PFD report

Fern Elisabeth Foster · Prevention of Future Deaths report

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Issued 7 Jun 2024•Buckinghamshire

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
5

Named on the report

Responses found
4

Of 5 recipients

Stated actions
12

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. Lack of ambulance carriage of appropriate antidote medication for on-scene administration
    Part of recurring concern: Unreliable antidote treatment arrangements for toxic-substance poisoning
  2. Failure of ambulance triage and prioritisation to provide sufficient time for emergency treatment
    Part of recurring concern: Delays in ambulance attendance
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.7

  1. Action

    Publish the national operational procedure for ambulance services managing Category 3 overdose and suicidal-ideation calls.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.
  2. Action

    Issue overdose-management communications requiring timely clinical assessment or automatic ambulance-response upgrading.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.
  3. Action

    Review the overdose and suicidal-ideation operational procedure to ensure it remains fit for purpose.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.9

  1. Position

    Decisions about ambulance services carrying specific antidotes are operational matters for individual ambulance trusts.

    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

Lack of ambulance carriage of appropriate antidote medication for on-scene administration

Wider context from the report

“(2) The carrying by ambulance services of appropriate antidote medication for on-scene administration (such as Methylene Blue), whilst trialled elsewhere, is not part of regional or national protocol. Swift access to this in circumstances where ████████ is suspected, and timings mitigate against survival by the time of arrival at the nearest Emergency Department, could prevent future deaths in some cases. ”

Is this part of a recurring concern?

Yes — Unreliable antidote treatment arrangements for toxic-substance poisoning.

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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 of ambulance triage and prioritisation to provide sufficient time for emergency treatment

Wider context from the report

“(1) The process for triaging and prioritising ambulance attendance to an incident involving the suspected ingestion of ████████ (intentionally or otherwise) does not provide sufficient opportunity for travel, attendance, conveyance to hospital for emergency treatment and/or provision of antidote treatment at scene, which may provide the only likely means of prevention of death where sufficient quantity has been ingested. ”

Is this part of a recurring concern?

Yes — Delays in ambulance attendance.

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

Publish the national operational procedure for ambulance services managing Category 3 overdose and suicidal-ideation calls.

Verbatim wording from the response

“In April 2021, NHS England and Improvement, in conjunction with the Association of Ambulance Chief Executives (AACE), published a new operational procedure for all ambulance services in England entitled, “Category 3/ 999 Overdose and Suicidal Ideation Calls; Initial Assessment of Lethality/Toxicity Principles Document”. This document followed a detailed review that had been undertaken to consider agreed ambulance control room processes, to ensure that suicidal patients receive the correct clinical response. This review had also been the catalyst for NHS England contacting all ambulance and NHS 111 services in early 2019 as described above. In this 2021 document, NHS England set out that, where an overdose is declared, a further clinical intervention should take place within 30 minutes and/or the case will be automatically upgraded if this does not occur within 40 minutes.”

Source location

2024-0311 Response from NHS England
Page 2 · response
Published 14 June 2024

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

Issue overdose-management communications requiring timely clinical assessment or automatic ambulance-response upgrading.

Verbatim wording from the response

“NHS England issued communications to ambulance services and NHS 111 providers in 2019 and 2021 in respect of managing overdose cases, and in November 2023 an updated version was issued instructing that any case reaching a Category 3 response should have further clinical assessment within a set timeframe, or else be automatically upgraded to a Category 2 response. Further details are set out below.”

Source location

2024-0311 Response from NHS England
Page 2 · response
Published 14 June 2024

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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 the overdose and suicidal-ideation operational procedure to ensure it remains fit for purpose.

Verbatim wording from the response

“In October 2023, a review of this document was completed by ECPAG and the National Ambulance Service Medical”

Source location

2024-0311 Response from NHS England
Page 2 · response
Published 14 June 2024

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

Develop and deploy the Dx0124 disposition code to identify overdose and suicide-attempt cases for priority clinical assessment.

Verbatim wording from the response

“To support NHS England’s 2019 communication and enable services to identify these Category 3 cases to clinicians for priority assessment, NHS Pathways developed a specific disposition code ‘Dx0124 Emergency Ambulance Response for Risk of Suicide (Category 3)’ in April 2019. This code facilitates improved visibility of overdose or suicide attempt cases within the ambulance dispatch queue. These actions, to develop and deploy this disposition code, were ratified by the former NHS Pathways National Clinical Governance Group (NCGG) in February 2019 (this group has been superseded by NCAG). This was also approved by NHS England’s ECPAG on 3rd July 2019. It was deployed to all service users as part of Release 18 in October 2019.”

Source location

2024-0311 Response from NHS England
Page 2 · response
Published 14 June 2024

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

Update JRCALC overdose and poisoning guidance to cover sodium nitrate/nitrite poisoning, TOXBASE and NPIS advice, oxygen administration, and rapid conveyance to hospital.

