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INTRODUCTION AND SUMMARY OF CONCLUSIONS AND RECOMMENDATIONS
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C&AG's Report (HC 82 of Session 1996-97), para 3
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1. National Health
Service organisations are required under the Health and Safety at Work
etc Act, 1974 to ensure as far, as reasonably practicable, the health and
safety of their patients, visitors and employees. Since the first NHS
trusts were established in 1991, they have been subject to the full
requirements of health and safety legislation.
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C&AG's Report para 2
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2. Good employers
actively seek to reduce the risks of accidents at work as they may cause
death, injury or ill-health. They may also result in costs, for example
in treating injuries, loss of staff time and compensation payments. Poor
attention to health and safety issues may have wider detrimental effects
too, on the quality of services, staff morale and public opinion on the
NHS.
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C&AG's Report, paras 17 and 20
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3. In his Report, the
Comptroller and Auditor General estimated that, allowing for under
recording, there may have been in excess of one million accidents in NHS
acute hospital trusts in England in 1995, and that the costs of these
accidents were likely to have been at least £154 million a year.
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4. On the basis of
this Report, our predecessors examined the costs and level of accidents
in NHS acute hospital trusts, trusts' compliance with legislation and
guidance, and responsibilities for monitoring and improving the
management of health and safety.
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5. Our main
conclusions and recommendations are as follows:
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The
costs and level of accidents in NHS acute hospital trusts
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(i) We are concerned that
hospitals are such dangerous places for patients, staff and visitors; and
we note that the large number of accidents imposes a very significant
burden on NHS resources which could be better spent on patient care
(paragraph 17).
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(ii) We consider it
unsatisfactory that, despite the NHS Executive's previous guidance, many
hospitals do not have accident recording systems which provide accurate
and timely information. We are also concerned at the very wide
differences in accident rates recorded by trusts and the difficulties in
making comparisons because of under-reporting (paragraph 18).
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(iii) We consider it
vital that trusts have accurate and up to date information to help them
assess health and safety risks, to identify areas where action is needed
to reduce these risks, and to minimise the costs involved. We therefore
expect all NHS trusts to introduce as a matter of urgency accident
recording systems which meet the principles set out in the Comptroller
and Auditor General's report (paragraph 18).
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(iv) We are concerned
that some staff may be discouraged from reporting accidents. We look to
NHS trusts to take a stronger lead in encouraging their staff to report
all accidents promptly (paragraph 19).
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Trusts'
compliance with legislation and guidance
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(v) We are disturbed by
the low and variable levels of trusts' compliance with health and safety
legislation and that the NHS Executive were unaware of this state of
affairs. We consider it highly unsatisfactory that the health sector
reports to the Health and Safety Executive only 37 per cent of the
accidents which it is legally required to report (paragraph 27).
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(vi) We note the NHS
Executive's view that the position has improved since the removal of
Crown immunity, but we consider that there is still a long way to go
before the NHS can demonstrate an acceptable level of performance in this
area (paragraph 28).
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(vii) We are concerned
that there has been only limited action on the part of trusts in response
to the considerable volume of guidance issued in recent years by the NHS
Executive. We are also surprised that there has been little effective
check on whether trusts are implementing such guidance. We do not regard
it as acceptable for the NHS Executive to rely on the Health and Safety
Executive on this issue (paragraph 29).
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(viii) We expect trusts
to draw up detailed action plans for achieving full compliance with
legislation and that trust boards should regularly review progress
against such plans. We also recommend that the NHS Executive should
review the progress made by trusts in implementing these arrangements
(paragraph 30).
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Responsibilities
for monitoring and improving the management of health and safety
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(ix) We consider it
essential that hospitals should be made safer places to be treated in, to
work in, and to visit. We welcome the high priority which the NHS
Executive have given to health and safety issues in 1997-98 and their
pledge to act on all of the recommendations contained in the Comptroller
and Auditor General's report (paragraph 51).
