PFD report

Madhumita Mandal · Prevention of Future Deaths report

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Issued 8 Dec 2015•South London

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.

View original report
Concerns
2

Raised in this report

Recipients
4

Named on the report

Responses found
3

Of 4 recipients

Stated actions
16

Described in 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. Failure to assess emergency department patients consistently regardless of mode of transport
  2. Insufficient qualification for assessment of urgent care patients
    Part of recurring concern: Unsafe assignment of staff without the required qualifications or competence to care work
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.8

  1. Action

    Use healthcare assistant observations scored with the VIEWS early warning system to identify patients requiring ED transfer or specialist referral after UCC streaming.

    Stated by NHS South West London Integrated Care BoardStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  2. Action

    Introduce clinical streaming at the front end of A&E following the changed layout and redevelopment of the ED department.

    Stated by NHS South West London Integrated Care BoardStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  3. Action

    Implement the current streaming model and joint standard operating policy to direct patients to UCC or ED according to presenting complaints.

    Stated by NHS South West London Integrated Care BoardStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.

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

  1. Position

    Existing clinical streaming and VIEWS processes are considered sufficient to ensure effective streaming of patients entering the urgent care centre.

    Stated by NHS South West London Integrated Care BoardExisting arrangements considered sufficientThe respondent said that existing arrangements were sufficient, so no further action was needed.

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

Failure to assess emergency department patients consistently regardless of mode of transport

Wider context from the report

“Mrs Mandal’s death also raises questions about the use of ambulance services. A difference in assessment of patients based upon their mode of transport to the emergency department may encourage patients to err on the side of calling an ambulance. ”

Is this part of a recurring concern?

No recurring-concern membership is currently published.

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

Insufficient qualification for assessment of urgent care patients

Wider context from the report

“Mrs Mandal was taken to Croydon University Hospital by her husband. Virgin Care was contracted by the Croydon Clinical Commissioning Group to provide urgent care services, and to stream adult patients arriving at the emergency department. A streaming model was followed by a receptionist who had no medical training and who performed no medical observations. This led to a delay of about an hour before Mrs Mandal was seen by any qualified healthcare professional, by which time her condition was critical. The streaming model had been approved and commissioned in the contract as recommended by an NHS body called the Emergency Care Intensive Support Team. The system at Croydon has changed since Mrs Mandal’s death but concerns remain about the level of qualification for assessment of patients, and there may be lessons for other Trusts who contract out the provision of urgent care. ”

Is this part of a recurring concern?

Yes — Unsafe assignment of staff without the required qualifications or competence to care work.

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

Use healthcare assistant observations scored with the VIEWS early warning system to identify patients requiring ED transfer or specialist referral after UCC streaming.

Verbatim wording from the response

“This issue was reviewed in a workshop with CHS, UCC and commissioner clinicians and executives where it was agreed that a modification would be made to the streaming model on a pilot basis, which has continued, whereby patients streamed to UCC would be given basic observations by a HCA. All observations would be scored using the Vital – Pac Early Warning System (VIEWS). Any patient scoring 4 and below would be asked to remain in the UCC; a score of 5 and above would indicate that the patient was inappropriately streamed and would be sent to ED or referred directly to a specialist. The VIEWS assessment not only gives assurance to the Trust about when patients are handed over but it is also compliant with guidance from the London Standards. The model has evidenced that less than 1% of patients initially streamed to the UCC are transferred to ED following the observations review.”

Source location

MMandal-Response3
Page 2 · response
Published 8 December 2015

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

Introduce clinical streaming at the front end of A&E following the changed layout and redevelopment of the ED department.

Verbatim wording from the response

“from the ED Department, clinical streaming has now been introduced at the front end of A&E. We are currently commencing re-procurement of urgent care services in Croydon and the specification for the new service will continue to require that effective streaming process are in place. The VIEWS process however continues to be used in the UCC.”

Source location

MMandal-Response3
Page 3 · response
Published 8 December 2015

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

Implement the current streaming model and joint standard operating policy to direct patients to UCC or ED according to presenting complaints.