Verbatim wording from the response

“We are currently reviewing and updating our overdose and poisoning JRCALC guidance for paramedics, and we will be including sodium nitrate/nitrite poisoning as an example of a chemical that can be ingested. The guidance will recommend that paramedics consult the National Poisons Information Service (NPIS) database (TOXBASE) and where necessary use the NPIS 24-hour, seven-day telephone advice line for details of the effects of specific substances and advice around possible toxic doses. Where a potentially or immediately life threatening substance has been taken, rapid conveyance to hospital will be recommended.”

Source location

Response from AACE
Page 2 · response
Published 14 June 2024

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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

Convene the September Clinical Subgroup to discuss toxicological incidents, methylene blue, methaemoglobinaemia management, and potential expansion of HART carriage or trial activity.

Verbatim wording from the response

“The next NARU Clinical Subgroup meeting is scheduled for September 2024, though the exact date is yet to be confirmed.”

Source location

Response from NARU
Page 2 · response
Published 14 June 2024

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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

Collate evidence from HART experience and subject-matter experts, then present a report to NASMeD for consideration and review by NASMeD and AACE/JRCALC.

Verbatim wording from the response

“Experience from this project was received by the NARU Medical Advisor on 16th July 2024. In summary, since July 2020 WMASUFT HART have attended 9 cases of suspected ████████ poisoning. This should be considered in the context of total call volume, representing ~1 in 0.5 million 999 calls. Of those 9 cases:”

Source location

Response from NARU
Page 3 · response
Published 14 June 2024

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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

Decisions about ambulance services carrying specific antidotes are operational matters for individual ambulance trusts.

Verbatim wording from the response

“Your second concern relates to the fact that it is not regional or national protocol for ambulance services to carry antidote medication for on-scene administration.”

Source location

2024-0311 Response from NHS England
Page 3 · response
Published 14 June 2024

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 current overdose triage process, including urgent clinical assessment and escalation, is considered most suitable.

Verbatim wording from the response

“Director’s Group (NASMeD, Association of Ambulance Chief Executives) to ensure it remains fit for purpose. The view from the Ambulance Response Programme Implementation Group at NHS England, supported by NASMeD, was that cases involving suicidal ideation (including overdoses) are often multi-factorial and therefore too complex for Health Advisors to apply a definitive disposition without assessment by a clinician. Instead, they require an urgent remote clinical risk assessment in the absence of priority airway, breathing or circulatory symptoms during triage. This means that for those cases which do not automatically result in a Category 1 or 2 emergency ambulance response, an urgent remote clinical assessment will take place, pending which the case will be dealt with as a Category 3 emergency ambulance response.”

Source location

2024-0311 Response from NHS England
Page 3 · response
Published 14 June 2024

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

Individual ambulance trusts, authorised by their medical directors, decide which drugs their services carry.

Verbatim wording from the response

“Firstly, it must be noted that neither AACE or NASMeD has the authority to mandate the carriage of any specific drugs, including antidotes, by NHS Ambulance Services. The decision as to which drugs each ambulance service carries is made by that individual NHS ambulance Trust, authorised by the Medical Director.”

Source location

Response from AACE
Page 2 · response
Published 14 June 2024

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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

Ambulance attendance triage and prioritisation are outside AACE and NASMeD’s remit.

Verbatim wording from the response

“The process for triaging and prioritising ambulance attendance is not within the remit of AACE or NASMeD. The categorisation of 999 calls is overseen at a national level through the NHS England clinical coding group which reports to Emergency Call Priority Advisory Group (ECPAG). The algorithms for NHS”

Source location

Response from AACE
Page 1 · response
Published 14 June 2024

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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

Routine ambulance carriage, training and JRCALC inclusion of methylene blue are not considered appropriate because evidence is currently insufficient.

Verbatim wording from the response

“We have considered whether to recommend that ambulance services carry a specific antidote to sodium nitrate/nitrite poisoning such as methylene blue, and whether to include this in our JRCALC guidance. We have liaised with a number of our partners and have come to a decision that it is not appropriate to recommend that all ambulance services should be trained in its use or included in our JRCALC guidance.”

Source location

Response from AACE
Page 2 · response
Published 14 June 2024

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

Each ambulance Trust, authorised by its Executive Medical Director and Chief Pharmacist, decides which drugs its ambulances carry.

Verbatim wording from the response

“The decision as to which drugs each ambulance service carries is taken by that individual NHS ambulance Trust with authorisation from the Executive Medical Director in conjunction with Chief Pharmacist.”

Source location

Response from NARU
Page 2 · response
Published 14 June 2024

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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

Equipping every ambulance with methylene blue may be prohibitively costly and create substantial storage, equipment and training burdens.

Verbatim wording from the response

“The dose required to treat a large adult (100kg) would be 100-200mg. This is a significant amount that will require storage within the ambulance. Given space is limited, we might be faced with decisions as to what would be removed from the ambulance to make room for the methylene blue. Therefore, needing to prioritise the medications carried.”

Source location

Response from NARU
Page 7 · response
Published 14 June 2024

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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

Mandating methylene blue carriage on frontline ambulances is outside NARU’s authority.

