Source · Prevention of Future Deaths

Stephanie Daniels

Ref: 2013-0353 Date: 13 Dec 2013 Coroner: Nigel Meadows Area: Manchester City Responses identified: 3 / 8 View PDF

Significant deficiencies exist in internal SUI investigations, with errors and omissions, along with concerns about the thoroughness and independence of inquiries. Additionally, patient information handover between staff was often inadequate.

Date 13 Dec 2013
56-day deadline 7 Feb 2014 est.
Responses identified 3 of 8
Hospital Death (Clinical Procedures and medical management) related deaths

Coroner's concerns

AI summary
Significant deficiencies exist in internal SUI investigations, with errors and omissions, along with concerns about the thoroughness and independence of inquiries. Additionally, patient information handover between staff was often inadequate.
View full coroner's concerns
the course of the inquest the evidence revealed matters giving rise to concern: In my opinion there is a risk that future deaths will occur unless action is taken. _ _ Internal NHS SUL Investigation_ v Independent Investigation am concerned that a death such as this of either a detained or voluntary patient (where Article 2 is arguably engaged) requires prompt; thorough and robust investigation to be completed as soon as possible. Deficiencies in systems, protocols, policies, record keeping and individual actions need to be identified quickly and remedial action taken: This cannot wait for an inquest which may not take place for many months. This was not the first case of a poor or incomplete SUI investigation. The court was aware of and invited submissions about the recent case of R (Antoniou) v Central and North West London NHS Foundation Trust and others [2013] EWHC 3055 (Admin) In this case there were significant errors and omissions in the SUI investigation: Important witnesses were not interviewed. The in finding the deceased a bed was not a central issue and no specific findings were made about it: The medication recording errors had not been noted and had the deceased been injected with PRN Haloperidol for severe agitation, then she should have been subject to physical observations for a continuous period of time immediately afterwards, as well as They During delay other steps in compliance with the Trusts Rapid Tranquilisation Policy: It is accepted that SUI investigations are important and hope to learn lessons quickly to be implemented_ Whilst the current law indicated that it is not a requirement for there to be an independent investigation at that stage, it is a matter of concern that significant failures in the investigative process have occurred: The Trust investigation did not reveal at all the allegation of the commencement of discreet continuous observations on the morning of 24th March: This is not the first time that the Trust SUI investigations have been found wanting and have experience of other Trusts' investigations also significantly flawed: In conclusion in this sort of case am concerned that without appropriately speedy and thorough independent investigation commissioned by the NHS Trust involved; flawed SUI investigation reports may continue to be produced: This is a policy decision for the NHS but strongly urge consideration of this_
2. Handover AIl the evidence showed that the handover of information between nursing and clinical colleagues was a vital piece in the jigsaw of care. MHSC have introduced a new policy but have a concern that simple issues may be overlooked: For new patients being admitted or transferred; there is no requirement for the nurse in charge to review their recent records. MHSC have produced new or updated policiesprotocols but experience has shown that what may be delivered on paper is not done in practice. Consequently am concerned that without appropriate audit and clinicalnursing leadership this may prove to be ineffective.
3. Bed Availability MHSC say that following the death of the deceased, a new policy has been introduced s0 that there is no waiting time at all for the allocation of a bed in the case of a patient who is deemed clinically to require one. A bed will be found somewhere which will be appropriate to their needs. As understood the evidence from the CCG in the case this should have occurred in any event However, other NHS Trusts nationwide who do not have such a policy, may have patients whose delayed admission means that are not having the appropriate nursing and clinical input; as well as medication review_ In turn this means their condition may continue to deteriorate and when effective care does start, the patient may well be more ill than they should be: am concerned that the importance of this is recognised not only by MHSC but nationally for all other NHS mental health trusts_ Clerking _In The failure to properly clerk in the patient is a matter of serious concern,_especially as many such patients will have physical [1 very being being they health problems MHSC had clear policies requiring the clerking in of a patient; but these were simply not adhered to_ It is common for patients with mental health problems to have associated physical conditions which require appropriate monitoring and treatment; It seems that despite the existence of appropriate policies, in practice these were not complied with_ Whether or not any new or different policy or auditing of compliance is the way to achieve uniformity is a matter for MHSC. repeat what have said earlier. MHSC have produced new or updated policieslprotocols but experience has shown that what be delivered on paper is not being done in practice. Consequently , am concerned that without appropriate audit and clinicalnursing leadership this may prove to be ineffective_ Supervision of_Junior Medical Staff am concerned about the lack of appropriate clinical supervision and guidance for junior medical staff: Two junior doctors were asked t0 attend the ward and made no appropriate clinical records of the reason for their attendance, reviewing the records, seeing the patient and explaining any clinical decision to prescribe medication It is appreciated that they are with a number of duties but it is a matter of concern that they did not undertake basic clinical recording duties for a patient who clearly should have been seen: They did not notice that the patient had not been clerked in: Medication was being prescribed without adequate consideration of the relevant clinical did not notice the named Consultant in charge of the patient was unaware of the admission. Appropriate clinical supervision would be expected to ensure an appropriate standard of performance understand that supervision may be delegated by the North West Deanery to the relevant NHS Trust but there has to be some basic accepted levels of interaction, communication and supervision between the junior Doctors and their Consultants to ensure an appropriate standard and continuity of care. This may be a joint responsibility between the Deanery and the NHS trust involved:
6. Prescribing of Medication bY_Junior Medical Staff am concerned by the circumstances in this case where medication came to be prescribed: There is an overlap of my concerns about supervision and my observations at paragraph 5 above should be regarded as repeated here: Both junior doctors had no recollection of attending the ward, speaking to the staff or seeing the patient. simply prescribed the medication. had no recollection of reviewing the deceased's records but understood that was essential when considering prescribing any medication, and in particular PRN tranquilisation: In this case , the patient was already taking a number of drugs which had sedative effects Two further medications were introduced that have similar properties and that also could potentially affect heart function very being may busy history. They They They rapid