Verbatim wording from the response

“By way of back ground the service was initially implemented using the Manchester Triaging model, which required the triaging of all patients (primary care and otherwise). As a consequence there was a significant impact on performance due to the delays this introduced into patient flows. The national Emergency Intensive Support Team (ECIST) supported a local review of the model, which led to a joint agreement by ED consultants, urgent care and CCG GP clinicians and implementation of the current streaming model and a joint standard operating policy agreed and implemented on the 9th October 2012. The model was based on trained appropriately experienced streaming patients to either the UCC or ED depending on their presenting complaint, with the aid of the streaming protocol.”

Source location

MMandal-Response3
Page 2 · response
Published 8 December 2015

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

Deliver UCC streaming through senior emergency department nurses.

Verbatim wording from the response

“1. Medical observation reviews in UCC The streaming model currently in place between the UCC and the Trust’s emergency department is now delivered by band 6/7 (senior) emergency department nurses.”

Source location

MMandal-Response2
Page 2 · response
Published 8 December 2015

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

Hold fortnightly governance meetings between the UCC and emergency department to review and refine governance, streaming, and handover processes.

Verbatim wording from the response

“3. Fortnightly governance review meeting There is now a fortnightly review of governance and process issues between the UCC and the emergency department; this has allowed us to work more closely with our UCC colleagues and recognise and deal with potential problems more quickly. We have used the forums to refine the streaming and handover processes thus ensuring patients get to the correct clinicians in a safe and timely fashion.”

Source location

MMandal-Response2
Page 2 · response
Published 8 December 2015

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

Train receptionists to apply the streaming process and escalate uncertain or concerning patient presentations to a clinician.

Verbatim wording from the response

“Receptionists were instructed to speak to a clinician if they were unsure about a patient's condition or if they had any concerns about a patient. Receptionists were trained to carry out the streaming process and a record of this is attached at Appendix 3 (One to One Training), which has been redacted appropriately to maintain confidentiality. The receptionist who booked in Mrs Mandal had received such training in October 2012.”

Source location

MMandal-Response1
Page 2 · response
Published 8 December 2015

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

Strengthen the triage process by assigning General Practitioners rather than nurses to carry out Manchester Triage System assessments.

Verbatim wording from the response

“When the services commenced in April 2012, the UCC was required, under the contract and conditions of the commission, to assess patients using a process based on the Manchester Triage System (MTS). Due to the nature of patient flows within the services, the MTS process resulted in delays to treatment for both the UCC and the CUH ED. Delays were resulting in four hour breaches in the ED and prolonged waits in patients being seen by a clinician in both services, which was an agreed significant patient safety cause for concern by both services. At busy times clinical staff were taken from treatment duties to assist with the MTS. This meant there were fewer clinicians treating people which in turn added to delays. The UCC had already identified triage as a bottleneck and had strengthened the process by replacing nurses with General Practitioners (GP) to carry out the MTS.”

Source location

MMandal-Response1
Page 3 · response
Published 8 December 2015

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

Use interim clinical streaming by an ED nurse to assess patients entering the department while the UCC and ED redevelopment proceeds.

Verbatim wording from the response

“From November 2015, interim changes have taken place to the way patients are directed to the UCC or ED while the redevelopment of UCC and ED is underway. This means that the ED is now providing ‘clinical streaming’, i.e. one nurse viewing all patients as they enter the department to determine presenting condition. This is not a triage system. This decision was made by the CCG, CUH and Virgin Care as the two departments are no longer co-located. Virgin Care is working closely with both the CCG and CUH to ensure patient safety is maintained during the redevelopment. It is anticipated that the redevelopment will last until March 2017 at the earliest.”

Source location

MMandal-Response1
Page 2 · response
Published 8 December 2015

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

Existing clinical streaming and VIEWS processes are considered sufficient to ensure effective streaming of patients entering the urgent care centre.

Verbatim wording from the response

“from the ED Department, clinical streaming has now been introduced at the front end of A&E. We are currently commencing re-procurement of urgent care services in Croydon and the specification for the new service will continue to require that effective streaming process are in place. The VIEWS process however continues to be used in the UCC.”

Source location

MMandal-Response3
Page 3 · response
Published 8 December 2015

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

Responsibility for the urgent-care streaming model and related actions rests with Virgin Care Wandle LLP, not the Trust.

