PFD report

Raymond Henry Davidson (Raymond) · Prevention of Future Deaths report

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Issued 27 Feb 2018•Sunderland

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
19

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

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Report evidence summary

Concerns raised2

  1. Insufficient ambulance resources causing delays to urgent responses
    Part of recurring concern: Delays in ambulance attendancePart of recurring concern: Insufficient ambulance service capacity for emergency calls
  2. Failure to make direct telephone contact with the patient during initial clinical review
    Part of recurring concern: Failure to reliably telephone patients when follow-up or assessment requires itPart of recurring concern: Unsafe remote clinical consultations for assessment and advice
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.14

  1. Action

    Reduce C2 conveyance rates in Central and North divisions toward South division levels by 2021/22.

    Stated by North East Ambulance Service NHS Foundation TrustStated in progressThe respondent said that this action was in progress when they made their response on 8 June 2018.
  2. Action

    Reduce hospital handover times toward a 30-minute mean in each division by 2018/19.

    Stated by North East Ambulance Service NHS Foundation TrustStated in progressThe respondent said that this action was in progress when they made their response on 8 June 2018.
  3. Action

    Establish and operate an implementation group to develop, implement and oversee the detailed ORH implementation plan.

    Stated by North East Ambulance Service NHS Foundation TrustStated in progressThe respondent said that this action was in progress when they made their response on 8 June 2018.

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

  1. Position

    Commissioners control withdrawal of £1.3 million from the emergency operations centre and will address resulting safety concerns after NHS111 procurement.

    Stated by North East Ambulance Service NHS Foundation TrustRedirects 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

Insufficient ambulance resources causing delays to urgent responses

Wider context from the report

“I heard evidence that: - • the recruitment/retention of staff had improved; and • welfare calls triggered earlier clinician involvement than previously; and • although there were several other initiatives under way, operational shortages were ongoing. Raymond’s death highlighted resource issues. There was only so much NEAS could do when they simply did not have enough ambulances to send. At times demand was greater than the resources NEAS had available. The effect of urgent cases being interposed put back those cases appearing to be less urgent. In this case: - • 10 hours 51 minutes elapsed from the original 111 call; • 8 hours and 29 minutes after the urgent categorisation; and • 1 hour 3 minutes after the case was prioritised as a G2 response. This is the third such report about the same issue that I have written in recent months as I consider that there is a risk of future deaths. An urgent review of resources and their application is needed. Finally from the evidence, there was frequent telephone contact made, but this was not with the patient directly, which may have impacted on the less than robust initial clinical review of Raymond’s condition. ”

Is this part of a recurring concern?

Yes — Delays in ambulance attendance; Insufficient ambulance service capacity for emergency calls.

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

Failure to make direct telephone contact with the patient during initial clinical review

Wider context from the report

“I heard evidence that: - • the recruitment/retention of staff had improved; and • welfare calls triggered earlier clinician involvement than previously; and • although there were several other initiatives under way, operational shortages were ongoing. Raymond’s death highlighted resource issues. There was only so much NEAS could do when they simply did not have enough ambulances to send. At times demand was greater than the resources NEAS had available. The effect of urgent cases being interposed put back those cases appearing to be less urgent. In this case: - • 10 hours 51 minutes elapsed from the original 111 call; • 8 hours and 29 minutes after the urgent categorisation; and • 1 hour 3 minutes after the case was prioritised as a G2 response. This is the third such report about the same issue that I have written in recent months as I consider that there is a risk of future deaths. An urgent review of resources and their application is needed. Finally from the evidence, there was frequent telephone contact made, but this was not with the patient directly, which may have impacted on the less than robust initial clinical review of Raymond’s condition. ”

Is this part of a recurring concern?

Yes — Failure to reliably telephone patients when follow-up or assessment requires it; Unsafe remote clinical consultations for assessment and advice.

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

Reduce C2 conveyance rates in Central and North divisions toward South division levels by 2021/22.

Verbatim wording from the response

“2. Some reduction in conveyance rates is also feasible, with a corresponding increase in time at scene, particularly in Central and North divisions.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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

Reduce hospital handover times toward a 30-minute mean in each division by 2018/19.

Verbatim wording from the response

“3. A reduction in time at hospital should be targeted, particularly in Central and North divisions, aiming to reduce to a 30-minute mean by 2018/19 in each division.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 4 · response
Published 8 June 2018

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 and operate an implementation group to develop, implement and oversee the detailed ORH implementation plan.

Verbatim wording from the response

“The Trust has started to share the content of the ORH report with stakeholders via a number of engagement events. We have established an implementation group who will develop, implement and oversee a detailed implementation plan. This will include current rosters versus new, staffing implications, vehicles and estates. The Trust and partners are reviewing contractual implications alongside the approval processes.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 4 · response
Published 8 June 2018

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 approve an action plan with timescales for addressing the funding shortfall and delivering ambulance response standards.

