Marie Curie Nursing Service covers 96% of the UK population. Local coverage is variable mainly because of funding. Each PCT may adopt a different set of criteria to determine the priority of its commitment to palliative care and to expenditure on the Marie Curie Nursing Service and other allied/alternate healthcare providers.

  4.2  It is our belief that funding of services such as Marie Curie Nursing is driven by budget constraints and historical precedent, rather than careful analysis of patient need.   

  4.3  Hospice beds are available to the whole population, but numbers of beds per 1,000,000 population differ. Per region, only 18-34% of patients with malignant disease will gain access to palliative care beds.

  4.4  Development and location of hospices was "ad hoc" and usually in more affluent areas where fund-raising would be easier.

  4.5.It would appear that there is a correlation between social deprivation, the number of cancer deaths per 100,000 population and the need for palliative care. Up to twice the resource may be required to support patients at home in areas of acute deprivation compared with the most affluent areas.

  4.6.The Primary Health Care Team should be the provider of palliative care support to the majority of people. Its members should be trained to assess the needs of patients and refer those with complex problems to a specialist service.

5.  EQUITY OF PROVISION: BY AGE

  5.1  Cancer is mainly a disease of old age; therefore hospices are geared to providing care to older people. Surveys suggest that younger people would prefer a "menu" of services, for example day therapy models offered by Marie Curie hospices and other providers which they can access on demand.

  5.2  Older people have multiple problems of "co-morbidity" which may result in a gradual, general decline not easily attributed to cancer. Therefore they may not "qualify" for the input of a specialist team.

  5.3  Older people often are not referred for oncology opinion by their GP and thus miss out on the usual route into palliative care services.

  5.4  Older people, living alone or with a single elderly carer, may find it difficult to access the support—both in terms of information and physical support—needed to allow them to stay at home.

  5.5  Older people get admitted to hospital to die because they often seek help late when the work required to deal with the crisis at home may be more than that needed to arrange an admission to hospital. Elderly people are also less inclined to question the advice of a healthcare professional.

  5.6  Around 20% of deaths occur in nursing or residential homes. For many people, these places will have been their home prior to the diagnosis of cancer and they may choose to die in their "home". Others may move to a care home because of frailty caused by the illness. In both situations these people have the right to expect appropriate, good quality palliative care. At present, only some nursing homes are registered for terminal care. In order to prevent people having to move as their disease progresses, and avoid an emergency admission to hospital, education for all nursing and attendant medical staff in nursing and residential homes has been recognised as a priority. The Liverpool Care Pathway for the Dying is targeted to be in use in 30% of all nursing homes in England and Wales by 2006.

6.  EQUITY OF PROVISION: BY DIAGNOSIS

  6.1  Palliative care services were traditionally confined to cancer and Motor Neurone Disease. (HIV/AIDS was added later. There is currently a decline in numbers of people with palliative care needs and AIDS.)

  6.2  Health Service Circular 1998/115(7) recommended the integration of palliative care principles and practice into the NHS for all those facing life-threatening illness.

  6.3  There is a long-standing recognition of the inequity of provision for those with other major causes of death eg cardiovascular and respiratory disease. New National Service Frameworks contain specific reference to palliative care for several of these groups of patients.

  6.4  Approximately 20% of all Health Improvement Programmes explicitly include non-cancer palliative care needs

  6.5  Many specialist palliative care providers fear being overwhelmed by demand from non-cancer patients if they indicate a willingness to accept them, partly because of the numbers involved and partly because of the unpredictable nature of the disease trajectory. Researchers at Manchester University are reviewing the evidence on predicting the appropriate time for palliative care in older, non-cancer patients (report due late 2004).

  6.6  The larger national, and some smaller, charities have `cancer' in their title or founding statements and judge that this excludes other groups of patients from accessing services.

  6.7  Under the terms of its constitution, Marie Curie Cancer Care is able to care for up to 10% of patients with non-cancer diagnoses.

  6.8  Most specialist palliative care clinicians believe that the most appropriate way to extend care to all patients who would benefit from their expertise is by education and training of other specialist groups, with a small increase in the care capacity to cope with those patients who have complex, intractable problems.

