Joint Committee on the Draft Mental Health Bill Written Evidence


DMH 19 Memorandum from The British Psychological Society

  

  

General comments

The British Psychological Society is the learned and professional body, incorporated by Royal Charter, for psychologists in the United Kingdom. The Society has a total membership of over 40,000 and is a registered charity.

The key Charter object of the Society is "to promote the advancement and diffusion of the knowledge of psychology pure and applied and especially to promote the efficiency and usefulness of members by setting up a high standard of professional education and knowledge".

The Society is authorised under its Royal Charter to maintain the Register of Chartered Psychologists. It has a code of conduct and investigatory and disciplinary systems in place to consider complaints of professional misconduct relating to its members. The Society is an examining body granting certificates and diplomas in specialist areas of professional applied psychology. It also has in place quality assurance programmes for accrediting both undergraduate and postgraduate university degree courses.

The Mental Health Act 1983 is clearly in need of amendment. European Legislation, changes in the structure of the National Health Service, changes in the roles of mental health professionals, evolving professional opinions regarding mental health care and improvements in therapeutic practice and theoretical understanding all necessitate changes in legislation underpinning mental health care.

The British Psychological Society welcomes, therefore, the draft Bill. We also note the real changes made in the present draft Bill in response to consultation, and welcome the consequent improvements. The British Psychological Society considers that progress has been made, but we also strongly believe that the changes do not go far enough in reconciling the needs and rights of service users in a Mental Health Bill for the 21st century. The British Psychological Society, therefore, retains concerns over many details of the present draft Bill, including key issues regarding the definition of 'mental disorder' and the conditions for compulsory treatment. These are detailed below.

Responses to points for consultation

1. Is the Draft Mental Health Bill rooted in a set of unambiguous basic principles? Are these principles appropriate and desirable?

The 'principles' referred to in Clause 1of the Draft Bill are welcome. They are appropriate and desirable. They are not, however, complete or unambiguous. The British Psychological Society recommends that the principles are listed on the face of the Bill (as with the Mental Capacity Bill, and in contrast to being included in a Code of Practice) and strengthened - from an aspirational statement for 'regard' to certain issues to a requirement for all parties acting under the aegis of the legislation to adhere to these principles. The British Psychological Society also recommends, for reasons that will be made clear in further comments below, that a further principle is included: that a person's own choices about treatment (or lack of treatment) for mental disorder should be honoured unless, because of a mental disorder, the person's ability to make decisions about the provision of health care is significantly impaired. We strongly believe that such a principled amendment would improve the Bill. It would ensure that the Bill is fully compatible with the Human Rights Act, the Mental Capacity Bill and consonant with recent judicial rulings in respect to capacity and medical treatment. We also believe that such an amendment would make the Bill's provisions more (rather than less) workable. Such an amendment could both reflect and also help to clarify the main reason for the necessity for a Mental Health Bill - because mental disorder can result in impaired judgement, it is not always possible merely to leave treatment choices to the individual. Finally, we believe that the Bill should also be based on the principle of reciprocity - that any treatments permitted by the legislation should be of genuine net therapeutic benefit to the individual.

2. Is the definition of Mental Disorder appropriate and unambiguous? Are the conditions for treatment and care under compulsion sufficiently stringent? Are the provisions for assessment and treatment in the Community adequate and sufficient?

The British Psychological Society appreciates the benefits outlined in the Richardson Report of a broad definition of mental disorder coupled with supplementary criteria for compulsion. We welcome the revision to the definition of 'mental disorder' in the present draft Bill, and in particular the implied reference to impairment of psychological functioning. We believe this is an improvement upon the (currently applicable) 1983 Mental Health Act. Nevertheless, we believe that this definition remains too broad in its scope. The definition of 'mental disorder' and its appropriateness cannot be separated from the proposed conditions for compulsion. It is necessary, therefore, that strict conditions also apply.

The British Psychological Society very strongly recommends that the conditions for compulsion are amended further to reflect the principle that persons whose capacity to make decisions about their health care is unimpaired should retain their right to decide their own treatment. We recommend, therefore, that a further condition be added - "that because of the mental disorder the patient's ability to make decisions about the provision of such medical treatment is significantly impaired". This wording appears in the Mental Health (Care and Treatment) (Scotland) Act 2003.

