PFD report

Sandra Kirk · Prevention of Future Deaths report

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Issued 26 Sep 2022•Surrey

Report record

Published report and response evidence

This page connects the concerns raised in this report with statements found in recipients’ published responses. A link shows a clear evidence connection; it does not assign responsibility.

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Concerns
2

Raised in this report

Recipients
1

Named on the report

Responses found
1

Of 1 recipient

Stated actions
14

Described in responses

Recipients and published responses

Source document

Full report text

This is the full text from the original published report.

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Concerns and recipient responses

Select any concern, action or position to view the source wording.

Report evidence summary

Concerns raised2

  1. Limited risk reduction from observation frequency for high-risk patients
    Part of recurring concern: Unreliable observation of patients in specialist mental health unitsPart of recurring concern: Unreliable patient observation arrangements
  2. Lack of guidance for identifying and minimising potential ligatures, including hazardous clothing
    Part of recurring concern: Inadequate control of self-harm items in inpatient settings
Responses linked to these concerns

Each statement is shown once, even when linked to more than one concern.

Actions described in response An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.1

  1. Action

    Review national risk-assessment guidance and assess moving to an evidence-based, personalised safety-planning approach.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.2

  1. Position

    Cygnet is responsible for addressing its Ligature Risk Reduction Policy and Ligature Audit Tool.

    Stated by NHS EnglandRedirects responsibilityThe respondent said that another organisation was responsible for deciding or taking action.

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Limited risk reduction from observation frequency for high-risk patients

Wider context from the report

“- The evidence in this inquest was that Cygnet’s Ligature Risk Reduction Policy and the Ligature Audit Tool/Ligature Risk Assessment are standard documents used by Mental Health inpatient providers, including NHS Psychiatric Trusts. - The Ligature Risk Reduction Policy quotes the CQC guidance of 2015, that “Three-quarters of people who kill themselves whilst on a psychiatric ward do so by hanging or strangulation”. - Whilst these documents provide detailed guidance in respect of minimising ligature anchor points, they do not give guidance as to minimising potential ligatures themselves, which are defined as “Any item which can be used to make a loop or noose with the intention of limiting the supply of oxygen to an individual by hanging or asphyxiation”. - Rather than emphasising the very real risk that specific items of clothing, ████████, can pose to vulnerable patients, the document places emphasis on avoiding ‘blanket restrictions’ which does not assist in identifying where the real risks lie. - Death by the use of a ligature is likely to occur within a few minutes, whereas observations for a high-risk patient not assessed as being in immediate crisis, will generally be carried out four times in every hour, which therefore provides only a limited degree of risk reduction. Consideration should be given as to efficacy of such a policy and whether this can be improved by recognising that some items of clothing will be more obvious ligature risks and may need to be removed in all cases. ”

Is this part of a recurring concern?

Yes — Unreliable observation of patients in specialist mental health units; Unreliable patient observation arrangements.

Open source report

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Lack of guidance for identifying and minimising potential ligatures, including hazardous clothing

Wider context from the report

“- The evidence in this inquest was that Cygnet’s Ligature Risk Reduction Policy and the Ligature Audit Tool/Ligature Risk Assessment are standard documents used by Mental Health inpatient providers, including NHS Psychiatric Trusts. - The Ligature Risk Reduction Policy quotes the CQC guidance of 2015, that “Three-quarters of people who kill themselves whilst on a psychiatric ward do so by hanging or strangulation”. - Whilst these documents provide detailed guidance in respect of minimising ligature anchor points, they do not give guidance as to minimising potential ligatures themselves, which are defined as “Any item which can be used to make a loop or noose with the intention of limiting the supply of oxygen to an individual by hanging or asphyxiation”. - Rather than emphasising the very real risk that specific items of clothing, ████████, can pose to vulnerable patients, the document places emphasis on avoiding ‘blanket restrictions’ which does not assist in identifying where the real risks lie. - Death by the use of a ligature is likely to occur within a few minutes, whereas observations for a high-risk patient not assessed as being in immediate crisis, will generally be carried out four times in every hour, which therefore provides only a limited degree of risk reduction. Consideration should be given as to efficacy of such a policy and whether this can be improved by recognising that some items of clothing will be more obvious ligature risks and may need to be removed in all cases. ”

Is this part of a recurring concern?