Verbatim wording from the response

“– We are aiming to develop and approve an action plan by the end of May 2018 that will include timescales to address the shortfall in funding and deliver the ARP standards;”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 2 · response
Published 8 June 2018

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 a regional handover standard operating procedure and task-and-finish collaboration to improve accountability for ambulance handovers.

Verbatim wording from the response

“We are working with our partners across the region in a Task and Finish Group to focus on ambulance handovers. We hold a weekly conference call with all of the acute trusts, NHS England, NHS Improvement and the North East Urgent and Emergency Care Network to address issues and formulate strategies to improve handover. We have developed a joint standard operating procedure for handover across the region which has been in place since November. We are working together to ensure that there is a culture of accountability for handover embedded in both the acute and ambulance Trusts at grass roots level. Hospital Handover is part of every individual’s objective and discussed during performance reviews and ride-outs.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 4 · response
Published 8 June 2018

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

Audit dispatch allocation times monthly and provide training or action plans where dispatchers need support.

Verbatim wording from the response

“The Dispatch managers monitor on a monthly basis through audit, the allocation times of the dispatch team. The time frames are monitored in line with national guidance to ensure compliance. Individual training and actions plans can and are issued with any dispatcher who needs further support in ensuring calls are allocated within the given dispatch standard times”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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

Base an operational manager permanently within two acute trusts to monitor, manage and escalate handover issues.

Verbatim wording from the response

“We are basing an Operational manager permanently within two acute trusts to monitor and manage the handover process and build relationships within the hospital to ensure that issues are escalated early so we can take proactive action before we start to experience handover delays”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 4 · response
Published 8 June 2018

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

Improve dispatch-team productivity by reducing the number of ambulances managed by each dispatcher.

Verbatim wording from the response

“We are working with ORH to look to improve our crew shift start and finish times. This will also assist with better overall availability of crews throughout the shift. We are also looking to improve the productivity of the dispatch teams by reducing the number of ambulances managed by each dispatcher.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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

Improve crew shift start and finish times to increase crew availability.

Verbatim wording from the response

“We are working with ORH to look to improve our crew shift start and finish times. This will also assist with better overall availability of crews throughout the shift. We are also looking to improve the productivity of the dispatch teams by reducing the number of ambulances managed by each dispatcher.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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 50 additional E-Care course places to equip staff to leave suitable patients safely at home.

Verbatim wording from the response

“We are working with Northumberland CCG to put in place a rapid response team who will provide a multidisciplinary team to respond to a wide range of lower acuity cases in the community to provide paramedics with an alternative option to ED. We have provided 50”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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 Northumberland CCG to establish a multidisciplinary rapid response team for lower-acuity community cases.

Verbatim wording from the response

“We are working with Northumberland CCG to put in place a rapid response team who will provide a multidisciplinary team to respond to a wide range of lower acuity cases in the community to provide paramedics with an alternative option to ED. We have provided 50”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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 REAP and Escalation Policy defining actions for Emergency Operations Centre and operational staff in response to demand.

Verbatim wording from the response

“The Trust has also implemented a robust REAP / Escalation Policy which details very clearly the actions to be taken within the Emergency Operations Centre and by Operational staff in line with demand.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 5 · response
Published 8 June 2018

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 updated Urgent Ringback Procedure, prioritising direct conversation with patients wherever possible, and communicate it to relevant staff.

Verbatim wording from the response

“I can confirm that the updated ‘Urgent Ringback Procedure’ was approved and implemented in February 2018. The updated procedure is available and communicated onto all Call Handlers, Clinicians and Team Leaders within the Trusts Emergency Operations Centre. The new procedure puts the emphasis on direct conversation with the patient wherever possible. In relation to the 111 Clinician, the individual was provided one-to-one feedback on this case and undertook a coaching session.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 5 · response
Published 8 June 2018

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

Achieve a 25% frontline-staff abstraction target through a 33.3% relief rate and associated workforce efficiency.

Verbatim wording from the response

“– Within this agreement, an assumption is made in the ORH report that abstraction rates of frontline staff are reduced from 34.4%. A target abstraction level of 25%,”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 2 · response
Published 8 June 2018

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

Commissioners control withdrawal of £1.3 million from the emergency operations centre and will address resulting safety concerns after NHS111 procurement.

Verbatim wording from the response

“Separately, we have raised a significant patient safety concern with commissioners over their decision to withdraw £1.3 million from our 999 emergency operations centre by September 2018. This removes a significant number of clinical support advisers to our 999 call takers and dispatchers. Commissioners have communicated that they will address our concerns in September 2018 after the completion of the NHS111 procurement process in the North East of England.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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

Implementing the new ambulance response standards requires £10.4 million recurrent investment; the £3.9 million shortfall prevents full delivery pending funding discussions.