We believe that this amendment is vital for two reasons. First, while we welcome the Government's intention to reduce the number of people subject to compulsion, and note that the definitions and conditions in the present draft Bill are stricter than those in the 1983 Mental Health Act, we remain concerned at their breadth. With the removal of the exclusions (see below), the removal of the 'treatability loophole', and the potential for compulsion in the community, there still remains great potential for greatly increased compulsion. This danger may be potentiated if, as many believe, there is a developing culture of 'defensive practice' where (for instance) practitioners may feel obliged to treat a person under compulsion rather than run the risk of being blamed for any future adverse incidents. Strict conditions must guard against this eventuality. Secondly, we believe it is the impairment of judgement that provides the ethical, professional and legal basis for compulsion. We will expand on this point below, when discussing the Human Rights Act.

We very strongly welcome the fact that the Bill is based on a care plan (as opposed to the 1983 Act, which provides for admission and then treatment in a very general sense). We recognise that this fact, coupled with the specific provisions of the draft Bill, allow for compulsory treatment in the community. However, we also share the great concerns expressed by colleagues in respect to this issue; that without robust controls this provision could lead to excessive use of compulsory powers. We believe that this excess could also fall disproportionately on people from Black and ethnic minorities and other socially excluded groups such as people in inner-city and socially deprived areas. On the other hand, we also recognise that the present draft Bill reflects substantial changes in this issue. The British Psychological Society also notes that the possibility for care plans to be implemented under compulsion in the community may offer a better 'least restrictive alternative' than the present Act, which permits only admission. We also note that such powers of compulsion in the community are only lawful if the person involved continues to meet the conditions for compulsion.

The British Psychological Society notes, however, that care plans are most likely to be effective if they are based on true collaboration between the patient and the care team. We also note that appropriate alternative services must exist 'on the ground' for the concept of a least restrictive alternative to be a genuine one.

We therefore recommend that, in addition to the necessary amendment to the conditions outlined above, further amendments be made to limit the possibility of compulsion in the community to people who more closely fit the 'revolving door' profile for which the provisions are drafted. These amendments might follow the approach taken in the Canadian Province of Saskatchewan. This limits compulsion in the community to people who meet certain specific clinical history profiles. It should be noted that such a clinical history criterion would not only address the 'revolving door' issue, but would also ensure that such community powers could not be used in the case of people perceived to be dangerous (but who are not classic 'revolving door' patients). This model is compatible with the views of the British Psychological Society in respect to public safety outlined below.

The British Psychological Society also has concerns regarding the wording of the fifth condition - 'the fifth condition is that medical treatment is available which is appropriate in the patient's case, taking into account the nature or degree of his mental disorder and all other circumstances in his case'. We understand this to be a welcome recognition of the need for reciprocity - ensuring that the proposed care plan is of therapeutic benefit. We consider, however, this clause to be clumsy and difficult to understand. As such, it may have the opposite effect to that intended. That is, the complex and ambiguous wording may leave clinicians believing that any and all treatments are appropriate, rather than ensuring that they take care to plan only treatments of therapeutic benefit. We have concerns that a 'bare minimum' service will be the only one on offer, meaning that patients treated under compulsion will be provided with services that may permit lawful compulsion, but are of an objectively unacceptable standard.

Finally, the British Psychological Society strongly regrets the decision not to retain the provisions that people whose mental disorder is solely characterised by the drug or alcohol use or by sexual deviance should be excluded from the provisions of the Bill. We believe that allowing the mental health legislation to be used in such cases, in the absence of other consequences or concomitants of mental disorder, may permit disproportionate and inappropriate compulsion. Moreover, we note that both in terms of the provisions of the Human Rights Act, and in terms of existing UK legislation, powers to deal with alcohol and drug abuse and to deal with sexual crimes already exist. If it were felt that additional powers are required, either for the protection or care of individuals, or to protect society, there are routes other than the distortion of the mental health legislation by which these ends could be met.

3. Does the draft bill achieve the right balance between protecting the personal and human rights of the mentally ill on one hand, and concerns for public and personal safety on the other?

