PFD report

Maria Immocalata Whale · Prevention of Future Deaths report

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Issued 9 Nov 2022•South Wales Central

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
1

Raised in this report

Recipients
2

Named on the report

Responses found
2

Of 2 recipients

Stated actions
14

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 raised1

  1. Failure of the 999 emergency triage questionnaire to adequately measure clinical gravity
    Part of recurring concern: Telephone triage that is unreliable and can delay necessary care
Responses linked to these concerns

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

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.1

  1. Position

    The prioritisation questions are not considered inappropriate; patient harm is attributed primarily to the Trust’s inability to respond promptly.

    Stated by Welsh Ambulance Services NHS TrustDisputes the concernThe respondent disagreed with part of the concern or the basis for it.

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 the 999 emergency triage questionnaire to adequately measure clinical gravity

Wider context from the report

“(2) During the repeated calls to the 999 Emergency Services, ████████ was advised the following: i) there were no resources available; ii) Mrs. Whale did not meet the criteria to have an elevated priority status; and iii) when asked to define the degree of pain suffered on a scale of 1-10 Mrs. Whale (who was screaming in agony) responded “11”. ████████ stated in Court that the call responder concluded that if Mrs. Whale could scream then she was not a priority. Within an hour of this conversation Mrs. Whale had died without any emergency support and in agony. ████████ Clinical Director of Cardiff and Vale UHB Urgent Care Service confirmed in Court that the Out of Hours (OoH) GP service had two GPs on duty that night – one of whom was attending a patient while the other was assisting the triage nurses. It was also confirmed that for the period during which ████████ had called the OoH service, the numbers of calls were comparatively low. Under oath, Dr. ████████ stated that the advice given to ████████ by the triage nurse was correct – either to take Mrs. Whale to hospital by taxi or call 999. He confirmed that the triage nurse had recognised Mrs. Whale was gravely ill. He disagreed that the second GP should have attended Mrs. Whale saying that the GP could neither have assisted with the diagnosis nor with accessing emergency transport to hospital by advising the 999 service of the urgency of the need for hospital admission. Pain relief provision by the OoH GP service was not mentioned. Dr. ████████ was adamant that an OoH GP would have been unable to expedite Mrs. Whale’s access to hospital even though the gravity of her condition was accepted. He was similarly adamant that a GP attending Mrs. Whale would not have been able to communicate the gravity of her condition to the emergency services any better than a lay person - in this case the distressed husband. Again, provision of pain relief was not mentioned. The 999 Emergency Service triage patients for priority depending on the response provided by a person close at hand to the patient, to a series of scripted questions. The Welsh Ambulance Service Trust has advised the following: • Red calls are the highest clinical priority and are deemed immediately life threatening e.g. cardiac arrest; • Amber 1 calls have a high clinical priority and are still considered a life threatening emergency e.g. chest pain; • Amber 2 calls have urgent clinical priority, are serious but not considered immediately life threatening, for example diabetic problems; and • Green calls are not considered to have urgent clinical priority and are not considered serious or life threatening. ████████ in responding to these questions advised his wife was not a priority. Clearly, the triage questionnaire did not adequately measure the gravity of Mrs. Whale’s condition, as within two hours of being graded a ‘non-priority’ she was declared life extinct. ”

Is this part of a recurring concern?

Yes — Telephone triage that is unreliable and can delay necessary care.

Open source report

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 prioritisation questions are not considered inappropriate; patient harm is attributed primarily to the Trust’s inability to respond promptly.

Verbatim wording from the response

“At this time the Trust does not intend to adjust the prioritisation questioning, as the issue is not so much the appropriateness of the questions but rather the harm caused by the Trust not being able to respond in a timely manner.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 2 · response
Published 21 November 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.14

  1. 1

    Share relevant serious incidents with health boards through the Joint Investigation Framework and provide quarterly quality and safety reports.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  2. 2

    Investigate serious patient-safety incidents through multidisciplinary review and implement resulting learning and improvement actions.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  3. 3

    Continue collaborating with health-board and partnership-group colleagues to identify opportunities to reduce conveyance and improve patient experience.

    Stated by Welsh Ambulance Services NHS TrustStated in progressThe respondent said that this action was in progress when they made their response on 21 November 2022.
  4. 4

    Brief professional, peer, governmental and stakeholder groups about patient-safety risks, service pressures and mitigation activity.

    Stated by Welsh Ambulance Services NHS TrustStated in progressThe respondent said that this action was in progress when they made their response on 21 November 2022.
  5. 5

    Implement an attendance-management improvement plan to reduce sickness-related abstractions and support staff returning to work.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  6. 6

    Escalate patient-safety concerns and press commissioners, Welsh Government and other stakeholders for systemic improvements.