Mechanism by which the Consultant in charge of the patient would learn of thepatient's admission It is of concern that there was apparently no simple method of ensuring that the Consultant in whose name the patient was admitted became aware of the admission and could therefore ensure appropriate clinical leadership and review was undertaken: It would seem that there could be a number of simple solutions for this problem.
8. Pertorming and recording observations on other patients was concerned about the discovery of incomplete written observations for another patient where there are significant gaps in the records and may illustrate a systemic problem because the patient was transferred to a different ward. This was only discovered during course of the inquest and was brought to the attention of MHSC so that could carry out their own investigations_

Responses

3 respondents
Manchester Mental Health NHS NHS / Health Body
13 Dec 2013 PDF
Action Planned

Manchester Mental Health NHS will be reviewing its SIRI policy to consider the engagement of an independent investigator in complex cases and will develop further guidance for investigators regarding learning from this case. Matrons will carry out weekly checks on compliance with the quality of documentation on handover forms. The Head of Nursing is writing to all Ward Managers to instruct nursing staff to read recent admission records and risk information and compliance with this system will be monitored through audit. (AI summary)

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Dear Mr Meadows Re: Stephanie Daniels (deceased) Inquest hearing concluded 29 November 2013. Regulation 28: Report to Prevent Future Deaths Thank you for your Regulation 28 Report following the Inquest Hearing at Manchester Crown Court into the death of Stephanie Daniels_ have provided a response to your concerns, as detailed in your report of 13 December 2013, as follows Serious Untoward Incident / Serious Incident Requiring Investigation (SIRI) Following the concerns raised in your report about the Serious Untoward Incident the Trust will be reviewing the Serious Incident Requiring Investigation (SIRI) policy to consider the engagement of an independent investigator in complex cases_ The Trust will also develop further guidance for investigators regarding the learning from this case_ As part of the review, the Trust will look at identifying resource to carry out such independent investigations: Received FES 24

