Mental Health Bill [HL]

Lord Cryer Excerpts

Tuesday 14th January 2025 Lords Chamber

Moved by

[Lord Cryer]

7: Clause 4, page 5, line 20, after “provide” insert “or arrange for the provision of”
Member’s explanatory statement
This amendment and my other amendments to Clauses 4 and 43 are minor and technical amendments to clarify that the references to after-care services include services arranged (as well as directly provided) by a public authority under section 117 of the Mental Health Act 1983.

[Lord in Waiting/Government Whip (Lord Cryer) (Lab)]

My Lords, in moving government Amendment 7, in the name of my noble friend the Minister, I shall also speak to government Amendments 14, 87 to 94, 127, 161 and 162, also in the name of my noble friend the Minister.

The minor and technical government Amendments 7, 14 and 127 make changes to Clauses 4 and 43 to clarify that the references to aftercare services include services arranged, as well as directly provided, by a public authority under Section 117 of the Mental Health Act 1983.

I turn to government Amendments 87 to 94, which concern Clause 31, and Amendment 162 on the commencement of certain provisions within Clauses 29, 31 and 34. Amendments 87 to 94 divide Clause 31 into two clauses to allow for automatic referral rights to the mental health tribunal to be commenced separately for patients who will be subject to conditional discharge subject to deprivation of liberty conditions. This is an important safeguard for this new form of conditional discharge, given the level of restriction that these individuals will be under. Under Clause 31, patients conditionally discharged under deprivation of liberty conditions will be referred to the tribunal 12 months post discharge and every two years thereafter.

Amendment 162 amends Clause 53 to adjust commencement for certain provisions currently commenced by regulations to be commenced two months after Royal Assent, and vice versa. Automatic referral to the tribunal under Clause 31 and increased application rights under Clause 29(2) shall now commence at two months post Royal Assent for conditionally discharged patients subject to deprivation of liberty conditions. That is to coincide with the introduction of this new subset of conditional discharge at Clause 33 and ensures that the new measure is introduced with the full suite of carefully considered safeguards in place.

Amendment 162 also adjusts commencement for the change of detention criteria for transfers from places of detention to hospital under Sections 47 and 48 of the Mental Health Act 1983 to commence via regulations. This change in the detention threshold ensures that the detention criteria can be met without the need for a hospital bed to be identified, and is closely linked to the introduction of the statutory time limit at Clause 35. The ability to commence this reform simultaneously with the time limit at Clause 35 will allow for streamlined implementation planning around the new statutory notice process and accompanying guidance.

Finally, government Amendment 161 creates an equivalent power for Welsh Ministers to make consequential provision in areas of their devolved legislative competence. This is a limited power and allows Ministers to make regulations containing such provision as they consider necessary to deal with legislative consequences that arise as a result of the Bill. The power cannot be used to make substantive policy changes. This new clause would mirror the powers of the Secretary of State, as set out in Clause 51. This provision was requested by the Welsh Government in their legislative consent memorandum, in which they recommended that the Senedd grants consent to the Mental Health Bill. We believe that this is appropriate, and I am grateful to the Welsh Government for their close collaboration and support for this important piece of legislation.

I hope that noble Lords are able to support these technical and necessary amendments. I beg to move.

[Lord Kamall (Con)]

My Lords, I am sure the noble Lord is thinking, “If only all groups went as swiftly as this one”. I thank him for bringing forward these government amendments. We understand that although they are largely technical in nature, they address some important points regarding the delivery of aftercare services, tribunal reviews and the broader application of this legislation.

We see the point of Amendments 7, 14, and 127 to clarify the references to aftercare services under Section 117 of the Mental Health Act, including services arranged by public authorities in addition to those directly provided. We understand that this reflects the practical realities of service delivery and may help to avoid ambiguity in how these obligations are interpreted. If we have heard any lesson throughout this debate, it is about how we avoid ambiguity when it comes to the treatment of patients.