Verbatim wording from the response

“Firstly, it must be noted that NARU has no authority to mandate the carriage of any specific drugs, including antidotes, by NHS Ambulance Services. Except for those decided by NHS Resilience (EPRR) as part of the Mass Casualty Vehicles (MCV) which are part of the national interoperable capabilities for emergency preparedness to major incidents.”

Source location

Response from NARU
Page 2 · response
Published 14 June 2024

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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

NARU cannot provide guidance on HART carriage until incidence, benefits and costs are better understood through further evidence.

Verbatim wording from the response

“The subject of antidotes carried by HART is on the list for discussion at a Clinical Subgroup. The advice from this group will be guided by subject matter experts in toxicology and prehospital care. Methylene blue and the detection and management of methaemoglobinaemia will be one of the topics covered. Until we understand the frequency, potential benefits and costs we will not be able to provide guidance to HART. This could be part of a wider trial across a number of HART units to collate more data on patient benefits.”

Source location

Response from NARU
Page 8 · response
Published 14 June 2024

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.5

  1. 1

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

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.
  2. 2

    Consult clinical stakeholders on overdose-call assessment challenges and the role of clinical reasoning and TOXBASE.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.
  3. 3

    Enhance the PaCCS toxic-ingestion template with clear TOXBASE information and an accessible web link for clinicians.

    Stated by NHS EnglandStated completedThe respondent said that this action was complete when they made their response on 14 June 2024.
  4. 4

    Continue liaison with the National Poisons Information Service on toxicological management and clinical advice.

    Stated by Association of Ambulance Chief Executives and NASMeD (National Ambulance Service Medical Directors groupStated in progressThe respondent said that this action was in progress when they made their response on 14 June 2024.
  5. 5

    Continue identifying relevant poisoning cases, liaising with partners and the coronial system, reviewing clinical guidance, and considering necessary changes.

    Stated by Association of Ambulance Chief Executives and NASMeD (National Ambulance Service Medical Directors groupStated in progressThe respondent said that this action was in progress when they made their response on 14 June 2024.

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 resulting learning across national and regional NHS services.

Verbatim wording from the response

“I would also like to provide further assurances on the national NHS England 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 Fern, 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

2024-0311 Response from NHS England
Page 4 · response
Published 14 June 2024

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

Consult clinical stakeholders on overdose-call assessment challenges and the role of clinical reasoning and TOXBASE.

Verbatim wording from the response

“NHS Pathways consulted with their Clinical Stakeholder Group (CSG) in November 2021 and March 2022 to discuss the challenges of dealing with overdose calls. The consensus was that Health Advisors are not best suited to dealing with medication complexities, such as medication names, staggered overdoses, involvement of recreational drugs, interaction of other medications and other patient specific factors. The consensus was that clinical reasoning was required with the use of TOXBASE, and that the current process was most suitable.”

Source location

2024-0311 Response from NHS England
Page 3 · response
Published 14 June 2024

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

Enhance the PaCCS toxic-ingestion template with clear TOXBASE information and an accessible web link for clinicians.

Verbatim wording from the response

“In addition to the core telephony product, NHS Pathways also provides a telephone consultation tool called Pathways Clinical Consultation Support System (PaCCS). This is for use by experienced clinicians and comprises a suite of clinical templates based on existing NHS Pathways clinical content. These templates are presented in a list format which provides the user with a less prescriptive tool, lending itself more to a consultation-led assessment rather than triage. Within each clinical template, there is additional supporting information and links to approved websites that can be viewed if required by the user. In November 2021, as a result of learning from another case, NHS Pathways enhanced the toxic ingestion template in PaCCS to ensure clinical users were given clear and concise information to access TOXBASE, and they were also provided with the web link to do so.”

Source location

2024-0311 Response from NHS England
Page 3 · response
Published 14 June 2024

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 liaison with the National Poisons Information Service on toxicological management and clinical advice.

Verbatim wording from the response

“The proposed agenda will include the management of sodium nitrite/nitrate poisoning with the potential role of methylene blue within HART practice and will include a presentation from West Midlands ambulance service of their experience of using methylene blue. We anticipate the outcome of this meeting will be fed back to us, so that we can look to support and improve clinical practice within all ambulance services. One outcome may be to expand the trials of use of methylene blue by HART paramedics and together more evidence of its use. We will also continue our liaison with NPIS.”

Source location

Response from AACE
Page 2 · response
Published 14 June 2024

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 identifying relevant poisoning cases, liaising with partners and the coronial system, reviewing clinical guidance, and considering necessary changes.

Verbatim wording from the response

“It must also be noted that JRCALC have been named as an interested party into the forthcoming inquest of another tragic death from sodium nitrate poisoning. We will continue to do everything possible to be aware of specific poisoning cases and liaise with partners including the coronial system, particularly where there may be an increased incidence, so that we can continue to review our clinical guidance and consider the need for changes to our current clinical guidance.”

Source location

Response from AACE
Page 3 · response
Published 14 June 2024

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
4/5

Data last updated 7 September 2026