2 Handover process As you are aware, the Trust has a handover of care policy, which sets out the arrangements for the handover of care, and the documentation of information handed over: The Matrons will carry out weekly checks on compliance with the quality of the documentation on the handover forms. To address your concern that issues may be overlooked, the Head of Nursing is writing to all Ward Managers to instruct all registered nursing staff that they must read the recent admission records and risk information relating to all patients who are not known to them or have not been known during the current period of admission. Ward Managers will be required to ensure their registered nursing staffhave received and understood the instruction, which will be monitored through management supervision 3_ Bed availability understand that you have raised this concern in your Regulation 28 Report as a national issue. However, as you are aware, followingh evidence at the inquest, this Trust implemented change to how inpatient beds are accessed in January 2013 and we do not have a waiting list of service users requiring admission: Clerking In The Trust acknowledges the importance of clerking in service users upon admission. In order to strengthen our processes the admission checklist requires the nurse to sign that have contacted the doctor to clerk in a new service user, and an additional sign-off once the doctor has clerked the service user in; It also incorporates the action to inform the consultant by email of hospital admissions_ This will be monitored through audits_ 5_ Supervision of junior doctors appreciate you have also sent your Regulation 28 Report to the Deanery at Manchester University. From a Trust perspective, all trainees graded CT1-3 and StR 4-6 have weekly supervision: Trainees and Consultants have been reminded of the importance of this and a discussion has taken place with the Deanery: This will be additionally monitored through the annual handover and supervision survey data completed by junior medical staff. 6_ Prescribing of medication by junior doctors Interim Medical Director, will ensure that all trainees will be informed about the Rapid Tranquillisation protocol through the induction process_ In addition, consultants will be made aware of their responsibilities in respect of supervision of junior doctors prescribing_ The Trust has amended the prescription card to ensure that Rapid Tranquillisation is clearly identifiable and not confused with PRN (as necessary) medication. The Trust incident reporting system is being adapted to record whether Rapid Tranquillisation was administered intramuscularly or orally and whether physical safe observations were maintained in line with Trust policy This is be monitored through induction attendance records, pharmacy daily monitoring of prescriptions and Datix incident reporting: 7 Mechanism by which the Consultant in charge of the patient would learn of the patient's admission As referred to under point four; the admission checklist system incorporates contacting of consultants by the nursing staff: The compliance with this system will be monitored through audit they

8 Performing and recording of observations on other patients share your concern about incomplete observation forms and the Head of Nursing has instructed staff that observation record forms must be completed contemporaneously and without any gaps: In addition, the nurse in charge must review the observations records during and at the end of the shift and ensure any gaps are addressed and reported through the Datix incident reporting system: The Matrons will monitor the recording of observations and the Trust will audit the compliance with the Safe and Supportive Observation policy: have attached the action plan detailing the timetable for actions to be undertaken in line with the requirements of the Regulation 28 Report. hope this response provides you with assurance that the Trust has taken action in response to your Regulation 28 Report.
Manchester Clinical Commissioning Groups NHS / Health Body
3 Jan 2014 PDF
Action Taken

The Citywide Commissioning, Quality and Safeguarding Team has developed a revised governance process and the Trust now attends an established Citywide Patient Safety Committee. An inpatient capacity management plan has been developed and implemented. The Commissioner Assurance Plan for Quality Improvement (CAP-QI) was agreed by the Joint Commissioning Management Board in September 2013 and is monitored monthly. (AI summary)

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Dear Mr Meadows

Re: Regulation 28; Prevention of Future Deaths Report (Stephanie Daniels - deceased)

Thank you for your report under Regulation 28, Prevention of Future Deaths following the inquest into the death of Ms Stephanie Daniels. As requested this is the response from the Citywide Commissioning, Quality and Safeguarding Team on behalf of the CCG.