    Stated by Welsh Ambulance Services NHS TrustStated in progressThe respondent said that this action was in progress when they made their response on 21 November 2022.
  7. 7

    Produce short-term performance forecasts and use them with commissioners to develop mitigating action plans when performance is forecast below requirements.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  8. 8

    Increase frontline staffing, including recruiting and training additional staff to operational readiness.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  9. 9

    Implement revised rosters informed by demand and capacity modelling, including additional single-staffed car capacity.

    Stated by Welsh Ambulance Services NHS TrustStated in progressThe respondent said that this action was in progress when they made their response on 21 November 2022.
  10. 10

    Develop and submit a Transition Plan setting out internal efficiency and delivery-model changes to reduce clinical risk and improve patient care.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  11. 11

    Apply the Resource Escalation Action Plan to identify service pressures and guide escalation decisions.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  12. 12

    Provide unrestricted voluntary overtime opportunities for operational and clinical staff to increase available capacity.

    Stated by Welsh Ambulance Services NHS TrustStated in progressThe respondent said that this action was in progress when they made their response on 21 November 2022.
  13. 13

    Operate the Operational Delivery Unit as a central hub to monitor real-time performance risks, coordinate the unscheduled-care system and plan near-term mitigations.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.
  14. 14

    Apply the Clinical Safety Plan, including the “can’t send” principle, to prioritise patients when demand exceeds available resources.

    Stated by Welsh Ambulance Services NHS TrustStated completedThe respondent said that this action was complete when they made their response on 21 November 2022.

Recipient positions A position is what a recipient says about a concern when they do not describe a specific action.4

  1. 1

    Commissioners are responsible for deciding whether to fund the Trust’s proposed additional capacity and transition-plan investment.

    Stated by Welsh Ambulance Services NHS TrustRedirects responsibilityThe respondent said that another organisation was responsible for deciding or taking action.
  2. 2

    The Trust considers it has taken all possible steps to manage and mitigate acute system pressures affecting timely ambulance responses.

    Stated by Welsh Ambulance Services NHS TrustNo action considered necessaryThe respondent said that no further action was needed.
  3. 3

    System-wide pressures fundamentally lie outside the Trust’s control, limiting its ability to undertake further responsive safety work beyond mitigation and escalation.

    Stated by Welsh Ambulance Services NHS TrustUnable to actThe respondent said that a constraint prevented them from taking the relevant action.
  4. 4

    Welsh Government has a significant responsibility for resourcing and policy direction needed to achieve wider systemic changes in urgent and emergency care.

    Stated by Welsh Ambulance Services NHS 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

Share relevant serious incidents with health boards through the Joint Investigation Framework and provide quarterly quality and safety reports.

Verbatim wording from the response

“A significant proportion of NRIs are also shared by the Trust with health boards for joint investigation, particularly where handover delays/long community waits are deemed to be a pertinent factor in the outcome for the patient and/or their poor experience. Where an emergency department handover delay is considered a primary causation of a /National Reportable Incidents (NRI), the details of the incidents are provided to the Health Board using an agreed transfer process known as the Joint Investigation Framework, formally known as “Appendix B”.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 8 · response
Published 21 November 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

Investigate serious patient-safety incidents through multidisciplinary review and implement resulting learning and improvement actions.

Verbatim wording from the response

“The Trust has an incident reporting and investigation process in place, aligned to the NHS (Concerns, Complaints and Redress Arrangements) (Wales) Regulations 2011. A multidisciplinary panel meets at least weekly to review all patient safety incidents assessed as potentially causing serious or catastrophic harm. Internal investigations are undertaken to identify learning opportunities and improvement actions are subsequently developed and implemented.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 8 · response
Published 21 November 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

Continue collaborating with health-board and partnership-group colleagues to identify opportunities to reduce conveyance and improve patient experience.

Verbatim wording from the response

“That being said, our colleagues in the Cardiff & Vale Health Board have undertaken a significant, and impactful, amount of work to address these issues facing both organisations, and we are seeing a marked decrease in the time our vehicles are at hospitals, allowing us to respond to people in the community in a more timely manner. The Trust will continue to work closely with our colleagues to build on these improvements.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 7 · response
Published 21 November 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

Brief professional, peer, governmental and stakeholder groups about patient-safety risks, service pressures and mitigation activity.

Verbatim wording from the response

“System and Peer Groups The leadership team of the Trust has taken every opportunity to escalate concerns across the system over a period of months.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 12 · response
Published 21 November 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

Implement an attendance-management improvement plan to reduce sickness-related abstractions and support staff returning to work.

Verbatim wording from the response

“In the same time period, the Trust agreed to take steps to reduce abstractions due to sickness absence, to increase ‘hear and treat’ rates (where patients are triaged and given advice rather than deploying an ambulance) to 10.2% and to implement new rosters across Wales.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 5 · response
Published 21 November 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

Escalate patient-safety concerns and press commissioners, Welsh Government and other stakeholders for systemic improvements.