  6.9  Marie Curie Cancer Care's doctors are leading the way by working closely with other medical specialists such as cardiologists and nephrologists to develop models for providing palliative care to their patients.

7.  COMMUNICATION BETWEEN CLINICIANS AND PATIENTS

  7.1  The "cancer journey" involves interaction with many organisations/agencies. In theory these should be linked by the Cancer Network umbrella; in practice the experience of the individual patient remains that of failure of communication and on the movement of clinical records with the patient through the system. Groups within the Network are working to improve this problem.

  7.2  A recent survey at the Marie Curie Hospice in Edinburgh found that the average cancer patient coming to a palliative care service had met 32 doctors in the course of a 2.5 year illness. At the top end of the scale in this survey, one patient had met with 97 doctors. The possibility for miscommunication at many levels is enormous.

  7.3  A lack of understanding of Data Protection law may damage communication between professionals and services.

  7.4  There are often difficulties in maintaining patient confidentiality in a large team of healthcare professionals and within a complex family setting.

  7.5  The need for teaching of communication skills is recognised in the NHS Plan. Marie Curie Cancer Care is involved with the National Health Service University and Cancer Research UK in developing cascade models for communications skills training.

8.  BALANCING WISHES OF PATIENT AND CARERS

  8.1  One of the most common reasons for a hospital admission at the end of life is carer fatigue, either real or perceived by the patient who fears they are becoming a burden.

  8.2  Hospital staff's lack of knowledge of services available in the community may result in the professionals inappropriately discouraging a patient's discharge.

  8.3  Some services provide support, advice and training for family/carers of a dying person. For example, at the Marie Curie Hospice in Caterham, informal drop-in sessions are organised for carers where they can speak with palliative care experts or simply spend time and share concerns with other carers. There are also more formalised training sessions, where carers are shown a variety of skills, such as how to move patients safely, and are given advice on subjects such as patient nutrition.

  8.4  The biggest benefit of support and training for carers is that it can relieve their anxiety about whether or not they are doing things "right". This level of support is available at many hospices around the UK, but is more difficult to provide for carers not in contact with their local hospice.

9.  MEETING NEEDS OF DIFFERENT CULTURES AND BELIEFS

  9.1  The hospice movement was developed on Christian foundations. People of other faiths may feel unable to consider involvement with such a service.

  9.2  Healthcare professionals in the large majority are white and female.

  9.3  Efforts are made to provide the appropriate religious support in hospitals and hospices. An understanding of cultural differences in health related beliefs is not routinely included in training.

  9.4  The practice of palliative care is very dependent on direct communication. This way of working is often restricted by the need to use interpreters. This is particularly difficult when caring for people in their own homes as the use of family members as interpreters may not be practical or appropriate.

  9.5  Research in the Marie Curie Hospice, Bradford, showed that the specific wants and needs of each individual override the needs attributed by culture or racial background.4

10.  SUPPORT SERVICES INCLUDING DOMICILIARY SUPPORT AND PERSONAL CARE

  10.1  The introduction of Continuing Care for Terminally Ill Patients is intended to improve the coordination of care. In practice, different interpretation of the criteria and assessment protocols by neighbouring Continuing Care teams result in confusion and delaying bureaucracy for individual patients and healthcare workers.

11.  QUALITY OF SERVICES AND QUALITY ASSURANCE

  11.1  Quality of service provision is monitored by the components of clinical governance such as audit, risk management and user involvement in service development.

  11.2  Marie Curie Cancer Care manages an extensive programme of education to develop the effectiveness of its staff and of other healthcare workers.

  11.3  Palliative care research in the UK is a very small proportion of all cancer-based research. Marie Curie Cancer Care is actively involved in developments which will support the growth of a critical mass of researchers and also encourage the translation of research findings into clinical practice.

  11.4  External regulation also provides a mechanism for monitoring quality. There are, however, inherent problems;

    11.4.1  Lack of integration for UK wide providers such as Marie Curie Cancer Care. Our services are the same in all parts of the UK. We are subject to four different inspection regimes, three different sets of national minimum standards and three different sets of statutory legislation.

    11.4.2  There is a cost to service providers in time and money complying with these regimes and other regulations, such as the Criminal Records Bureau checks.