I respond to two concerns raised by your report; number 1 regarding the Serious Untoward Incident investigation and number 3 with regards to bed availability. I deal with them separately below. I am unable to respond specifically in relation to the other issues you raise but have noted your comments.

By way of an introductory comment I provided a detailed statement to you during the inquest into Ms Daniel's death about the manner in which the CCG commissions inpatient beds and the steps it has taken to ensure that there is sufficient mental health inpatient capacity within the Manchester area and the steps it has taken to monitor inpatient capacity (amongst other things) within the Manchester Mental Health and Social Care Trust ("the Trust"). I also provided comments in my statement about the CCG's input into the Serious Untoward Incident investigation carried out into the death of Ms Daniels and I will therefore confine my response to your first concern to a more general explanation of the CCG's overview of untoward incidents occurring within NHS Trusts from which it commissions services.

Concern No 1 - Internal NHS Serious Untoward Incident Investigation

A revised governance process has been developed within the Citywide Commissioning, Quality and Safeguarding Team and the Trust now attends an established Citywide Patient Safety Committee. This committee meets monthly and is responsible for the review and monitoring of serious incidents requiring investigation reported by the Trust as well as any other patient safety related issues including those highlighted at inquest via Prevention of Future Death Reports.

Lessons learnt from the Serious Untoward Incident investigations carried out by the Trust are shared at this meeting and are cascaded to the three CCG’s within the City via their Quality Leads who also attend. Lessons identified from Serious Untoward Incidents that occur in other NHS Providers are also shared at this Committee with Manchester Mental Health and Social Care Trust.

The City Wide Commissioning, Quality and Safeguarding Team are represented at all High Level Investigation Panels (HLIP) held by the Trust. The HLIP’s were established by the Trust in order to allow scrutiny of their investigations and reports. Prior to the HLIP the Trust provides the City Wide Commissioning, Quality and Safeguarding Team with a draft copy of their investigation report. This allows the City Wide Commissioning, Quality and Safeguarding Team representative to review the report and challenge its robustness, contents and findings. Following the HLIP the Trust develops an action plan and the City Wide Commissioning, Quality and Safeguarding Team representative reviews this to ensure that the actions identified are Specific, Measurable, Achievable, Realistic and Time based (SMART) to reduce the likelihood of a recurrence of the incident.

Challenges into the investigation report and its findings regularly take place at HLIP’s and should concerns regarding the investigation and its robustness be identified further higher level actions would be taken via Executive to Executive discussions.

The Trust's response to the Prevention of Future Deaths Report in this case will be scrutinised by the CCG and assurances will be sought from the Trust in relation to any actions it proposes to take to ensure that they are appropriate and robust and that they are implemented.

Concern No 2 - Bed Availability The commissioning of beds is based on evidence of past need and emerging needs from commissioning intelligence. The CCG does not directly instruct Manchester Mental Health and Social Care Trust, or any other NHS Trust about how its beds should be utilised and although it monitors the Trust's bed utilisation decisions on patient management are solely the responsibility of the Trust as the provider of NHS care.

Commissioners can, by negotiation, influence a Trust's use of resources and can shift resources around the system but decisions about admitting and discharging patients rest with the provider NHS Trust.

As a result of the CCG's concerns relating to out of area placements the following process has been set up and has been operational since August 2013:  There are daily bed management conference calls between the CCG and representatives of the Trust to review admissions, discharges, patients waiting for assessment (who may then need a bed) and out of area placements  There is a weekly teleconference where delayed discharges are discussed with Manchester City Council. Representatives of the CCG and the Trust attend this conference call.

 There are weekly mental health inpatient capacity meetings with representatives from the Trust. Additional capacity has been purchased in neighbouring NHS facilities and via the charitable sector.

The number of out of area placements utilised by the Trust is significant and the CCG monitors usage on a daily and weekly basis (as above) to ensure that patients are either allocated a bed quickly or are repatriated as quickly as possible when a bed is available within the Trust.