Yes — Inadequate control of self-harm items in inpatient settings.

Open source report

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Review national risk-assessment guidance and assess moving to an evidence-based, personalised safety-planning approach.

Verbatim wording from the response

“Regarding the national guidance around risk assessments (relevant to your comments around observations and risk reduction), I would like to provide my assurance that this is currently being reviewed and work is underway to assess a move to a more personalised safety planning approach, in line with an evidence base. The concerns raised in PFD reports, including your Report dated 26 September 2022, are communicated to the national policy and programme teams to help inform their work around this.”

Source location

Response from NHS England (2)
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent position was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Cygnet is responsible for addressing its Ligature Risk Reduction Policy and Ligature Audit Tool.

Verbatim wording from the response

“In respect of the specific concerns in your Report regarding Cygnet’s Ligature Risk Reduction Policy and Ligature Audit Tool / Risk Assessment, these are outside of NHS England’s remit and are more matters for Cygnet to action, which is why our previous response did not fully address the same. However, I can confirm that NHS England”

Source location

Response from NHS England (2)
Page 1 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent position was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Cygnet’s Ligature Risk Reduction Policy and Ligature Audit Tool are outside NHS England’s remit.

Verbatim wording from the response

“In respect of the specific concerns in your Report regarding Cygnet’s Ligature Risk Reduction Policy and Ligature Audit Tool / Risk Assessment, these are outside of NHS England’s remit and are more matters for Cygnet to action, which is why our previous response did not fully address the same. However, I can confirm that NHS England”

Source location

Response from NHS England (2)
Page 1 · response
Published 7 October 2022

Open published response

Other statements in published responses

These actions and other statements could not be clearly connected to one concern in this report.

Recipient-stated actions An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.13

  1. 1

    Communicate concerns raised in Prevention of Future Deaths reports to national policy and programme teams to inform their work.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 7 October 2022.
  2. 2

    Monitor and share learning and commitments arising from or linked to Prevention of Future Deaths reports through the Regulation 28 Working Group.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 7 October 2022.
  3. 3

    Establish a quality programme supporting mental health, learning disability and autism inpatient services to address significant quality and safety concerns.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 7 October 2022.
  4. 4

    Require every mental health, learning disability and autism provider to review patient-safety oversight, closed-culture mitigation, patient safeguards and advocacy arrangements.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 7 October 2022.
  5. 5

    Work with the sector to agree impactful immediate actions for lived-experience oversight and local quality improvement.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.
  6. 6

    Redesign the inpatient care model in line with current evidence, including addressing risk factors associated with poor outcomes.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.
  7. 7

    Drive cultural improvement through leadership development, inpatient workforce redesign and change programmes.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.
  8. 8

    Support systems to transform inpatient services and commission only safe, high-quality therapeutic models, with community alternatives.

    Stated by NHS EnglandStated plannedThe respondent said that this action was planned when they made their response on 7 October 2022.
  9. 9

    Ensure effective quality-improvement support is available for appropriate inpatient care models.

    Stated by NHS EnglandStated plannedThe respondent said that this action was planned when they made their response on 7 October 2022.
  10. 10

    Discuss Prevention of Future Deaths reports through the Regulation 28 Working Group and share learning across national and regional NHS levels.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 7 October 2022.
  11. 11

    Provide urgent support to NHS and independent-sector units requiring immediate assistance.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.
  12. 12

    Provide targeted, ring-fenced funding to integrated care systems for suicide prevention and bereavement services.

    Stated by NHS EnglandStated in progressThe respondent said that this action was in progress when they made their response on 7 October 2022.
  13. 13

    Change oversight of mental health, learning disability and autism inpatient settings so collected metrics reflect known risk factors.

    Stated by NHS EnglandStated plannedThe respondent said that this action was planned when they made their response on 7 October 2022.

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Communicate concerns raised in Prevention of Future Deaths reports to national policy and programme teams to inform their work.

Verbatim wording from the response

“Regarding the national guidance around risk assessments (relevant to your comments around observations and risk reduction), I would like to provide my assurance that this is currently being reviewed and work is underway to assess a move to a more personalised safety planning approach, in line with an evidence base. The concerns raised in PFD reports, including your Report dated 26 September 2022, are communicated to the national policy and programme teams to help inform their work around this.”