12.  SERVICES MEETING NEEDS OF DIFFERENT USERS

  12.1.  Our hospices exhibit good practice in the provision of multi-faith "chapels," facilities for young visitors, complimentary therapies for patients, community liaison workers and the provision of information in other languages.

13.  GOVERNANCE OF CHARITABLE PROVIDERS, STANDARDS OF ORGANISATION, LINKS TO THE NHS AND SPECIALIST SERVICES

  13.1  Marie Curie is a registered charity and a company limited by guarantee. The Charity is governed by its trustee body comprising of 18 part time volunteers who include senior individuals from the NHS, commercial and other public organisations. Responding to the Trustee Board is a full time paid Executive Board which includes Medical and Nursing Advisers, both with significant experience of working in specialist palliative care and the NHS.

  13.2  The Charity is regulated by the Charity Commission and also subject to all legislation affecting UK based limited companies. The Charity's hospices are regulated under the Care Standards Act 2000 and internal policies and procedures have been developed to with Care Standards and also to establish broad equivalence to those NHS standards which are relevant to the Charity's activities.

  13.3  The Charity has strong links to the NHS at every level:

    13.3.1  The NHS partially funds the hospices and the community nursing service through commissioning arrangements and service level agreements.

    13.3.2  Patients are referred to the Charity's services through GPs, District Nurses and occasionally hospital doctors. Patients of the Nursing Service remain under the GP's care plan.

    13.3.3  Members of the Charity's staff work in partnership with the NHS through membership of Cancer and Palliative Care Networks, and working with commissioners of palliative care.

  13.4  In each location the Charity's services have usually developed to complement the services provided by other cancer or palliative care providers, for example local hospices the NHS and Macmillan Cancer Relief.

14.  WORKFORCE ISSUES AND TRAINING

  14.1  In common with the NHS and other healthcare providers, Marie Curie Cancer Care faces the challenge of a maturing nurse workforce—particularly in the community setting. Although working as a Marie Curie Nurse has many attractions, including a wide degree of flexibility, the Charity can never compete with agencies on rates of pay

  14.2  The Charity is committed to Agenda for Change, which will impact in two main ways:

    14.2.1  Costs in the nursing service will rise and the Charity needs to obtain full cost recovery from the PCTs.

    14.2.2  Agenda for Change also contains the Knowledge and Skills Framework, which involves assessment of competency. This will be relatively straightforward in the hospice setting, but presents challenges in the community.

  14.3  The Charity's nursing service is a mix of registered nurses (61%) and health care assistants (39%). This means nursing skills can be matched with patient needs. However, there is a lack of consistency among PCTs in their requirements of the Marie Curie Nursing Service. The majority ask for a mix of registered nurses and health care assistants (HCAs). However, an increasing number are moving towards HCAs only, which may—in some cases—be driven purely by budgetary considerations.

  14.4  Looking to the future, it is likely the balance of the Charity's community workforce may move towards a greater proportion of HCAs. It is, therefore, essential the training infrastructure for HCAs looking to work at a higher level and acquire an NVQ is in place as soon as possible.

15.  FINANCING INCLUDING THE ADEQUACY OF NHS AND CHARITABLE FUNDING AND THE RESPECTIVE CONTRIBUTIONS AND BOUNDARIES

  15.1  NHS funding represents approximately 45% of the total cost of Marie Curie Cancer Care's hospice services and 38% of the total cost of the managed Nursing Service. Where the Nursing Service cares for non-cancer patients, charges to the NHS are doubled as the Charity was founded to principally care for cancer patients. The remaining costs are funded from a wide range of sources of voluntary income and profits from the Charity's shops. Certain projects for development of services may be funded 100% by commissioning bodies or other government funders, such as New Opportunities Fund, but these projects comprise a relatively small proportion of the Charity's activities.

  15.2  In general, funding from the NHS has to be renegotiated annually and in the past increases in funding have not mirrored the increases in the Charity's cost base necessitated by progressive above-inflation increases in clinical salaries, essential quality improvements (particularly additional medical resources) and compliance with regulations. This has only been partly addressed by recent increases in funding for English hospices from the Cancer Plan. Only revenue expenditure is funded and therefore any investment in facilities, including renewal of buildings, is funded entirely from voluntary funding.