An escalation protocol was agreed with the Trust in the financial year of 2011/12 which enabled the Trust to utilise private sector beds when it did not have the capacity to accommodate a patient in need of an inpatient bed. This protocol was reviewed following the inquest into the death of patient FK and has been reviewed again in July 2013 to ensure it remains robust. The CCG is confident that the protocol is appropriate and robust.

An inpatient capacity management plan has been developed and implemented by the CCG. The overall aims of this plan are:  To address the financial pressure within the Manchester health economy resulting from out-of-area placements  To improve patient experience  To maintain bed flows most effectively and efficiently  To promote an effective and joint working approach across the stakeholder organisations

The Commissioner Assurance Plan for Quality Improvement (CAP-QI) was agreed by the Joint Commissioning Management Board in September 2013 and is monitored monthly as part of quality and performance monitoring processes that are in place within the Citywide Commissioning, Quality and Safeguarding Team.

Conclusion To summarise: the City Wide Commissioning, Quality and Safeguarding Team on behalf of the CCG’s has robust monitoring processes in place to monitor action taken by the Trust in response to this incident and other serious incidents requiring investigation reported by the Trust. Assurance is sought with regards to progress on a monthly basis.

The Team also monitors bed availability on a daily and weekly basis to ensure that patients are not waiting unnecessarily for a bed or that they are not placed out of area for extended periods of time (which can impact on patient experience and also NHS budgets).
Department of Health Central Government
PDF
Noted

The Department of Health acknowledges the concerns and states that local healthcare organisations should ensure that all staff are trained to the appropriate standard. Concerns have been sent to the National Trust Development Authority (NTDA) which is in contact with MHSC Trust and has received an action plan. (AI summary)

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From the Rt Hon Jeremy Hunt MP Secretary of State for Health Department of Health Richmond House 79 Whitehall London POC1829620 SWIA 2NS Tel: 020 7210 3000 Nigel Meadows Mb-sofs@dhgsi-govuk Senior Coroner Manchester (City) District The Coroners Court Crown Square Manchester 1 3 FER 2014 M6o [PR Je L_ MuAe+ Thank you for_ letter about the inquest into the death of Stephanie Daniels. Your report gives a comprehensive account of the circumstances surrounding Ms Daniel's death by suicide and highlighted a number of policy and procedural issues for the Manchester Health and Social Care Trust (MHSC) to address, including supervision ofjunior staff; handover and the performing and recording of observations on patients at risk of suicide: [ expect all healthcare professionals working in local Trusts to be fully trained and aware of the existing protocols in their local Trust. It is for local healthcare organisations to ensure that all staff are trained to the appropriate standard. As many of the concerns you raise are issues to be dealt with at Trust level, I have ensured that your concerns have been sent to the National Trust Development Authority (NTDA) which provides support, oversight and governance for all NHS Trusts. The NTDA is in contact with MHSC Trust and has received an action plan which seeks to address the points you have raised. Your report stated that there should be no waiting time for the allocation of a bed in the case ofa patient who is clinically deemed to need one. As the evidence given by the Clinical Commissioning Group in this case stated, this should already be the case. We are clear that acute beds must always be available for people who need them_ your"

The total number of designated mental health beds in England is around 22,000. This includes many different types of mental health bed: from high secure beds in special hospitals to psychiatric intensive care, open rehabilitation beds and recovery houses_ Providers also have a responsibility to listen to patients and offer care in the community as well as in hospitals when appropriate. The right mix of these beds, and of services that can be delivered in out-patient and non-residential community settings or in people's homes will vary by area and population In-patient beds are not always the best place for people with an acute mental health problem. There is a general move in mental health services to provide safe; evidence-based alternatives to in-patient beds in the form of intensive community treatment teams. This has led to reductions in admissions; and, most importantly, enabled patients to be treated closer to home where most want to be. Ido that this response is helpful and I am grateful to you for bringing this issue to my attention: Yv ,nw JEREMY HUNT hope