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(x) We note the action
taken in the trusts visited by the National Audit Office and District
Audit to put in place improvements in their recording and management of
health and safety. We look forward to seeing further significant
improvements in performance across all NHS trusts over the next year
(paragraph 51).
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(xi) We note that the NHS
Executive are seeking better collection and analysis of data on accidents
at local level coupled with voluntary benchmarking of trusts'
performance. We see these as important and helpful mechanisms in helping
trusts to assess and to improve their performance. However, we are
doubtful whether it is sufficient to rely on voluntary benchmarking in
this important area, and we look to the NHS Executive to explore ways of
ensuring that all trusts participate (paragraph 52).
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(xii) We also expect the
NHS Executive to consider ways of re-inforcing accountability, for
example by requiring trusts to include reports on their health and safety
record in their annual reports and through the publication of national
league tables of performance (paragraph 52).
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(xiii) We note the work
under way by the NHS Executive in developing further guidance on good
practice, focusing on areas where the health service is particularly
vulnerable. We also note that their guidance in the past has had limited
effect. We therefore urge the NHS Executive to consider alternative ways
of securing greater awareness and the implementation of good practice,
for example by setting up a small team of experts to visit trusts to
provide on the spot practical advice (paragraph 53).
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(xiv) We note that some
trusts have found cost-effective ways of reducing the number and costs of
accidents in areas such as manual handling. We look to the NHS Executive
to consider how best to promote and disseminate more effectively research
on the costs and benefits of action to improve health and safety
(paragraph 54).
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(xv) We note the Executive's
view that trust boards have not been paying sufficient attention to
health and safety issue. We expect trust boards to take stock of their
oversight of this important area, and to promote health and safety as a
key priority for action. For this to be fully effective, boards will need
to involve staff and the professional organisations in considering how
health and safety in their hospitals can be improved (paragraph 55).
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(xvi) We note that
healthcare purchasers have a key role to play in securing improvements in
trusts' performance on health and safety. We expect all health
authorities to review the health and safety performance of the trusts
with whom they contract, and to include health and safety targets in
their contracts with trusts (paragraph 56).
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The
costs and level of accidents in NHS acute hospital trusts
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C&AG's Report, paras 17 and 20
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6. On the basis of an
accident recording exercise in 30 trusts, the National Audit Office
estimated that there were likely to have been some 450,000 accidents
during 1995 in NHS acute hospital trusts in England. Allowing for under
recording, there may have been in excess of one million accidents. The
costs of accidents were likely to have been at least £154 million a year.
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Q 1
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7. Our predecessors
suggested to the NHS Executive that this £154 million was money which
could have been going into patient care. The NHS Executive agreed that
the figures were dramatic but had to be seen in the context of an
organisation that employed one million people, and had almost 60 million
patients and 100 million visitors passing through its doors every year. In
this situation, there would be an irreducible minimum of accidents that
were bound to happen.
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Qs 24, 26, 28, 123-124
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8. The Executive
accepted however that the cost of accidents was money diverted from other
things, and agreed that they had an interest in ensuring that people were
complying with standards which would diminish that cost. They added that,
at local level, the costs were now being felt by the people running the
organisations in which accidents happened, and these people therefore had
a greater financial incentive than in the past to ensure that the money
was spent on patient care.
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Q 2
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9. Our predecessors
asked the NHS Executive whether the cost of accidents suggested that it
was more dangerous to be in a hospital than in most places of work. The
Executive said that some very dangerous occupations were carried out in
hospitals, and across the whole range of laboratory, X-ray and clinical
activity there were a great many hazards to be dealt with. And many
people treated in hospital were frail and elderly people. Comparative
figures, produced by the Health and Safety Commission, showed that the
NHS compared reasonably well against other service industries and against
British industry as a whole. However, one difficulty was that figures for
the NHS could not be distilled out from the figures for the health and
social care sector in the round.