We understand also that Amendments 87 to 94 focus on tribunal reviews for patients subject to conditions amounting to a deprivation of liberty, which we have discussed in other groups. The proposal to commence these provisions two months after Royal Assent is pragmatic and necessary to provide patients with timely access to justice. The amendments also introduce a new clause requiring the Secretary of State to refer certain cases to the tribunal within defined timelines. We agree that this will ensure that patients who are conditionally discharged but not recalled to the hospital are not left in a state of indefinite uncertainty. Once again, that was covered in the last group of amendments as somewhere where the patient could fall between the cracks, as it were. Timely tribunal reviews are essential for safeguarding patients’ rights and ensuring that any conditions imposed remain proportionate and necessary.

We understand also that Amendments 161 and 162 propose adjustments to the commencement of specific provisions, including granting Welsh Ministers powers to make consequential provisions within their devolved competence. Though these amendments are largely procedural, they underline the importance of clarity in implementing the reforms set out in the Bill. Of course, we understand that healthcare is a devolved matter. I remember having to deal with the devolved Administrations when I was a Health Minister, and we always did so collaboratively. Welsh Ministers should indeed have the same right to make consequential provisions, although if I have a question for the Minister, it is: what safeguards and oversight mechanisms will be in place to ensure equal application of the Bill to Wales, as in England? I am sure he will be aware that we have sometimes had questions in this place as to why the standard of health or social care in another part of the United Kingdom might be different, even understanding that it is due to devolution. Are there any safeguards to ensure that one part of the UK is not seen as having an inferior service to the rest of the UK? How would the Government address that?

With that, we very clearly understand that these are technical amendments and we will not oppose them.

[Lord Cryer (Lab)]

I am grateful to the noble Lord and take his point about ensuring there are equal standards across the devolved Parliaments and Assemblies. However, nothing is guaranteed. As he undoubtedly did when in government, we will endeavour to collaborate with Welsh colleagues—as well as others—to ensure that equal standards are applied across England and Wales. That includes regular contact with the Senedd and the Welsh Executive on a variety of matters, including health. That may be a slightly vague answer, but at the moment it is the best I can do.

I thank the noble Lord for his other comments. I have spoken about the need for these minor, technical and necessary amendments, and I hope noble Lords can support them.

[Lord Kamall (Con)]

This raises another issue, which I know has been raised in other areas of healthcare, of families who live across borders—if the parents live in one part of the United Kingdom and the children live in another, or if someone who has lived away from home moves back. I do not expect an answer now, as that would be unfair, but if the noble Lord could write to noble Lords on cross-border issues, where someone has commenced care in one area but then they or their parents have moved to another area, that would be satisfactory. We had a number of issues around this in healthcare, particularly mental health care, and it is important to resolve them.

[Lord Cryer (Lab)]

I am happy to do that. I remember having those sorts of issues when I was a Member of the other place. Probably a number of us have experienced them. I suppose that, at present, it is how it has always been: you have to try to communicate with the respective authorities and bring them together so that there is some sort of continuity.

Amendment 7 agreed.

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Moved by

[Lord Cryer]

10: Clause 4, page 5, line 23, at end insert—
“(The arrangements may also include provision authorising or requiring a copy of the report to be given to other persons.)”Member’s explanatory statement
New section 125A(3)(b) requires arrangements to include provision for reports to be given to the people listed in that provision. This amendment provides, for the avoidance of doubt, that arrangements may also include provision for reports to be given to others.

--- Later in debate ---

Moved by

[Lord Cryer]

14: Clause 4, page 7, line 25, after “provide” insert “or arrange for the provision of”
Member’s explanatory statement
See the explanatory statement for my amendment to Clause 4, page 5, line 20.

--- Later in debate ---

Moved by

[Lord Cryer]

17: Clause 4, page 7, line 28, at end insert—
“(The arrangements may also include provision authorising or requiring a copy of the report to be given to other persons.)”Member’s explanatory statement
New section 125B(3)(b) requires arrangements to include provision for reports to be given to the people listed in that provision. This amendment provides, for the avoidance of doubt, that arrangements may also include provision for reports to be given to others.