Report sections

Investigation and inquest
On 26 March 2012 commenced an investigation into the death of STEPHANIE DANIELS, aged 32. The investigation concluded at the end of an 19 day jury inquest on 29 November 2013. The cause of death was found to be: Ja Asphyxia due t0 combination of ligature strangulation and obstruction of the airway The conclusion of the inquest was that: The deceased killed herself whilst the balance of her mind was disturbed by suffering from schizophrenia and auditory hallucinations and that her death was contributed to by neglect The jury answered some additional specific questions as follows: Upon the deceased's admission to the Safire unit on 221 March 2012,_what level of observations should she have been subject t0

according to the policy in force at the time and her behaviour; history and presentation? Continuous within eye sight Should she have remained upon that level of observations throughout her stay on the unit until the disclosure about the surrender of the ligature and the lighter on the morning of _ March 20122 Yes Was the deceased admitted to Safire were before or after the handover from the late to night shift took place on 22nd March 20122 We were unable to determine this Was & noose surrendered by the deceased on March 2012 but not recorded by the mental health staff in Amigos records? No Had the deceased actually been subject to any 'discreet 1:1' continuous within sight observations from the time she surrendered the ligature and the lighter on the morning of_ March 2012 to the start of the late shift at about 13.30hrs? No Was the nurse in charge of the early shift present and did they participate in the handover of the deceased'S care to the late shift at about 13.30hrs on 24h March 2013? Present: Yes Participated: No Was the nurse in charge of the late shift present and did they participate in the handover of the deceased"s care to the late shift at about 13.30hrs on March 2013? Present: The nurse in charge arrived late to the handover: Participated: No What information was verbally handed over from the early shift to the late shift from about 13.30 hrs on 24h March 2012? Chaotic Came in via CRHT On general observations, risk of self harm, scars on arms Ligature handed in to staff
Action should be taken
In my opinion action should be taken to prevent future deaths and believe you [ANDIOR your organisation] have the power to take such action.
Inquest conclusion
Upon the deceased's admission to the Safire unit on 221 March 2012,_what level of observations should she have been subject t0

according to the policy in force at the time and her behaviour; history and presentation? Continuous within eye sight Should she have remained upon that level of observations throughout her stay on the unit until the disclosure about the surrender of the ligature and the lighter on the morning of _ March 20122 Yes Was the deceased admitted to Safire were before or after the handover from the late to night shift took place on 22nd March 20122 We were unable to determine this Was & noose surrendered by the deceased on March 2012 but not recorded by the mental health staff in Amigos records? No Had the deceased actually been subject to any 'discreet 1:1' continuous within sight observations from the time she surrendered the ligature and the lighter on the morning of_ March 2012 to the start of the late shift at about 13.30hrs? No Was the nurse in charge of the early shift present and did they participate in the handover of the deceased'S care to the late shift at about 13.30hrs on 24h March 2013? Present: Yes Participated: No Was the nurse in charge of the late shift present and did they participate in the handover of the deceased"s care to the late shift at about 13.30hrs on March 2013? Present: The nurse in charge arrived late to the handover: Participated: No What information was verbally handed over from the early shift to the late shift from about 13.30 hrs on 24h March 2012? Chaotic Came in via CRHT On general observations, risk of self harm, scars on arms Ligature handed in to staff

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Report details

Reference
2013-0353
Date of report
13 December 2013
Coroner
Nigel Meadows
Coroner area
Manchester City

Responses identified

Responses identified 3 of 8
All listed responses identified

Organisations named in PFD reports are normally expected to respond within 56 days. Deadline: 7 Feb 2014 (estimated).

Sent to

APEX Nursing Agency
Care Quality Commission
Department of Health and Social Care
Greater Manchester Mental Health NHS Foundation Trust
NHS England
NHS Manchester Clinical Commissioning Group
NHS North Western Deanery
Manchester Mental Health and Social Care Trust

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