  

The British Psychological Society remains concerned that the draft Bill places undue emphasis on a misguided attempt to assuage perceived (but largely illusory) public fears and thereby threatens to undermine the human rights of people with mental health problems. We recognise the need for Mental Health legislation to protect the public from the very small number of people whose mental disorder renders them dangerous. However, in our opinion, such protection can be maintained with provisions similar to those proposed, with the important inclusion of the 'Scottish clause' ('that because of the mental disorder the patient's ability to make decisions about the provision of such medical treatment is significantly impaired') referred to above.

This, we believe, is feasible and justified because a) dangerous individuals are very rare, b) it is, in practice, statistically impracticable validly to identify such people before they have committed offences if they are not experiencing mental disorders of a nature or kind as to render their decision-making capacity impaired, c) there exist present and planned provisions under criminal justice legislation that serve the same purpose under judicial rather than medical process, d) such provisions are presently under-utilised and e) we believe attempts to protect society from such perceived threats in such a manner are incompatible with the Human Rights Act. In particular, in this context, we note the provisions of the Powers of Criminal Courts Act (1973), which permit a Court to impose Community Rehabilitation Orders including specified conditions of treatment under the supervision of a chartered psychologist, but which are relatively seldom used.

We also note with concern a major assumption that pervades the Bill, one that has potentially grave implications. The Bill could be read as an enabling provision - permitting doctors to care for people in the way they, the doctors, think best. The conditions do not allow the competent patient to choose to reject the doctor's advice, and they permit the development of a care plan in worryingly broad terms. The British Psychological Society does not believe that all judgements by all doctors are necessarily correct or benevolent. We similarly, of course, believe that not all judgements by all psychologists are necessarily correct or benevolent. We recognise that decisions must be made on behalf of people who cannot make valid decisions for themselves, but the Bill should not presume that any powers devolved to professionals would necessarily be of benefit to patients.

4. Are the proposals contained in the Draft Mental Health Bill necessary, workable, efficient, and clear? Are there any important omissions in the Bill?

The British Psychological Society recognises that the Mental Health Bill itself is necessary. The British Psychological Society very strongly welcomes the central premise of the Bill - the implementation of care plans under compulsion. We believe that this properly reflects the nature of modern mental health care.

We also note that whether the Bill's provisions are workable depends, in great part, on workforce considerations.

The present draft Bill contains new and welcome safeguards (such as rights to advocacy and the substantially increased provisions for Tribunals) that depend on proper staffing and training. The draft Bill also states that compulsion is lawful only if there is appropriate treatment available. In the short term, this may lead to great pressure on clinicians - caught between the evident needs of the patient, an unavailability of resources, legal, societal or familial pressure for action, the rights of the individual and the unlawfulness of inappropriate treatment. It may be necessary to review the provisions in the draft Bill that apply if compulsory treatment is indicated, but no appropriate care is available. There are also potential large financial and resource implications. We believe that the Scrutiny Committee should consider in some detail the plans for implementing the provisions of the Bill.

One important omission from the Bill is the provision for patients to make binding statements of preference in respect to future treatment. Such statements of informed choice by sound-minded persons are clinically important and are part of the provisions of the Mental Capacity Bill. The British Psychological Society believes that there should a) be an obligation on clinicians to draw up statements outlining the patients desires in relation to future treatment and b) a duty on clinicians implementing the Bill to adhere to them, or to derogate from them only under specified circumstances which should be clearly recorded. This may best be incorporated in respect to the duty to develop a 'clinically appropriate' care plan incorporating 'all relevant factors'. These relevant factors should also include other care plans developed during consensual care. Although the Care Programme Approach care plans are not legally binding, they should be relevant in order to ensure good continuity of care.

5. Is the proposed institutional framework appropriate and sufficient for the enforcement of measures contained in the draft bill?

On balance, the British Psychological Society believes that the abolition of the Mental Health Act Commission, and for the transfer of responsibilities to CHAI, the Healthcare Commission, is appropriate. On balance, we believe that the proposed responsibilities, and the power of CHAI and the other authorities, are appropriate. We welcome the increased functions, powers and remit of CHAI compared to those of the present Mental Health Act Commission.

