RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 RESPONSE FROM: The Royal College of Psychiatrists in Scotland RESPONSE TO: Engagement Paper on the Prevention of Suicide and Self-Harm DATE: 28 May 2013 The Royal College of Psychiatrists is the leading medical authority on mental health in the United Kingdom and is the professional and educational organisation for doctors specialising in psychiatry. We are pleased to respond to this consultation. This consultation was prepared by the Royal College of Psychiatrists in Scotland. For further information please contact: Karen Addie on 0131 220 2910; e-mail kaddie@scotdiv.rcpsych.ac.uk PAGE | 1 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 1. Summary of Recommendations A. There should be a reconsideration and re-examination of the balance between ‘high risk’ groups and ‘population-level’ approaches, particularly with regards to the social determinants of health. For example: a recognition that factors such as the economy, unemployment, and inequality may have much greater effects on suicide rates within a population than some of the other factors (e.g. sexuality). B. There should be a number of properly-evaluated pilots of specific interventions (e.g. postcards) that might reduce self-harm. These should be funded by the Scottish Government and evaluations should ensure that the impact upon key outcomes (such as completed suicide and self-harm) is assessed. C. Given the associations between anxiolytics and hypnotics and suicide (63.9% of deaths) and drug-related deaths (81.4% of deaths), patients on this group of drugs should be considered a target for assessment for the presence of treatable mental disorders and associated risk factors for self-harm and suicide. D. The recommendations of the Adebowale Report and the implications for police and other statutory services with regards to responses to mental illness and suicidal behaviour should be considered by the Scottish Government. E. There should be a renewed focus on suicidal behaviour and self-harm presentations to A&E, and a review of the experience of such patients presenting to front-line services. Closer liaison between A&E and mental health services, along with placing greater mental health expertise in A&E departments should be considered. F. Guidance on managing intoxicated patients with suicidal behaviour and selfharm should be developed so that such patients are less likely to fall through the gaps. Novel solutions such as short-stay self-harm units should be considered. These may facilitate signposting and earlier referral for patients with repeated presentations with self-harm and substance-misuse problems. G. Choose Life should conduct work looking at the pathways that individuals with suicidal behaviour and self-harm take within the NHS. It is highlyprobable that there is significant variation across the NHS and this leads to uncertainty about the most appropriate way of managing such presentations. H. The Scottish Government should ensure that the Health and Social Care Integration agenda remains cognisant of suicide prevention and that suicide PAGE | 2 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 and self-harm don’t get overlooked during major reorganisations of key bodies. I. Support lines, and support for those at risk of suicide should be targeted in areas where it might be possible to reach those with greater vulnerability (for example, in the analgesic aisles of supermarkets). J. It would be helpful if the suicide strategy acknowledged that better recognition and treatment of mental disorders formed an important strand of any population-based suicide prevention strategy. 2. General comments Under ‘Progress’, there is a claim that the Scottish Government has achieved a 17% reduction in suicide. However, similar trends have been observed in most of the developed world and Western Europe, and rates were declining from 2000 onwards. Further, rates in females have increased in Scotland in recent years. SDR, suicide and self-inflicted injury, all ages per 100000, male SDR, suicide and self-inflicted injury, all ages per 100000, female 40 9 8 30 7 6 United Kingdom European Region Scotland 20 United Kingdom European Region Scotland 5 4 10 3 0 1990 2000 2010 2 1990 2000 2010 3-year moving averages. Data From WHO, 2012. http://www.euro.who.int/en/what-wedo/data-and-evidence/databases/european-health-for-all-database-hfa-db2 This has important implications for suicide prevention over the next few years, particularly since there is evidence that the worldwide economic crisis has had an adverse effect on suicide rates (Barr, Taylor-Robinson, ScottSamuel, et al, 2012; Barth, Sögner, Gnambs, et al, 2011; Corcoran & Arensman, 2011; Kondilis, Giannakopoulos, Gavana, et al, 2013; Nandi, Prescott, Cerdá, et al, 2012; Stuckler, Basu, Suhrcke, et al, 2011). It is likely that suicide (and self-harm) rates over the next few years will increase rather than decrease (Reeves, Stuckler, McKee, et al, 2012). The recognition that “increased attention in primary care to depression and higher treatment rates have been linked to falls in the suicide rate” is PAGE | 3 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 important because there is compelling evidence that better recognition and treatment of depression can reduce suicide rates (Mann, Apter, Bertolote, et al, 2005). The reference to ScotSID suggests that, “…those who die by suicide tend to have had quite extensive contact with health care services…” but this comment isn’t necessarily correct: o Only 19.5% of patients had had a psychiatric outpatient appointment in the 12-months prior to death. One third of suicide deaths had had a general hospital admission in the 12-months before death (Information Services Division, 2012). This isn’t really “extensive” contact with services. o This means that opportunities for suicide prevention lie in a variety of places, and that the traditional focus of mental health might have high prevalence but low numbers – i.e. lots of suicides have mental health problems, but only a small total number of people with mental health problems will die by suicide. o The key issue is how to access those at greatest risk who don’t come into contact with services. 