Mental Health Bill [HL]

Lord Cryer Excerpts

2nd reading
Monday 25th November 2024 Lords Chamber

[Lord Adebowale (CB)]

My Lords, this has been a fascinating debate so far. It is an honour to contribute and to listen to so many learned Peers around the House. In fact, earlier on I detected an almost kumbaya moment around the agreement on some of the aspects of the Bill.

I declare my interest as chair of the NHS Confederation, which is a membership organisation representing health and care leaders in England, Wales and Northern Ireland. We have the privilege of having 100% of all mental health trust leaders in membership.

This debate is overdue, just as updating the Mental Health Act is long overdue. I could not help thinking, during the contributions of the noble Lords, Lord Meston and Lord Scriven, that if we were to go back to 1959, this House would be of archaeological interest before we got anywhere near where we have got to today—so we shall start where we are and continue to make the Bill the best it can be.

I should also point out that a member of my family is on the autistic spectrum, so I get it, just as people who have that experience also get it.

Organisations such as the NHS Confederation have warned that the success of reforms will be dependent on the wider infrastructure to support them. My first question to the Minister is: can she confirm that as well as the important measures in the Bill, we will see further details in next spring’s spending review and in the 10-year NHS plan about how patients and staff working in mental health will be supported in years to come?

The Bill is welcome, not least because it is intended to stop people with learning disabilities and autistic people from being detained long-term, unless they also have a serious mental health condition, but only when there is sufficient and appropriate community care in place to support them. It is clear, therefore, that a plan on how this capacity will be built up is vital; otherwise, people will continue to be detained inappropriately. Can the Minister provide more details on what the Government will do to ensure that we see that capacity is built up, so that people with learning disabilities and autistic people are able to benefit from the support that community care can provide?

Concerns have also been highlighted to me by many of our members and other organisations that the changes for people with learning disabilities and autistic people may unintentionally risk these groups falling into the criminal justice system due to a lack of community provision, as mentioned by the noble Baroness, Lady Watkins. This is similar to the changes in New Zealand she referred to, which led to people with learning disabilities and autistic people sometimes being sent to prison and left neglected in the community or admitted to forensic facilities as secure patients, as they were unable to be detained under its equivalent of the Mental Health Act.

I welcome the safeguards that the changes relating to people with learning disabilities and autistic people will be enacted only once sufficient provision is in place. Can the Minister provide more details on what the Government will do to ensure that capacity is built up so that people with learning disabilities and autistic people are not inappropriately—and indeed unintentionally—detained for many years, often far away from home and for very long periods?

The Government are committed to enacting the changes to detention regarding people with learning disabilities and autistic people only once sufficient community provision is in place to reduce the risk of these people falling into the criminal justice system. Again, can the Minister outline how the decision to enact this part of the legislation will be made?

The reforms that we are debating introduce duties on commissioners to ensure an adequate supply of community services to prevent inappropriate detentions in hospital, but without a funded plan to build up this provision, there is a risk that the proposed changes to the legislation will never be enacted, and people will continue to be inappropriately detained. Can the Minister say what measures the Government will put in place to help commissioners get it right at local level?

In addition, as the noble Lord, Lord Bradley, mentioned, referring to the 28 days, some people are very concerned that it is not long enough to complete a thorough assessment to identify whether patients with a learning disability or autistic people have a co-occurring mental health disorder, due to the complexity of what patients often present. Does the Minister acknowledge these concerns, and will she remain open to discussions with the sector throughout the passage of the Bill so that the views of those who work day to day with vulnerable people, as well as the views of people with learning disabilities and autistic people and their families, can be fed directly into the legislative process?

It is nice to note that many have referred to the stark racial inequalities in the use of CTOs, and wider concerns around their use. However, mental health providers and many professionals agree that they can be beneficial to patients as they can be the least restrictive option, and we welcome the Government’s commitment to reviewing CTOs. Can the Minister share details about the scope and timescale of this review?

The NHS Confederation has raised concerns about high vacancy rates across the sector, which are bound to impact on staff capacity. Again, can the Minister give assurances that this will be addressed as soon as possible, if not as part of this legislation then through the upcoming 10-year plan or the review of the NHS workforce plan? This was mentioned by the right reverend Prelate the Bishop of London, and indeed the noble Baroness, Lady Buscombe, whose points on data I also agree with.