Verbatim wording from the response

“It is the risk to patient safety which is the Trust’s key driver in redoubling its efforts with Welsh Government, commissioners and other stakeholders to drive real improvements at pace.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 9 · response
Published 21 November 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

Produce short-term performance forecasts and use them with commissioners to develop mitigating action plans when performance is forecast below requirements.

Verbatim wording from the response

“Seasonal planning including forecasting As well as utilising the services of ORH in longer term demand and capacity modelling, the Trust also commissions services from Optima who use simulation models which can predict output performance based on a range of input assumptions.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 10 · response
Published 21 November 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

Increase frontline staffing, including recruiting and training additional staff to operational readiness.

Verbatim wording from the response

“The ORH concluded that bridging the gap would require an investment of 263 staff on a full time equivalent (FTE) basis across Wales. The Emergency Ambulance Services Committee (EASC) agreed to invest in the Trust, over a two year period – 2020/21 and 2021/22, and close the “relief gap”, while at the agreed re-rostering would help improve the alignment and mix of resources allied to patient demand.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 5 · response
Published 21 November 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

Implement revised rosters informed by demand and capacity modelling, including additional single-staffed car capacity.

Verbatim wording from the response

“Throughout the pandemic, work continued to recruit the additional staff and progress with the roster review, as key planks in the Trust’s response to the need to stabilise and improve performance long term.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 5 · response
Published 21 November 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

Develop and submit a Transition Plan setting out internal efficiency and delivery-model changes to reduce clinical risk and improve patient care.

Verbatim wording from the response

“Transition Plan The Trust is committed to doing all that it can to reduce clinical risk, improve patient care and outcomes, ensuring that patients get the right service, in the right place, every time. The data in support of this statement shows that there is much more to do, with some actions within the Trust’s control, and many which are outside of its control.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 12 · response
Published 21 November 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

Apply the Resource Escalation Action Plan to identify service pressures and guide escalation decisions.

Verbatim wording from the response

“Resource Escalation Action Plan (REAP)”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 2 · response
Published 21 November 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 unrestricted voluntary overtime opportunities for operational and clinical staff to increase available capacity.

Verbatim wording from the response

“Voluntary overtime remains available for all operational/clinical staff across the Trust without financial restriction and whilst uptake has reduced in recent months, largely as a result of the current workplace experience, we continue to see in excess of 5,000 hours per week being worked. Controls to restrict the overall spend on overtime may need to be introduced as the year proceeds should the financial position require it.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 10 · response
Published 21 November 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

Operate the Operational Delivery Unit as a central hub to monitor real-time performance risks, coordinate the unscheduled-care system and plan near-term mitigations.

Verbatim wording from the response

“Escalation”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 11 · response
Published 21 November 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

Apply the Clinical Safety Plan, including the “can’t send” principle, to prioritise patients when demand exceeds available resources.

Verbatim wording from the response

“Clinical Safety Plan”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 2 · response
Published 21 November 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

Commissioners are responsible for deciding whether to fund the Trust’s proposed additional capacity and transition-plan investment.

Verbatim wording from the response

“The roster review process was paused in 2021/22 whilst additional modelling was undertaken to understand the impact of the increases in red demand and a further decay in emergency department handover lost hours. The outcome of that modelling was that further single staffed car capacity was required, totaling 90 WTE additional staff, and this has now been built into the new rosters. Commissioners have agreed that the modelling is correct, but no additional resources have so far been made available for 2022/23, which means that the new rosters will initially operate with an in-built relief gap.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 11 · response
Published 21 November 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

The Trust considers it has taken all possible steps to manage and mitigate acute system pressures affecting timely ambulance responses.

Verbatim wording from the response

“Taken together, the Trust Board believes the organisation has taken all possible steps to manage and mitigate the impact of acute system pressures, including those which are beyond our control but impact on our ability to respond in a timely way or provide patients with the experience they have a right to expect.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 14 · response
Published 21 November 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

System-wide pressures fundamentally lie outside the Trust’s control, limiting its ability to undertake further responsive safety work beyond mitigation and escalation.

Verbatim wording from the response

“All these actions, the quantum of which remain insufficient to offset system wide inefficiencies, at best demonstrate that the Trust has considered every possible way in which we can react to and mitigate the impact of these pressures, which are fundamentally outside of our control.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 14 · response
Published 21 November 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

Welsh Government has a significant responsibility for resourcing and policy direction needed to achieve wider systemic changes in urgent and emergency care.

Verbatim wording from the response

“Similarly, the role of Welsh Government will be considerable both in terms of resourcing and policy direction if we are to see the real and tangible shifts away from a hospital and conveyance model of care, to one which really focuses on upstream and community-based models of integrated care.”

Source location

Response from Welsh Ambulance Services NHS Trust
Page 14 · response
Published 21 November 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