3. Answers to specific questions 3.1 Are the six objectives for Choose Life Programme still valid (page 4)? If so, what should be prioritised under each of the objectives? Are there other objectives we should set? 3.1.1 Objective 1: High Risk Groups Identifying high-risk groups is laudable, but the majority of suicides are less likely to occur in specific high-risk groups. Only 1-in-5 suicides were seen by mental health services in the 12-months before death so 80% of suicides occurred in people who did not have a clearly-identified need for mental health services. We know that mental illness is likely to be present in perhaps 90% of completed suicides (Cavanagh, Carson, Sharpe, et al, 2003), but we do not appear to be good at identifying (and consequently treating) it. Many high-risk groups are actually quite small, and one possible consequence is that disproportionate amounts of time and effort are devoted to groups which actually contain only a small proportion of the overall population suicide risk. The current Choose Life strategy would benefit from being more explicit about PAGE | 4 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 ‘high-risk’ approaches and ‘population-level’ approaches, taking into account the ‘prevention paradox’ (Rose, 1981).1 Targeting high-risk groups has the unintended consequence of taking focus away from population-level factors affecting suicide rates, namely: employment rates; economic conditions; and societal and financial inequalities. These are almost uniquely under governmental control; and health services, local authorities, and social enterprises are frequently unable to address some of these bigger factors at a level that might affect population suicide. Changes in inequality in the last 1-2 decades in Scotland have been slow, and median incomes have fallen in recent years (National Statistics, 2012). The Scottish Government has set a target to reduce the rate of suicide by 20%. However, in Greece in recent years, suicide rates have increased by 22.7% between 2007 and 2009 as spending on health decreased by 23.7% (Kondilis, Giannakopoulos, Gavana, et al, 2013). Any serious attempt to reduce population suicide has to recognise the importance of economic stability and healthcare spending on suicide rates. 3.1.2 Objective 3: evidence-based interventions There is emerging evidence that some interventions (e.g. postcards) may be beneficial in reducing rates of repetition of self-harm (Carter, Clover, Whyte, et al, 2013). Scotland (due to its size and capability of linking health datasets) may be ideally-placed to build on such evidence by supporting well-conducted and well-evaluated pilot projects to develop interventions that may contribute to selfharm reduction. 3.1.3 Objective 4: Support for those affected by suicidal behaviour Some clarity on this objective is required. It isn’t clear if this is about supporting carers and relatives affected by suicide or whether it relates to postvention. There is very little evidence to guide postvention approaches (Szumilas & Kutcher, 2011), and any such schemes undertaken in Scotland should be properly evaluated. Approaches to support relatives, carers and staff affected by suicide would be welcomed. A good example is if you want to reduce the number of heart attacks in a population, you don’t just focus on those people who are overweight and hypertensive: you disincentivise poor diet; you reduce the number of people who smoke (perhaps by raising prices); and you encourage people to exercise. In mental health, we have very poor predictors of suicide and the challenge is compounded by suicide being a rare event (incidence is 0.02% for suicide compared to 0.25% for heart attacks). With suicide, the proximal risks (e.g. agitation, symptoms, distress) are probably greater whereas the distal risks (e.g. obesity, smoking, hypertension, etc.) are more significant for heart attacks. The opportunities to reduce the risk of heart attacks are much, much greater. This needs to be recognised in any population-level strategy. 