Another day, another court case, now from the UK Supreme Court, and this time about a patient, Melanie Rabone, who committed suicide, the resultant personal agony of the parents which was very strikingly acknowledged by Lady Hale in her judgement and the ‘operational duty’ on a healthcare organisation to do all it can to prevent suicide. This is relevant to palliative care services because many palliative care patients actively consider suicide and of course some seek assisted suicide. As part of this case, there was passing mention of what a health service should do if someone announces their intention to go to Switzerland to be helped to commit suicide. What is the balance of freedom to decide and duty to protect?
The NHS Trust in this case was negligent, and paid compensation to the patient’s estate. But had they also breached the European Charter of Human Rights, Article 2 ‘Everyone’s right to life shall be protected by law’? There is a very full, but rather dry, detailed judgement by Lord Dyson, but I have excerpted below Lady Hale’s points, missing out the legal discussion of precedents, drawing attention to the points of interest to palliative care serviecs in my own comments.
You can see the Press Release summarising the case on the web here: http://www.supremecourt.gov.uk/decided-cases/docs/UKSC_2010_0140_PressSummary.pdf
You can see the full report of the judgements here: http://www.supremecourt.gov.uk/decided-cases/docs/UKSC_2010_0140_Judgment.pdf
First of all, Lady Hale gives a powerful summary of the case and its importance.
91. A hospital trust, in breach of its duty of care towards its patient, allowed a young woman, who was suffering from a severe depressive episode with psychotic symptoms and had been admitted a week earlier after a serious suicide attempt, to go home on leave for two days. The only support plan was the care of her parents who were not in favour of her being allowed home. The following day she hanged herself from a tree in a well-known local beauty spot, at last succeeding in the suicide which she had previously attempted and seriously threatened even more often. The hospital trust has admitted liability to her and paid a sum in compensation to her estate. So why, some might ask, are we here?
She follows this by demonstrating an equally impressive grasp of what it means to lose your child.
92. We are here because the ordinary law of tort does not recognise or compensate the anguish suffered by parents who are deprived of the life of their adult child. In this day and age we all expect our children to outlive us. Losing a child prematurely is agony. No-one who reads the hospital’s notes of the series of telephone calls made by this patient’s father to the hospital on the night in question can be in any doubt of that; or that the agony may be made worse by knowing that the loss both could and should have been prevented. It is not surprising, therefore, that parents are among the recognised victims when the right to life of their child, protected under article 2 of the European Convention for the Protection of Human Rights and Fundamental Freedoms, is violated.
Then on to the legal points. The crucial thing for any healthcare organisation is the ‘operational duty’ to protect life. Melanie Rabone was a psychiatric patient, and the operational duty was particularly an issue because her psychiatrist had made clear to the hospital management the risk of her committing suicide. Because many palliative care patients consider suicide, and are assessed, a palliative care service might well have a rather similar ‘operational duty’ to protect their patients’ lives under Article 2. As Lady Hale says: In the health care context, this also entails having effective administrative and regulatory systems in place, designed to protect patients from professional incompetence resulting in death…[I]n certain circumstances, the state’s positive obligation to protect life goes further than that. It entails an obligation to take positive steps to prevent a real and immediate risk to the life of a particular individual from materialising…’
93. Article 2 begins “Everyone’s right to life shall be protected by law”. As Lord Dyson has explained, it is now clear that this simple sentence imposes three distinct obligations upon the state. The first, which does not arise here, is a negative obligation, not itself to take life except in the limited cases provided for in article 2(2). The second, which also does not arise here, is a positive obligation to conduct a proper investigation into any death for which the State might bear some degree of responsibility. And the third, with which this case is concerned, is a positive obligation to protect life. As a general rule, that positive obligation is fulfilled by having in place laws and a legal system which deter threats to life from any quarter and punishes the perpetrators or compensates the victims if deterrence fails. In the health care context, this also entails having effective administrative and regulatory systems in place, designed to protect patients from professional incompetence resulting in death. But it is not suggested that English law and the English legal system are defective in this respect.
94. However, in certain circumstances, the state’s positive obligation to protect life goes further than that. It entails an obligation to take positive steps to prevent a real and immediate risk to the life of a particular individual from materialising…
Here is the point that there is no general duty to prevent people from committing suicide, and the Switzerland example is given. But it is different if there was a ‘real and immediate risk’ that the patient might lose their life.