Verbatim wording from the response

“The Croydon Clinical Commissioning Group (“CCG”) awarded the contract for delivery of urgent care services to Virgin Care Wandle LLP. Virgin Care Wandle LLP controlled the steaming of adult patients who arrived in the Trust’s Emergency Department at the time of the incident. The functionality and review of the streaming model at the time of the incident is accordingly the responsibility of Virgin Care Wandle LLP.”

Source location

MMandal-Response2
Page 1 · response
Published 8 December 2015

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.8

  1. 1

    Commence re-procurement of urgent care services in Croydon.

    Stated by NHS South West London Integrated Care BoardStated in progressThe respondent said that this action was in progress when they made their response on 8 December 2015.
  2. 2

    Require effective streaming processes in the specification for the new urgent care service.

    Stated by NHS South West London Integrated Care BoardStated plannedThe respondent said that this action was planned when they made their response on 8 December 2015.
  3. 3

    Establish an extended-skills team of emergency care nurses and paramedic practitioners in the resuscitation area, empowered to escalate autonomously.

    Stated by Croydon Health Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  4. 4

    Formalise UCC-to-emergency-department handovers through consultant or registrar assessment, consultant shift handovers, and jointly signed, time-stamped transfer documentation.

    Stated by Croydon Health Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  5. 5

    Continue joint safety liaison and governance meetings with commissioners and CUH to raise and discuss clinical issues and incidents.

    Stated by Virgin Care Wandle LLPStated in progressThe respondent said that this action was in progress when they made their response on 8 December 2015.
  6. 6

    Apply jointly agreed, signed adult streaming policies and condition-specific criteria for directing patients to the UCC or ED.

    Stated by Virgin Care Wandle LLPStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  7. 7

    Replace Manchester Triage System triage with the commissioned Streaming and See and Treat process for adult patients.

    Stated by Virgin Care Wandle LLPStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.
  8. 8

    Use the Vitalpac Early Warning Score assessment, including full observations within 20 minutes of UCC arrival, to support acuity-based clinical prioritisation.

    Stated by Virgin Care Wandle LLPStated completedThe respondent said that this action was complete when they made their response on 8 December 2015.

Recipient positions A position is what a recipient says about a concern when they do not describe a specific action.2

  1. 1

    The evidence did not establish that receptionist actions caused or rendered the patient's condition critical.

    Stated by Virgin Care Wandle LLPDisputes the concernThe respondent disagreed with part of the concern or the basis for it.
  2. 2

    Relevant actions have been taken, and no further actions are considered necessary.

    Stated by Virgin Care Wandle LLPNo action considered necessaryThe respondent said that no further action was needed.

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

Commence re-procurement of urgent care services in Croydon.

Verbatim wording from the response

“from the ED Department, clinical streaming has now been introduced at the front end of A&E. We are currently commencing re-procurement of urgent care services in Croydon and the specification for the new service will continue to require that effective streaming process are in place. The VIEWS process however continues to be used in the UCC.”

Source location

MMandal-Response3
Page 3 · response
Published 8 December 2015

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 effective streaming processes in the specification for the new urgent care service.

Verbatim wording from the response

“from the ED Department, clinical streaming has now been introduced at the front end of A&E. We are currently commencing re-procurement of urgent care services in Croydon and the specification for the new service will continue to require that effective streaming process are in place. The VIEWS process however continues to be used in the UCC.”

Source location

MMandal-Response3
Page 3 · response
Published 8 December 2015

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 an extended-skills team of emergency care nurses and paramedic practitioners in the resuscitation area, empowered to escalate autonomously.

Verbatim wording from the response

“4. More emergency care nurses /paramedic practitioners in resus area We now have a well-established team of Emergency Care Nurses and paramedic Practitioners within the resus area who all have extended skills. This team has dramatically improved the quality and consistency of care we offer patients in the resuscitation room. They offer great support to the doctors but are also empowered to make autonomous decisions to escalate to more senior staff when the need is required.”

Source location

MMandal-Response2
Page 2 · response
Published 8 December 2015

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

Formalise UCC-to-emergency-department handovers through consultant or registrar assessment, consultant shift handovers, and jointly signed, time-stamped transfer documentation.

Verbatim wording from the response

“2. Formalisation of the handover process from the UCC to the emergency department Patients received by the resuscitation team are received and assessed by an emergency department consultant or registrar. It is now standard practice for the Consultant in charge of the department on each shift to undertake a formal handover from the resuscitation area before starting the ward round, as opposed to relying on verbal feedback; this change was implemented immediately after Ms Mandal’s death.”