6. Are the safeguards against abuse adequate? Are the safeguards in respect of particularly vulnerable groups, for example children, sufficient? Are there enough safeguards against misuse of aggressive procedures such as ECT and psychosurgery?

Although the British Psychological Society welcomes the greater focus on safeguarding the well-being of children in the present draft, and the amendments made to the provisions for the compulsory treatment of prisoners, we believe that much greater safeguards are necessary throughout. In particular, we believe that the Bill should include a clear statement of the principles upon which care plans should be based - for the proposed treatments to be of proven efficacy, to be based on currently accepted professional practice guidelines (eg the British National Formulary in respect to drug regimes and guidelines from the National Institute for Clinical Excellence) and for the therapeutic benefits to outweigh the likely cost to the individual.

The British Psychological Society strongly believes that a major safeguard against abuse, generally, would be the adoption of an 'impaired judgement' condition as exists in Scotland and as outlined above (point 2 above). More particularly, we view the provisions against the misuse of what we think are correctly termed 'aggressive procedures such as ECT and psychosurgery as weak. The British Psychological Society believes that it is inappropriate, unethical and indeed illegal (in terms of the Human Rights Act) to provide for the compulsory treatment of people who are able to make valid decisions about their health care. In physical care, such decisions are not legal, and we believe the principle of non-discrimination means that such decisions should not be taken in the case of people with mental disorders.

This position becomes even more relevant where the proposed treatment has the potential to harm or damage the individual's brain. The draft Bill states that people who retain capacity should not normally be given treatments such as ECT and psychosurgery. But such treatments may still be given to capable persons 'in emergencies'. The British Psychological Society questions the notion of ECT being an immediately lifesaving treatment, when compared with 24-hour one-to-one intensive care for instance. The British Psychological Society believes that none of the provisions of the draft Bill should apply to people who are not significantly impaired in their ability to make decisions about their health care. It follows that, for the aggressive procedures, the safeguards should be even stronger. We believe that ECT, psychosurgery and other such procedures should be prohibited for persons not able to give informed consent. Given the nature of these procedures, the British Psychological Society also recommends that such treatments should be subject to the ratification of a Tribunal even if the patients are able to give informed consent.

As mentioned below, the British Psychological Society believes that there should be greater clarity regarding the nature of the care plan. In particular, we believe that the Bill should specify that clinicians are not permitted to draw up care plans that deviate from accepted professional standards - ie that adhere for instance to BNF guidelines for prescribing and the relevant professional codes of professional behaviour.

We note that the Bill contains no offence related to inappropriately using these provisions in respect to a person who does not meet the relevant conditions, nor of negligently investigating the relevant circumstances in this regard. We recommend that consideration be given to this issue.

7. Is the balance struck between what has been included on the face of the draft bill, and what goes into Regulations and the Code of Practices right?

Although the British Psychological Society recognises that not all matters should be in the text of the Bill, we believe that the present draft omits important matters. Because the emphasis on a care plan is central to the Bill, and is welcome, the British Psychological Society believes that the Bill should clarify the essential nature, scope and content of this care plan more closely. The Bill, in essence, will render the care plan legally enforceable. The British Psychological Society recognises the fact that the present provisions for a care plan are more rigorously specified than the current 1983 Mental Health Act. Nevertheless, we recommend that the Bill be amended further to clarify the procedures that the Clinical Supervisor must follow when drawing up a care plan, which professionals must be consulted and be involved, what therapeutic elements must be considered etc. We also believe that the Bill should require clinicians to provide written reasons for their actions (including their decisions not to do certain things).

We believe that there are some important details of the process that are not yet clarified. In particular we believe that greater clarity over the procedural duties of the Clinical Supervisor in developing a care plan is required. We note that it is possible for a Tribunal to impose changes to a care plan after this has been prepared. We believe that this offers protection to patients. Nevertheless, we are concerned that it may leave Clinical Supervisors in the position of implementing care plans that they believe are inappropriate. In such circumstances, we recommend that the Bill (rather than the Code of Practice) should specify that Clinical Supervisors could refuse to oversee care plans that they consider inappropriate and that the Bill therefore should contain provisions for the appointment of alternative Clinical Supervisors.