1 PAGE | 5 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 3.1.4 Objective 5: Provide education and training about suicidal behaviour and promote awareness The evidence for suicide-prevention training having any meaningful impact upon suicide rates is weak at best, and some studies have demonstrated no effect (Gask, Dixon, Morriss, et al, 2006; Morriss, Gask, Webb, et al, 2005). Many of the programmes (e.g. ASIST) are unsupported by convincing evidence of benefit2 and LivingWorks (the developers of ASIST) acknowledge that factors other than suicide training may be difficult to affect (Rodgers, 2010). Importantly, the evaluations conducted so far are focused on the acceptance of the policy and training rather than the impact of the training of key outcomes (such as suicide rates). Many of the conclusions drawn from the ASIST evaluation are based on asking people whether they thought ASIST had had an effect on suicide rates in their areas! Despite this, there is a strong indication that those who are suicidal and those at risk do not seek help (Bruffaerts, Demyttenaere, Hwang, et al, 2011). Stigma may be an important factor affecting someone’s willingness to approach sources of help. Therefore, on-going anti-stigma campaigns (directed at mental illness in general and suicide/self-harm) should continue. However, we need to know more about why people don’t seek help. We know a fair amount about the public’s attitudes towards speaking to someone about suicide (Choose Life, 2011), but this is potentially less relevant to understanding how to reach those at imminent risk. There is a substantial literature on impaired decision making in the suicidal (For example, Jollant, Bellivier, Leboyer, et al, 2005) and key messages might benefit from being tailored to perception and receptiveness in people with high emotional distress. Up to now, suicide awareness and suicide prevention training has been targeted at health service staff. However, ensuring that other key groups (e.g. charity staff, those that are working with vulnerable groups) are able to access such training is important. The evaluations of ASIST, for example, are evaluations of perceptions of training rather than evaluations of whether ASIST training can influence suicide rates. The Scottish evaluation of ASIST commented that, “…the extent to which firm conclusions can be drawn about the effectiveness of ASIST from the published literature is limited.” (Griesbach, D., Russell, P., Dolev, R., et al (2008) The Use and Impact of Applied Suicide Intervention Skills Training (ASIST) in Scotland: An Evaluation. Edinburgh: Scottish Executive. http://www.scotland.gov.uk/Publications/2008/05/21112543/0) 2 PAGE | 6 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 3.1.5 Objective 6: Reduce availability and lethality of methods used in suicidal behaviour The most common methods of suicide in Scotland are hanging (43.8%) and selfpoisoning (32.4%) (Information Services Division, 2012). There are clear gender differences in the ratios of these two causes of death which may mean that some interventions have to be gender-specific. Further information (some of which may be provided by ScotSID) may help in understanding opportunities for targeting messaging. For example, if it is found that a significant proportion of males who die by hanging will purchase the rope beforehand, cards for support services could be made available in retail outlets (in the same way that many bridges and spans have plaques for the Samaritans). Similarly, carefully-placed messages could be placed in supermarkets selling analgesics. Sources of help could be printed on the bags from pharmacists so that people collecting prescriptions for benzodiazepines (see elsewhere) or antidepressants would have greater exposure to sources of support. Access to firearms is less of an issue in the UK (only 1.8% of suicides in Scotland) but there is some evidence that better (i.e. more stringent) firearm legislation is associated with reductions in male suicide rates (Gagné, Robitaille, Hamel, et al, 2010). Targeting a large number of farmers who own firearms in order to potentially prevent a small number of suicides will be politically sensitive, despite some studies suggesting that, “General practitioners, other clinicians and police should be more proactive in removing guns and, if necessary, revoking gun licences if there is evidence of suicidal behaviour or abnormal mental states.” (Malmberg, Simkin & Hawton, 1999) It is worth noting that farmer’s wives rarely use firearms as a method of suicide (Kelly, Charlton & Jenkins, 1995) so the risk from guns is probably unique to males. 3.2 While there has been a move to focus more on those in contact with services, is there more work that we should take forward at population level? 3.2.1 Assess the presence of undetected and/or untreated mental illness in those taking Benzodiapines Almost two-thirds (63.9%) of completed suicides had been prescribed a hypnotic or anxiolytic in the year before death (Information Services Division, 2012). Also, 81.4% of drug-related deaths had diazepam in their bodies at the time of death (Hoolachan, Hecht, Galbraith, et al, 2013). It is improbable that benzodiazepines and related drugs are causative (although they may compound PAGE | 7 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 the CNS-depressant effects of opioids, for example) but they may be a marker for agitation, anxiety, and distress. Anxiety and agitation have been identified as potentially-modifiable risk factors for suicide (Fawcett, 2009; Hawton, Sutton, Haw, et al, 2005). One recommendation would be that those taking benzodiazepines are screened for undetected mental illness by the prescriber, and that this is reviewed on a regular basis. Assessing risk will be of uncertain benefit, but asking about low mood and suicidal thoughts in those who are receiving anxiolytic drugs may help to identify treatable risk factors for self-harm or suicide. 