  15.3  The Charity has approximately 330 contracts for services with NHS organisations throughout the UK. Contracts vary significantly in size. Our smallest community nursing contract with a PCT is for £5,000—and the largest is for £130,000. There are a number of PCTs serving similar size populations with similar perceived service needs, but the budget for Marie Curie Nursing in one of them may be two or three times that of the other. Sizes of contract for the nursing service vary as a result of history and individual commissioning preferences and there are no clear links to local levels of need or demand for home based care. As all funding agreements are renewed annually the contracting process is extremely labour intensive and therefore costly.

  15.4  This method of funding creates significant difficulties in terms of the long-term sustainability of services; responding to changes in demand for services; making commitments to service growth and other service developments. Even project funding may take a long time to secure due to cumbersome application and compliance processes.

  15.5  At several times in the Charity's history, services have had to be temporarily cut back due to a significant downturn in voluntary funding. The Charity has worked hard to develop a wider range of voluntary income streams to reduce risk to services. However, any significant downturn in legacies, for instance, which make up around 30% of voluntary income, could threaten services in both hospices and the community. A £1 million shortfall, for instance, is the equivalent of 50,000 nursing hours.

  15.6  There is no doubt that the Charity could care for more patients, particularly patients wishing to be cared for at home, if more funding was available in conjunction with a commitment to full cost recovery on services delivered in partnership with the NHS. If it were decided to target a doubling of the number of terminally ill patients cared for at home as opposed to in the hospital, the Charity would not be able to grow its voluntary income sources sufficiently to fund this without a significantly greater proportion of funding from Government sources.

  15.7  Marie Curie Cancer Care has commissioned an economic model to look at the case for the equitable provision of high quality support for people who wish to die at home, including the economic issues. A key conclusion is that in the medium to long term, every £1 extra invested in the appropriate provision of nursing care at home will release £2 within hospital services. (See appendix II for the full report).

16.  IMPACT OF GOVERNMENT POLICY

  16.1  Government has identified the right of every adult to have access to high quality palliative so that they can choose if they wish to die at home. This commitment was made in the Secretary of State for Health's December 2003 paper Building on the Best: Choice Responsiveness and Equity in the NHS. The pledge is welcome, but will clearly raise expectations among the terminally ill and their carers and sets tough challenges for health and social care providers working in palliative care. Increased funding is not the only answer to improving palliative care provision, but it is a key component.

  16.2  The NICE guidance on Supportive and Palliative Care, which is due to be published in March 2004, contains 20 key recommendations, the majority of which will put considerable demands on Marie Curie Cancer Care in terms of clinician and management time, education and training and developing links with new partners.

17.  RECOMMENDATIONS FOR IMPROVING PALLIATIVE CARE SERVICES

  17.1  Provision and funding of palliative care services should be based entirely on patient and carer needs and preferences. In the event that demand for palliative care services increases dramatically, it may be necessary for Government to increase the proportion of funding contribution to services such as Marie Curie Nursing. There is obviously a limit to the amount of funding that can be raised by voluntary organisations.

  17.2  Government and voluntary organisations must investigate and help to eradicate any barriers to service provision.

  17.3  More information about palliative care—particularly in the terminal phase—needs to be made available to patients and carers and healthcare professionals.

18.  SUMMARY

  18.1  Marie Curie Cancer Care has more than 50 years' experience working with the terminally ill. The Charity is committed to working with Government and other NGOs to ensure patients and their families have equality of access to services and can exercise real choice around place of care

  18.2  The Charity would welcome the opportunity to meet with the Health Select Committee to discuss the issues further—in particular the need to make choice of place of death a reality for all palliative care patients.

REFERENCES

  1.  Building on the Best: Choice Responsiveness and Equity in the NHS. Department of Health, December 2003.

  2.  Marie Curie Cancer Care Annual Report and Accounts, September 2003.

  3.  Priorities and Preferences for End of Life Care in England, Wales and Scotland. Irene Higginson, July 2003.

  4.  Planning Culturally Competent Palliative Care Services for Patients of South Asian Origin. R Lennard, S Chattoo,M Haworth, W Ahmad, November 2003.

February 2004





 
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