100. We are not here concerned with that broader question, but with the more precise question of when the state has a duty to protect an individual from taking his own life. It does seem fairly clear that there is no general obligation on the State to prevent a person committing suicide, even if the authorities know or ought to know of a real and immediate risk that she will do so…Autonomous individuals have a right to take their own lives if that is what they truly want. If a person announces her intention of travelling to Switzerland to be assisted to commit suicide there, this is not, by itself, sufficient to impose an obligation under article 2 to take steps to prevent her…
And in the following paragraph, Lady Hale does express clearly what duty a healthcare organisation has in its ‘operational duty’: The State does have a positive obligation to protect children and vulnerable adults from the real and immediate risk of serious abuse or threats to their lives of which the authorities are or ought to be aware and which it is within their power to prevent.
104…The court has more than once found a violation of the prohibition of inhuman and degrading treatment in article 3 when the authorities have failed to use their powers to take action to protect children from the risk of serious abuse or ill-treatment about which the authorities knew or ought to have known…[T]he operational duties under both article 2 and article 3 are similar if not identical. The State does have a positive obligation to protect children and vulnerable adults from the real and immediate risk of serious abuse or threats to their lives of which the authorities are or ought to be aware and which it is within their power to prevent. Whether they are in breach of this obligation will depend upon the nature and degree of the risk and what, in the light of the many relevant considerations, the authorities might reasonably have been expected to do to prevent it. This is not only a question of not expecting too much of hard-pressed authorities with many other demands upon their resources. It is also a question of proportionality and respecting the rights of others, including the rights of those who require to be protected…
105. In the light of all this, there can be little doubt that the operational duty under article 2 is engaged in the case of a patient such as Miss Rabone. She was admitted to hospital precisely because of the risk that she would take her own life. The purpose of the admission was both to prevent that happening and to bring about an improvement in her mental health such that she no longer posed a risk to herself. The experts were agreed that for patients such as Miss Rabone, one of the most risky periods for further suicide attempts is within a week or so of beginning to recover. Her mental disorder meant that she might well lack the capacity to make an autonomous decision to take her own life. Although she was an informal patient, the hospital could at any time have prevented her leaving…
So what should the healthcare service have done? Again, Lady Hale is clear: There is a difficult balance to be struck between the right of the individual patient to freedom and self-determination and her right to be prevented from taking her own life… But The State does have a positive obligation to protect children and vulnerable adults from the real and immediate risk of serious abuse or threats to their lives of which the authorities are or ought to be aware and which it is within their power to prevent. …There is every indication that had she remained in hospital she would not have succeeded in killing herself. The question was whether she should have been allowed to go home for a whole weekend. Having regard to the nature and degree of the risk to her life, and the comparative ease of protecting her from it, I agree that her right to life was violated.
107. However, it does not follow that because the operational duty was engaged in this case, it has necessarily been broken. There is first the question of whether the risk was sufficiently real and immediate to require consideration of what might be done to prevent it. I agree, for the reasons given by Lord Dyson, that it was. Although the doctors gave different assessments of the degree of risk, they were agreed that it was real and ever-present…There is next the question whether the hospital should have done more to prevent it. There is a difficult balance to be struck between the right of the individual patient to freedom and self-determination and her right to be prevented from taking her own life. She wanted to go home and her doctor thought that it would be good for her to begin to take responsibility for herself. He was obviously wrong about that, but was he so wrong that the hospital is to be held in breach of her human rights for failing to protect her? It may not always be enough simply to say that the experts were agreed that the decision to give her home leave was one which no reasonable psychiatrist would have taken. But The State does have a positive obligation to protect children and vulnerable adults from the real and immediate risk of serious abuse or threats to their lives of which the authorities are or ought to be aware and which it is within their power to prevent. …There is every indication that had she remained in hospital she would not have succeeded in killing herself. The question was whether she should have been allowed to go home for a whole weekend. Having regard to the nature and degree of the risk to her life, and the comparative ease of protecting her from it, I agree that her right to life was violated.
108. I also agree that her parents have not ceased to be victims of this violation simply because the hospital has paid compensation to her estate. They are victims in their own right and remain so whether or not she died intestate so that, as it happens, her estate would be shared between them….It is also important that fundamental human rights be vindicated, and never more so than when the most fundamental right of all, the right to life, is at stake.