8. Is the Draft Mental Health Bill adequately integrated with the Mental Capacity Bill (as introduced in the House of Commons on 17 July 2004)?

The present draft Mental Health Bill is not adequately integrated with the Mental Capacity Bill. The legal aspects are relatively clear - the Mental Capacity Bill excludes provisions for treatment otherwise covered by the Mental Health Bill.

The British Psychological Society, however, believes that - in contrast to the clear view of Government - both Bills should address the needs of people whose ability to make decisions for themselves is impaired by mental disorder. Thus the Mental Capacity Bill effectively allows for proxy decision-making in respect to decisions other than mental health care if the person cannot make decisions for themselves. We believe that the Mental Health Bill should allow for appropriate clinicians to provide compulsory treatment if the person's mental disorder renders them impaired in their ability to make valid decisions for themselves.

At present, the Mental Capacity Bill appears ethical, lawful and necessary; the Mental Health Bill uses criteria that leave the two Bills asymmetrical in their scope. This means that the Mental Health Bill is discriminatory - people with physical health problems are legally protected in their decision-making autonomy (even if their decisions in this respect are bizarre or life-threatening), people not subject to the Mental Capacity Bill are similarly 'masters of their own fate'. The British Psychological Society does not believe that people whose decision-making ability is indeed impaired by mental disorder should be left to suffer from the consequences of potentially irrational decisions. We do believe that people who retain the ability to make un-impaired decisions but who happen to have a mental disorder (that is, one in four of the population) should have the same rights to decide on the nature of their treatment as do people with physical illnesses.

We do not believe that the Mental Health Bill should use the same definition of 'incapacity' as the Mental Capacity Bill. This is because we recognise that people with mental disorder can frequently make very clear and unambiguous decisions. We therefore seek to distinguish an inability to make decisions from the impairment in decision-making ensuing from mental disorder. But we do contend that a condition such as that applicable in Scotland is necessary for England and Wales. Because, in the case of mental disorder, such impairment in decision-making is likely to be transient (reflecting the natural course of mental disorders), continual reassessment is necessary.

We note also, in this context, the issue of people with learning disabilities who may also require psychiatric care. We note that, because learning disability is a 'mental disorder' in the terms of the Bill, people with such learning disabilities already and always meet this first condition. This means that there is potential for abuse in terms of becoming inappropriately subject to the provisions of the Bill. The obvious vulnerability of some people in this group in other respects should give cause for additional concern. The British Psychological Society does not believe that the Bill should exempt people with learning disabilities from its provisions (for this would either exclude people from the care they needed or involve inappropriate care with fewer safeguards under the provisions of the Mental Capacity Bill). But we do believe that the Bill should recognise the special needs of people who meet the criteria for both Bills. The British Psychological Society recommends that the Bill should include a provision to invite a Special Visitor (in the terms of the Mental Capacity Bill) to overview the applicability of the conditions and the appropriateness of the care plan in the case of people who have or are suspected to have a learning disability or who do or may be deemed to lack capacity in the terms of the Mental Capacity Bill. Again, it is worth noting that this exemplifies the distinction between our recommended 'impaired judgement' condition for the Mental Health Bill and the inability to make decisions referred to in the Mental Capacity Bill. Nevertheless, we believe this arrangement reflects the reality of the situation, is compatible with the concept of 'unsound mind' (see below) and will ensure proper compatibility between the two Bills.

9. Is the Draft Mental Health Bill in full compliance with the Human Rights Act?

The present draft Mental Health Bill is not in full compliance with the Human Rights Act.

Article 5 of the Human Rights Act states that "No one shall be deprived of his liberty save in the following cases and in accordance with a procedure prescribed by law". The 'following cases' include "persons of unsound mind". While the British Psychological Society unreservedly welcomes both the principles behind and the provisions of the Human Rights Act, we believe that psychological science has a great deal to offer in respect to the interpretation of the term 'unsound mind'. We note that research and consequent understanding in this are has advanced significantly in recent years

The British Psychological Society recognises that the legal advice given to Government - and indeed the Scrutiny Committee - may be that 'of unsound mind' can legitimately be equated with meeting the conditions outlined in the Bill, and specifically with meeting the definition of 'mental disorder'. Indeed, we recognise that other European Governments have so interpreted the phrase. Nevertheless, our submission, as the UK learned body representing those scientists who study the functioning of the human mind, is that one can only be considered 'of unsound mind', in this context, if a person's mental disorder is of a 'nature or kind' to make the person significantly impaired in their ability to make valid decisions for themselves.