3.2.2 Improve the experience and assessment of those presenting at A&E with self-harm One-in-five (21.5%) of suicides in 2010 attended A&E in the three months prior to death (Information Services Division, 2012). People who die by suicide therefore have more contact with A&E in the last 3 months than they do with psychiatric services in the 12 months before death. However, A&E departments may be poorly-equipped to deal with patients presenting with distress, suicidality, and self-harm (Dowding, 2012). Developing better services for mental illness presentations at Scotland’s A&E departments – particularly those that are intoxicated at time of presentation – may contribute to better recognition of persons at risk, as well as ensuring that they can access treatment/support more quickly. Ensuring that patients undergo an appropriate assessment may reduce the risk of further self-harm and completed suicide (Hickey, Hawton, Fagg, et al, 2001). It is difficult to know the best way of delivering this since A&E staff and mental health services are both often stretched, and demand may exceed capacity. Liaison nurses or members of A&E staff who have additional expertise in postself-harm assessment may be solutions. 3.3 Are the objectives for work on addressing self-harm still valid (page 10)? How should we develop that work further? Is the linkage with the work on distress (page 11) a good way to take the discussion forward? 3.3.1 Self-harm Priority PO3 (“Increase the rate of identification of people who are self-harming, both through encouraging more people to seek help and through better recognition of self-harming behaviour by professionals working in different settings…”) will only be realised if the health service response to self-harm is PAGE | 8 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 changed to one of support and understanding. There are comments elsewhere about many people’s experiences of A&E being difficult. Similarly, PO4 (“…improving people’s experience of care services thus assisting them in moving towards safe and positive future goals…”), despite being somewhat imprecise, has to acknowledge that many people’s experience of health services is not good. The routes into services (if they exist) are highly-variable and there is significant uncertainty (and disagreement) about the most appropriate way of managing self-harm in the NHS. Choose Life should consider undertaking a mapping exercise, perhaps using a number of standardised vignettes, to understand how patients with self-harm both access services and how the service responds. This might help health and non-statutory services to develop more consistent responses to people ‘in distress’. The role of self-harm as a proximal (rather than a distal) factor is challenging. 14% of all suicide deaths had had an admission for intentional self-harm in the five years prior to death (24.5% of all admissions). Whilst only 3.5% of all suicide deaths had an admission for self-harm in the 30 days prior to death, they comprised 40% of all admissions (Information Services Division, 2012). This suggests that self-harm (as a risk factor) may be a stronger proximal predictor of suicide. 3.3.2 Distress The focus on ‘distress’ is interesting, but the concept is probably too loose to permit any meaningful service response. Distress is common: the prevalence is about 30-50% (Caron, Fleury, Perreault, et al, 2012; Kilkkinen, Kao-Philpot, O'Neil, et al, 2007; Mitchell, Rao & Vaze, 2011). However, it is largely regarded as being normal and in the majority of people it will be a transient response to psychosocial stressors. No intervention is required. Not all people with distress will have mental disorder and many might be concerned about ‘medicalising’ a common human experience. Most mental health services are best-equipped (and resourced) to assess those people who appear to be exhibiting symptoms of mental illness, and to deliver effective treatments for diagnosable illness. In order to prevent the assumption that that mental health services should be managing ‘distress’, there should be much greater clarity regarding closer working between health services and the third sector, so that some of the barriers to accessing different areas of care are lowered. This may have resource implications, however, and it would require the involvement of primary care. PAGE | 9 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 If ‘distress’ is being highlighted as an area of interest, work is needed to: a) ensure that there is some form of screening for treatable mental disorder among those with high distress; and b) a clear pathway for treatment. Most people will not require mental health services or specialist psychiatric assessment. Finally, it might be helpful for the Strategy to acknowledge that a substantial part of ‘distress’ may be due to social factors such as benefits problems, housing problems, relationship problems, and substance misuse problems. Many of these individuals may not have a mental disorder and ensuring that such people can access support from the third sector, local authorities, and the charity sector is important. 