The NHS Confederation has pointed out that more opportunities for patients to challenge their detention are likely to increase the number of tribunal hearings. This would require an additional 33% expansion of the in-patient responsible clinician workforce. Given that national consultant psychiatrist vacancy rates are currently around 10% to 15%, this will be very challenging. With the Government set to publish an updated long-term workforce plan for the NHS next year, as mentioned earlier, can the Minister give an assurance there will be measures in this plan to specifically tackle workforce shortages in mental health?

In referring back to the issue of racial inequality, the patient and carer race equality framework is the key vehicle in reducing the racial disparities that exist in the Mental Health Act and in wider services—which mean, for example, as we mentioned, that black people are far more likely to be detained under the Act or to be placed on a community treatment order than white people. The so-called PCREF is not part of legislation, but all mental health providers are expected to implement it. Concerns exist that the lack of understanding of the framework, as well as the lack of resources available, are hampering its implementation. Again, will the Minister consider using legislation to address these concerns?

Racial disparities are a significant issue, and the NHS Confederation has described the disparities in rates of detention of people from different racial backgrounds as unacceptable—I agree. For example, black people are more than three times more likely to be detained under the Mental Health Act. There is evidence that advance choice documents reduce racial disparities in the level of detentions. This led to many in the sector calling for them to be made statutory. Indeed, this was recommended by both the Mental Health Act review and the pre-legislative scrutiny committee which looked at the draft Bill. Can the Minister set out why advance choice documents will not be made statutory? Is she confident that measures in the Bill concerning such documents will help reduce those racial disparities in detention rates? There are very few evidential interventions that actually reduce racial disparities, so let us use the one that we know works.

The NHS Confederation has highlighted concerns that the new criteria for detention set out in the Bill—namely, that serious harm may be caused—need to be defined. If they are not, we risk inconsistency in how the definition is interpreted. Will the Minister come forward with a definition of what constitutes serious harm so that there can be no doubt about what this means in practice?

Funding for new mental health crisis centres announced in the Autumn Budget was welcome, but we need to see more funding provided for the NHS and mental health in the coming years. As the confederation has pointed out, successful implementation of the legislation we are debating will depend on ensuring that the workforce and resources are in place. That includes capital funding to improve the safety and therapeutic environments of in-patient wards. I have seen some shocking places, as no doubt many noble Lords have. Can the Minister say whether, alongside these much-needed reforms, we will see further funding for mental health in next spring’s spending review? I urge her to speed dial the Treasury.

The Government estimate the overall cost of the reforms to be around £5.3 billion for housing, health and social care costs and £313 million for costs to the justice system in England and Wales. The upcoming 10-year plan and next spring’s spending review are key opportunities for the Government to acknowledge what is needed to enact these reforms. The money for the NHS in the Budget was very welcome. I am a big fan of £22 billion for the NHS, but will the Minister give an assurance that further funding will be made available so that these reforms have the best chance of being effective?

The Government’s commitment to shift more care into the community is welcome because it supports better patient outcomes and is a more efficient use of funding. However, the NHS Confederation and I are among those who have pointed out that we need to make sure that the right provision is in place for that community care. Can the Minister provide assurance today that the Government acknowledge this, and can she set out the Government’s plans to ensure that we have this provision?

As the NHS Confederation pointed out recently, on behalf of our members, people with mental health needs and those with learning disabilities—

[Lord Cryer (Lab)]

Let me just point out that the limit of nine minutes is voluntary, but a lot of people want to speak.

[Lord Adebowale (CB)]

I know. I have two things to say and then I will finish, honestly. People with mental health needs, those with learning disabilities and autistic people are waiting too long for appropriate care and support. The mental health estate has also experienced years of underinvestment. Can the Minister give an assurance that alongside this Bill, the Government will use every opportunity they have with the 10-year plan and the upcoming spending review to ensure that we see further investment in care and support for those who need it and into the mental health estate?