We note that many of the commonly-cited judgements in the European Court of Human Rights date from some 30 years ago, and are based on contemporaneous interpretations of Convention Rights drafted in the 1940's. We also note that, in practice, the opportunity to change mental health legislation comes once in a generation. The British Psychological Society therefore believes it is important to ensure that the present draft Mental Health Bill reflects modern scientific knowledge of mental disorders, and the implications of this understanding in Human Rights terms.

10. What are likely to be the human and financial resource implications of the draft bill? What will be the effect on the roles of professionals? Has the Government analysed the effects of the Bill adequately, and will sufficient resources be available to cover any costs arising from implementation of the Bill?

We note the large human and financial resource implications of the draft Bill. We recommend that the Scrutiny Committee seek careful clarification that these issues will be properly addressed.

The Bill will have very major impacts on the roles of many professionals. We welcome the emphasis on care planning, and anticipate that the inclusion of care planning in the Bill will lead to greater emphasis on this aspect of care in the wider mental health service. We also note the fact that the Bill alters the statutory duties of a number of professions. In particular we note proposals to reform the role of the 'Responsible Medical Officer'. The British Psychological Society welcomes the fact that Chartered Psychologists might take Clinical Supervisor responsibilities. We note, however, that this is a very significant change in the responsibilities of psychologists. The British Psychological Society recommends that the Government support both in principle and in financial terms the training that will be required in enabling psychologists to undertake such extended roles and responsibilities.

The British Psychological Society recommends that the Scrutiny Committee consider ways in which the Bill, the Code of Practice and the plans for implementation of the legislation address the competencies required of Clinical Supervisors. The possibility that psychologists may become Clinical Supervisors has led to significant debate within the profession. Many psychologists welcome the proposal, but others wish to play no role in compulsion and are concerned about the impact of these changes on our therapeutic relationships. Others feel that these proposals, in the context of the present draft provisions, threaten the basic values underpinning their practice. Many psychologists do not wish, personally, to exercise these powers, but recognise that there are potential benefits to these proposals so long as proper professional safeguards are in place. Many senior and experienced psychologists see themselves as having the high-level skills in assessment and treatment that would equip them suitably for the Clinical Supervisor role, especially when the principal mode of treatment will be a psychological intervention.

Psychologists eligible to be clinical supervisors should be Chartered Psychologists (or psychologists eligible for chartered status) with appropriate competencies, experience and seniority. The British Psychological Society recommends that there be a requirement for additional training to contextualise and extend existing competencies. Appropriate competencies for such individuals should include (but not be limited to): psychopathology, mental health law, mental health services, forensic service, risk assessment, care planning, clinical governance, supervision and management, psychological formulations and psychopharmacology. To reflect the concerns of many in our profession outlined above, the threshold for registration or approval should be set high.

The British Psychological Society recommends that the Scrutiny Committee consider ways in which the Bill, the Code of Practice and the plans for implementation of the legislation address the nature of training necessary in this regard. We would welcome detailed plans for such training, and recommend that such training be generic - ie that all Clinical Supervisors, whether psychologists, psychiatrists or members of other professions, should be subject to the same requirements for training and levels of competency.

We note that, both in the choice of most appropriate Clinical Supervisor and in the selection of an Expert Member of a Tribunal, there is ambiguity. We would recommend that the Bill better clarifies this issue. This may best be achieved through an additional element in Section 24 of the draft stating that the managers, when appointing a Clinical Supervisor, should have regard to all relevant circumstances, including the nature of the mental disorder, the likely nature of the care plan to be developed, and the professional training and competencies of the clinician, before appointing the Clinical Supervisor. It is also important to note that, particularly for psychologists, adoption of the Clinical Supervisor role may lead to conflicts between the imposition of coercion and the therapeutic role.



 
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