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C&AG's Report paras 1.3 and 1.7
para 1.14
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10. Hospital managers
need reliable incident recording systems to meet their statutory
obligations for reporting serious accidents to the Health and Safety
Executive, and to identify risks and areas where action is needed to
rectify persistent health and safety problems. Although the NHS Executive
issued guidance on incident recording systems in 1993, 17 of the 30
trusts visited by the National Audit Office did not have systems which
met the requirements of a good system. The Health and Safety Executive
estimated that the health sector report, on average, only 37 per cent of
the accidents they are legally required to report.
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Qs 18, 49
Qs 51-53
Q 18
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11. Our predecessors asked the
NHS Executive what they were doing to ensure that trusts reported all
accidents. The Executive said that they had repeated their guidance in
1996. This recommended use of two forms-one for incidents affecting
people and another for incidents affecting property. The elements of
simplicity and a standard definition of accidents were the right
principles to work to. Each of the 30 trusts which took part in the study
carried out by the National Audit Office now ran a sensible system in
line with the Executive's principles and the tenets set out in the
Comptroller and Auditor General's Report. The NHS Executive added that
they expected all trusts to have a proper system because it was not that
expensive: given the sort of software which was available, costs as low
as £20,000 to £25,000 would not be unreasonable. The Executive confirmed
that they intended to use the Report as an additional lever to ensure
that trusts followed best practice.
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Evidence pp 1-3
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12. In their submission
to the Committee, UNISON stated that in two surveys they had conducted on
violence to health service staff, less than two thirds were encouraged to
report incidents and between 15 and 20 per cent were discouraged from
doing so. Their survey also showed that around a third of NHS staff were
unaware of the reporting procedures. It was also common for UNISON to
receive complaints from members that they could not find the accident
book or were discouraged from filling it in.
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Qs 103-104
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13. The NHS Executive
accepted that if someone was operating in an environment which did not
have a good system and did not encourage staff to report or made it
bureaucratically complex for staff to report, then that was not a good
thing.
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C&AG's Report, para 1.13 and Figures 3 and 4
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14. Although the
numbers of accidents recorded by trusts did vary in relation to their
size, there were also considerably wider differences in the accident
rates recorded, suggesting different levels of success by trusts in
preventing accidents.
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Qs 4, 39
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15. Our predecessors
asked the NHS Executive why, for example, the rate of patient accidents
in one hospital could be nine times the lowest level recorded. The
Executive said that they needed to be very clear about the definition of
best and worst. They could not necessarily assume that the hospital with
the highest accident rates was badly run and the other was not; it might
be that the first hospital had a very good recording system, while the
one with the lowest accident rates did not.
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Qs 41,44
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16. The NHS Executive
added that of the hospitals covered by the National Audit Office study,
the hospitals with the highest and lowest rates of staff accidents (Royal
Liverpool Hospital and South Manchester University Hospital, respectively)
were very similar institutions. The reasons for the differences between
them were a combination of the physical environment, the reporting
systems and the extent to which the board and senior people within the
hospital were focused on this issue.
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Conclusions
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17. We are concerned
that hospitals are such dangerous places for patients, staff and
visitors; and we note that the large number of accidents imposes a very
significant burden on NHS resources which could be better spent on patient
care.
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18. We consider it
unsatisfactory that, despite the NHS Executive's previous guidance, many
hospitals do not have accident recording systems which provide accurate
and timely information. We are also concerned at the very wide differences
in accident rates recorded by trusts and the difficulties in making
comparisons because of under-reporting. We consider it vital that trusts
have accurate and up to date information to help them assess health and
safety risks, to identify areas where action is needed to reduce these
risks, and to minimise the costs involved. We therefore expect that all
NHS trusts to introduce as a matter of urgency accident recording systems
which meet the principles set out in the Comptroller and Auditor
General's report.
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19. We are concerned
that some staff may be discouraged from reporting accidents. We look to
NHS trusts to take a stronger lead in encouraging their staff to report
all accidents promptly.
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