3.3.3 Closer liaison between statutory bodies It is clear that there is a substantial group of individuals who repeatedly seem to fall between the gaps. They may intermittently present to A&E with self-harm, or may be brought to hospitals by the police because of concerns over their mental state. However, because the individual is intoxicated mental health services cannot conduct a proper assessment, and the police justifiably consider it inappropriate that someone deemed to be at risk is returned to custody. Solutions to this are not forthcoming, but where there is a need (this may only apply to larger, central, and urban hospitals), opportunities for short-term assessment units could be explored. This may enable patients presenting with some form of self-harm or risk to be managed in a safe environment without them being admitted to a general hospital (for intoxication) or without them having to sober up in a police cell. There would be resource implications from such units but pilot schemes could be tested so that such individuals could be managed in a safer environment. The Scottish Government should consider the recommendations of the Adebowale Report in connection with police responses to mental illness in the community (Adebowale, 2013) and the linkages with other services. Recommendations 11, 17, 18, and 27 are particularly relevant to the development of a new Strategy. 3.4 Can we strengthen the linkage with tackling health inequalities, given that the differences in suicide rates also apply to a wider range of behavioural health challenges? What might that look like in practice? Health inequalities are, as recognised, closely related to income inequality which itself tends to be a product of societies and governments rather than individuals and communities. They have a powerful effect on suicide and self-harm. PAGE | 10 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 ScotSID and ISD should be supported to extend their suicide reporting capabilities into more complex analytical capabilities that could determine if inequalities exert a potent effect on suicide and self-harm in Scotland. 3.5 Should there continue to be a dedicated Choose Life Programme? If so what should the priorities for that programme be from 2013? Are there changes that we should make to the programme? Probably. There needs to be a national group which provides oversight and direction for all of the different strands of activity that are occurring in the statutory and non-statutory sectors. Further, there needs to be liaison and crosstalk between the different sectors, and Choose Life would seem to be a reasonable way to do this. As suggested above, Choose Life may be well-placed to undertake any mapping work so that there is a better understanding of the pathways needed to manage distress and self-harm. 3.6 Should there continue to be a national target or targets? If so what should the target be? Targets can help to focus attention, but NHS Boards and Local Authorities may have limited ability to affect many of the distal factors influencing suicide, and only be able to influence the proximal factors in the cases that are known to services. Any targets need to focus on factors that can be changed by the organisation choosing that target. Choose Life should ensure that national targets (e.g. suicide rates) are not cascaded down to smaller areas (e.g. local authorities) where national targets will not be applicable. All targets should be SMART: Specific, Measurable, Attainable, Realistic, and Timely. Any national targets need to take into account changes that may occur outwith the intervention under observation. 3.6.1 Health and Social Care Integration There is considerable risk that the integration agenda will displace much of the suicide prevention work that is ongoing and which has been established by coworking. Some of the affiliations that are in place may drop down the agenda as both organisations work hard to integrate complex and sometimes conflicting agendas and workstreams. Many NHS Boards may be able to capitalise on integration to strengthen their suicide-prevention work, but this should not be assumed; particularly if there are changes in personnel and roles. The integration agenda should ensure that there PAGE | 11 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 is an explicit expectation that suicide prevention work will remain an important part of the integrated service and the Scottish Government may wish to provide some guidance to organisations on how to achieve this. It will be important to have mechanisms for coordinating suicide prevention at a national and regional/Health Board level as well as at a Local Authority level. 4. References Adebowale, V. (2013) Independent Commission on Mental Health and Policing Report. 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(2011) Can general practitioners identify people with distress and mild depression? A meta-analysis of clinical accuracy. Journal of Affective Disorders, 130, 26-36. http://www.sciencedirect.com/science/article/pii/S0165032710005094 PAGE | 13 RESPONSE TO SCOTTISH GOVERNMENT SUICIDE STRATEGY | RCPSYCH | MAY 2013 | V1.2 Morriss, R., Gask, L., Webb, R., et al (2005) The effects on suicide rates of an educational intervention for front-line health professionals with suicidal patients (the STORM Project). Psychological Medicine, 35, 957-960. http://dx.doi.org/10.1017/S0033291705004502 Nandi, A., Prescott, M. R., Cerdá, M., et al (2012) Economic Conditions and Suicide Rates in New York City. American Journal of Epidemiology, 175, 527-535. http://aje.oxfordjournals.org/content/175/6/527.abstract National Statistics (2012) Poverty and income inequality in Scotland: 2010-11. 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