Source location

Response from NHS England (2)
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Monitor and share learning and commitments arising from or linked to Prevention of Future Deaths reports through the Regulation 28 Working Group.

Verbatim wording from the response

“I would also like to provide further assurances that the Regulation 28 Working Group, who closely monitor and share learnings and commitments arising from or linked to PFD reports, will continue to do so in this case.”

Source location

Response from NHS England (2)
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Establish a quality programme supporting mental health, learning disability and autism inpatient services to address significant quality and safety concerns.

Verbatim wording from the response

“Quality Programme”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Require every mental health, learning disability and autism provider to review patient-safety oversight, closed-culture mitigation, patient safeguards and advocacy arrangements.

Verbatim wording from the response

“• In the aftermath of recent incidents of patient safety and quality failures, NHS England asked every MHLDA provider to review their oversight of patient safety, mitigation for closed cultures, safeguards for patients and patient advocacy arrangements. The outcomes of their reviews have been made publicly available by each Trust at the end of December 2022 in their Trust Board papers.”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Work with the sector to agree impactful immediate actions for lived-experience oversight and local quality improvement.

Verbatim wording from the response

“• We are also working with the sector to agree the most impactful immediate actions they can take to improve lived experience oversight of quality and local quality improvement”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Redesign the inpatient care model in line with current evidence, including addressing risk factors associated with poor outcomes.

Verbatim wording from the response

“• In addition to this, NHS England is working to drive longer-term improvements in the following key areas:”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Drive cultural improvement through leadership development, inpatient workforce redesign and change programmes.

Verbatim wording from the response

“• Driving cultural change and improvement through leadership development, inpatient workforce redesign and change programmes.”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Support systems to transform inpatient services and commission only safe, high-quality therapeutic models, with community alternatives.

Verbatim wording from the response

“• The programme will focus both on helping systems to transform their current service offer, so that only those models of inpatient care which can deliver safe, high quality, therapeutic care are commissioned with community alternatives stood up, and to ensure effective quality improvement support is in place for appropriate models of inpatient care.”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Ensure effective quality-improvement support is available for appropriate inpatient care models.

Verbatim wording from the response

“• The programme will focus both on helping systems to transform their current service offer, so that only those models of inpatient care which can deliver safe, high quality, therapeutic care are commissioned with community alternatives stood up, and to ensure effective quality improvement support is in place for appropriate models of inpatient care.”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Discuss Prevention of Future Deaths reports through the Regulation 28 Working Group and share learning across national and regional NHS levels.

Verbatim wording from the response

“I would also like to provide further assurances on the national NHSE work taking place around the Reports to Prevent Future Deaths. All reports received are discussed by the Regulation 28 Working Group, comprising Regional Medical Directors and other clinical and quality colleagues from across the regions. This ensures that key learnings and insights around events, such as the sad death of Sandra, are shared across the NHS at both a national and regional level, and helps us to pay close attention to any emerging trends that may require further review and action.”

Source location

Response from NHS England
Page 3 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Provide urgent support to NHS and independent-sector units requiring immediate assistance.

Verbatim wording from the response

“• In addition to this, NHS England is working to drive longer-term improvements in the following key areas:”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Provide targeted, ring-fenced funding to integrated care systems for suicide prevention and bereavement services.

Verbatim wording from the response

“• Integrated care systems (ICSs) are partnerships of organisations that come together to plan and deliver joined up health and care services, and to improve the lives of people who live and work in their area. NHS England » What are integrated care systems? As part of the £2.3 billion settlement for mental health in the NHS Long Term Plan, NHSE are providing targeted and ring fenced funding to ICSs so they can deliver their multi-agency plans. This includes suicide prevention activities such as Zero Suicide Plans in inpatient services,”

Source location

Response from NHS England
Page 1 · response
Published 7 October 2022

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Change oversight of mental health, learning disability and autism inpatient settings so collected metrics reflect known risk factors.

Verbatim wording from the response

“• Change the way we oversee the quality of MHLDA inpatient settings so that the metrics we collect are based upon the known risk factors.”

Source location

Response from NHS England
Page 2 · response
Published 7 October 2022

Open published response
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Information checked against the published report and official responses · Data reviewed 7 Sep 2026 · About data quality and limitations

Official responses located
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Data last updated 7 September 2026