Policy contexts
Before describing the types of advance statements that have been developed, we briefly outline the differing policy and legislative contexts in which these have occurred. These contexts have influenced the forms that advance statements have assumed.
In the United States, the Patient Self-Determination Act of 1991 followed legislation for medical advance directives and opened the way for psychiatric advance directives. Under this act, any hospital receiving federal funds (this encompasses Medicaid, Medicare, and the Veterans Health Administration) must notify admitted patients of their right to make an advance directive, inquire whether patients have advance directives, adopt written policies to implement advance directives under state law, and notify patients of what those policies are. All U.S. states permit competent adults to use generic health care decisions laws to make at least some psychiatric treatment choices in advance, typically through the use of a durable power of attorney (
8 ). Additionally, 25 states since the early 1990s have enacted specific psychiatric advance directive statutes (
9 ).
The introduction of psychiatric advance directives is potentially one of the most significant recent developments in U.S. mental health law and policy. These directives are intended to provide an opportunity for persons with severe mental illness to retain control over their own treatment during times when they are incapacitated. However, in the new statutes, clinicians are not required to follow directives that conflict with community practice standards, that conflict with need for emergency care, or that are unfeasible or if the patient meets involuntary commitment criteria (
10,
11 ).
Specific features of psychiatric advance directive laws vary considerably by state, although there are some commonalities. Most statutes include detailed checklist forms to help consumers prepare psychiatric advance directives. These forms address choices about medications, admission to a mental health care facility, and specific treatments, such as electroconvulsive therapy; address the provision of information, such as illness history, medical conditions, drug allergies, and adverse effects; and detail who may be contacted during an emergency. The documents may stand alone or may be used in conjunction with a health care power of attorney and typically must be signed by two witnesses.
Psychiatric advance directives may include a "Ulysses contract" (
12 )—that is, a request that care or treatment be given during a future period of incapacity, even over the possible later objection or resistance of the person during a crisis. Although clinicians tend to favor this function, consumers are much less supportive (
13 ). Critics have argued that by ignoring a patient's current stated preferences in favor of a previously documented statement, a Ulysses contract may violate individual liberty and the ethical principle of respect for persons. It follows that a psychiatric advance directive should not result in a person's preferences being ignored when these are stated during episodes of acute mental illness. For this reason, two newer statutes, for Washington State and New Jersey, provide the option of making the psychiatric advance directive (or parts of it) revocable during a crisis, regardless of whether the patient is competent during the crisis. How this would work in practice has not yet been studied.
In the United Kingdom, Scotland has pursued a different policy and legislative path from that taken by England and Wales.
In Scotland, parliament included advance statements in recent mental health legislation—that is, the Mental Health (Care and Treatment) (Scotland) Act 2003. The written statement must be signed in the presence of a witness, who certifies that the person has the capacity to intend the wishes stated. It can be withdrawn when the person has the capacity to do so, using a document that again has to be signed in the presence of a witness. Under the act, treatment may be given that conflicts with the wishes expressed in the advance statement. If this occurs, the responsible clinician under the act must provide the reasons in writing to the person concerned, the named person under the act, the guardian, the welfare attorney, and the Mental Welfare Commission, as well as place a copy in the person's medical records.
In England and Wales, on the other hand, advance statements have been recognized under "common law" for some years, and their place has now been defined in statute in the Mental Capacity Act 2005. It has been made clear that in the case of mental disorders, mental health legislation (currently the Mental Health Act 1983) takes precedence over any provisions in the Mental Capacity Act. Advance statements can thus be overridden. Since 1999 there has been a process aimed at reforming the Mental Health Act, culminating in Parliament's passing the Mental Health Bill (2006) to amend the Mental Health Act 1983. There was much support for a definition of impaired decision making and for the provision for advance statements to be invoked during a period of impaired decision making in the new legislation, for example, from the Mental Health Act Scoping Review Committee (1999) (
7 ), a Joint Parliamentary Scrutiny Committee (2005) (
14 ), the Royal College of Psychiatrists (2006) (
15 ), and the Mental Health Alliance, an association of nearly all stakeholder organizations involved in mental health treatment. However, this was repeatedly rejected by the government. Concern over public protection outweighed concerns about patient autonomy. Advance statements have therefore taken an essentially clinical form, independent of a statutory basis.
In Germany, Austria, and Switzerland advance agreements (Behandlungsvereinbarungen, which translates as "treatment agreements") are routinely offered in at least 50 hospitals, according to a Web search (
16 ). (For an example see www.uniklinikum-giessen.de/psychiat/infopatienten/vereinbarung.html.) They were first developed in the late 1980s by service users' initiatives. Common features are requests for treatment in a particular hospital or ward; requests for treatments that were helpful in the past or directives about those that should not be used; preferences for staff gender and emergency measures (forced medication versus physical restraint); nomination of the person to be consulted on decisions about treatment; and arrangements for dependents during hospital treatment.
Behandlungsvereinbarungen are seen as legally binding, but it is acknowledged that a service user's wishes at the time of hospital treatment would normally override a previous agreement. Patients' wishes can be overridden by court-ordered treatment. We are not aware of any cases where Behandlungsvereinbarungen were tested in court. In the absence of any national policies, implementation depends on local initiatives and locally agreed procedures between users and service providers. Little research has been conducted on Behandlungsvereinbarungen; however, most authors regard them as useful tools in empowering service users and reducing coercion (
17,
18,
19,
20 ).
In Germany, psychiatric advance directives (Patientenverfügung or Patiententestament; for an example see www.promentesana.ch/pdf/pati entenverfuegung.pdf) can be centrally registered at www.vorsorgereg ister.de/home.html. Consumers and hospital psychiatrists consider them legally binding (
21 ). However, the decision regarding hospital commitment remains a matter for the courts. There is case law on involuntary commitment and treatment for people who have made advance directives, but a clear direction is not yet visible. In Austria, a new law on advance directives came into effect in June 2006 (Patientenverfügungsgesetz BGBl Nr.55 8.5.2006, de.wikipedia.org/wiki/Patientenverf%C3%BCgungsgesetz).
Comprehensive information about the content and consequences of the directive must be provided before it is signed. It becomes invalid if withdrawn by the patient (it is not a Ulysses contract) or if five years pass without renewal. It is centrally registered and included in the patient's medical record; however, emergency treatment is possible during the time it takes to locate it. The law is directed at end-of-life decisions and makes no reference to psychiatric illness. It remains to be seen how many users of mental health services will make use of it.