Source location

MMandal-Response2
Page 2 · response
Published 8 December 2015

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

Continue joint safety liaison and governance meetings with commissioners and CUH to raise and discuss clinical issues and incidents.

Verbatim wording from the response

“As a committed provider of safe care for our patients, we will continue to liaise and work closely with our commissioners and CUH in relation to the UCC and ED and any improvements that can be made to the services commissioned by our commissioners. We confirm that representatives from the UCC and the ED meet regularly for joint governance meetings where clinical issues and incidents are raised and discussed.”

Source location

MMandal-Response1
Page 2 · response
Published 8 December 2015

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

Apply jointly agreed, signed adult streaming policies and condition-specific criteria for directing patients to the UCC or ED.

Verbatim wording from the response

“Virgin Care adopted most of the recommendations of the ECIST review after consultation with CUH and the PCT (now the CCG). ‘Streaming and See and Treat’ was commissioned and introduced on 9 October 2012 in order to replace the MTS triage. The process specified non-clinical receptionists streaming adult patients to the UCC or ED in accordance with strict criteria.”

Source location

MMandal-Response1
Page 3 · response
Published 8 December 2015

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

Replace Manchester Triage System triage with the commissioned Streaming and See and Treat process for adult patients.

Verbatim wording from the response

“When the services commenced in April 2012, the UCC was required, under the contract and conditions of the commission, to assess patients using a process based on the Manchester Triage System (MTS). Due to the nature of patient flows within the services, the MTS process resulted in delays to treatment for both the UCC and the CUH ED. Delays were resulting in four hour breaches in the ED and prolonged waits in patients being seen by a clinician in both services, which was an agreed significant patient safety cause for concern by both services. At busy times clinical staff were taken from treatment duties to assist with the MTS. This meant there were fewer clinicians treating people which in turn added to delays. The UCC had already identified triage as a bottleneck and had strengthened the process by replacing nurses with General Practitioners (GP) to carry out the MTS.”

Source location

MMandal-Response1
Page 3 · response
Published 8 December 2015

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

Use the Vitalpac Early Warning Score assessment, including full observations within 20 minutes of UCC arrival, to support acuity-based clinical prioritisation.

Verbatim wording from the response

“In September 2013, (after Mrs Mandal's death) the Vitalpac Early Warning Score (ViEWS) protocol was implemented as part of ongoing improvements discussed and agreed with our commissioner. After a patient has been streamed to the UCC, a Healthcare Assistant undertakes the ViEWS assessment within 20 minutes of arrival and this includes taking full observations. We attach the ‘ViEWS Algorithm’ at Appendix 4. Based on a number of physiological parameters the healthcare assistant inputs the observations into the clinical system and an automatic score is generated. This system aims to provide a clinically objective score and is an additional tool to determine the acuity of a patient’s presentation to help ensure the patient is seen by the most appropriate clinician as soon as possible.”

Source location

MMandal-Response1
Page 2 · response
Published 8 December 2015

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

The evidence did not establish that receptionist actions caused or rendered the patient's condition critical.

Verbatim wording from the response

“The Coroner has stated that there was “a delay of about an hour before Mrs Mandal was seen by any qualified healthcare professional, by which time her condition was critical”. We note that during the Inquest hearing, this was not confirmed by any of the witnesses on the day including the expert, Dr Soni. He stated that “At 8.20 she is in extremis and has got a prominent problem, the nature of which was uncertain at that point in time, so I think it is likely she was already in extremis at 7.20”. Dr Soni also went on to say “the probabilities say that it is more likely that she would have died despite the best efforts”. We are therefore concerned that a conclusion has been drawn by the Coroner that as a result of the actions by the receptionist, Mrs Mandal’s condition was rendered or became critical, despite the lack of evidence at the inquest on that point.”

Source location

MMandal-Response1
Page 2 · response
Published 8 December 2015

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

Relevant actions have been taken, and no further actions are considered necessary.

Verbatim wording from the response

“We trust the information we have provided is of assistance to the learned Coroner when making her recommendations and the Coroner is satisfied that relevant actions have been taken and no further actions are necessary.”

Source location

MMandal-Response1
Page 4 · response
Published 8 December 2015

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