Verbatim wording from the response

“Delivery of the new ambulance response standards is dependent on receipt of a recurrent annual cost of investment of £10.4 million, identified from the ORH report, of which:”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 2 · response
Published 8 June 2018

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

    Use structured clinician contact, workload oversight and routine call auditing to support consistent communication with waiting patients.

    Stated by North East Ambulance Service NHS Foundation TrustStated completedThe respondent said that this action was complete when they made their response on 8 June 2018.
  2. 2

    Disseminate the Regulation 28 Report and the response to ambulance-trust colleagues nationwide and provide the response to the Care Quality Commission.

    Stated by North East Ambulance Service NHS Foundation TrustStated completedThe respondent said that this action was complete when they made their response on 8 June 2018.
  3. 3

    Improve control activation times toward a 60-second average for C1 calls by 2021/22.

    Stated by North East Ambulance Service NHS Foundation TrustStated in progressThe respondent said that this action was in progress when they made their response on 8 June 2018.
  4. 4

    Increase Emergency Operations Centre clinical support capacity and provide routine coaching and feedback through expanded clinical leadership.

    Stated by North East Ambulance Service NHS Foundation TrustStated completedThe respondent said that this action was complete when they made their response on 8 June 2018.
  5. 5

    Discuss the £3.9 million funding shortfall with commissioners after they review the ORH recommendations.

    Stated by North East Ambulance Service NHS Foundation TrustStated plannedThe respondent said that this action was planned when they made their response on 8 June 2018.

Recipient positions A position is what a recipient says about a concern when they do not describe a specific action.1

  1. 1

    Regional paramedic pathfinder rollout depends on Clinical Commissioning Group funding, so delivery requires commissioner support.

    Stated by North East Ambulance Service NHS Foundation TrustRedirects responsibilityThe respondent said that another organisation was responsible for deciding or taking action.

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 structured clinician contact, workload oversight and routine call auditing to support consistent communication with waiting patients.

Verbatim wording from the response

“Clinicians now adopt a more structured approach to support waiting patients to ensure that consistent contact is maintained. And a lead clinician or Clinical Section Manager oversees outstanding workload and ensures relevant support is provided to clinicians managing each area. Clinician’s calls are also audited by a Clinical Auditor, auditing 4 calls per month. Feedback is then provided to the individual Clinicians on positive and developmental areas.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 5 · response
Published 8 June 2018

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

Disseminate the Regulation 28 Report and the response to ambulance-trust colleagues nationwide and provide the response to the Care Quality Commission.

Verbatim wording from the response

“I can also confirm that in order to improve nationwide learning, the Trust have disseminated both the Regulation 28 Report and our response to other Ambulance Trust colleagues across the country. The Care Quality Commission is also aware of the Regulation 28 Report and shall receive a copy of this letter of response.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 5 · response
Published 8 June 2018

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

Improve control activation times toward a 60-second average for C1 calls by 2021/22.

Verbatim wording from the response

“1. Benchmarking indicated that a significant improvement in control activation times is feasible, aiming to reduce average C1 activation times from 2 minutes to 60 seconds by 2021/22.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 3 · response
Published 8 June 2018

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

Increase Emergency Operations Centre clinical support capacity and provide routine coaching and feedback through expanded clinical leadership.

Verbatim wording from the response

“Since the end of 2016, the number of clinicians available within the Emergency Operations Centre to support call handlers and patients who are waiting for a resource has increased. In addition, they are now supported and led by a larger team of Clinical Section Managers and are provided with appropriate coaching and feedback routinely.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 5 · response
Published 8 June 2018

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 the £3.9 million funding shortfall with commissioners after they review the ORH recommendations.

Verbatim wording from the response

“▪ We have jointly agreed with commissioners that the shortfall of £3.9 million is to be discussed to allow the CCGs to better understand the details of the ORH recommendations before making any further future commitment;”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 2 · response
Published 8 June 2018

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

Regional paramedic pathfinder rollout depends on Clinical Commissioning Group funding, so delivery requires commissioner support.

Verbatim wording from the response

“additional E-Care course places to provide staff with the necessary skills to be able to safely and confidently leave patients at home who do not need to be transferred to hospital. We are seeking funding to be able to roll out paramedic pathfinder across the region to support the work that is currently being done in Sunderland to provide a range of alternative pathways for staff to refer patients to. This is dependent upon CCG funding.”

Source location

2018-0059-North-East-Ambulance-Service-NHS-Trust
Page 4 · response
Published 8 June 2018

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

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Data last updated 7 September 2026