Recommendations Regarding LPS Reform
NAMI-Bay Area Coalition
Subcommittee on LPS Reform
October 19, 2000
The following are our thoughts on what is right with the present LPS law.
1. The current law provides very important due process rights for individuals before they can be treated involuntarily and during a course of involuntary treatment.
2. It prevents anyone who is willing to accept treatment voluntarily from being involuntarily committed.
3. It addresses the need for people who are mentally ill and a danger to themselves or others to be involuntarily treated.
4. It recognizes that people who are severely disabled by mental illness and not willing to receive treatment voluntarily should receive involuntary treatment for their own present and future well being and it sets the criterion for severity as those who are currently so ill as to be unable to provide for their own basic necessities of life. It thus avoids the trap of trying to predict possible severity of illness in the future and it avoids sweeping too many people into the net of involuntary treatment which can be a violation of individual rights and is not a panacea since voluntary treatment is much more desirable. Specifically, it excludes people from involuntary treatment who are exhibiting symptoms of mental illness, possibly even severe symptoms, but not so severe as to prevent them from taking care of their own basic necessities of life.
It should be recognized here that some of the time when consumers are inappropriately refused treatment or released from involuntary treatment prematurely, the reason is not inadequacies in the current LPS law but is a lack of sufficient money (manifested as inadequate staff and facilities) to provide treatment. The staff is forced to triage so that only the most dangerous or most severely ill get treatment and the others are unfortunately released. Almost always in these cases the families of those released are inaccurately told that the ill person did not meet the criteria for involuntary treatment. This causes much misdirected hostility toward the current LPS law among the families of the mentally ill.
The following are our thoughts on what is wrong with the present LPS law or with how it is often interpreted and/or implemented.
1. The criterion of grave disability may require that a person can’t be involuntarily treated until he/she is evicted from their family home, board and care home, etc., thus possibly putting himlher in serious risk of harm on the street and creating unnecessary agony for his/her family.
2. The use of the word "shelter" in the definition of grave disability has resulted in people with serious mental illness who sleep under a bridge, freeway overpass, or in a doorway being held to have shelter and therefore to not meet the criteria for being gravely disabled.
3. Some counties refuse to allow the psychiatric history of the patient to be heard in commitment hearings because of their interpretation of the current LPS law. The result is that the hearing officer can not get a complete understanding of the present condition of the patient and may easily make erroneous decisions regarding commitment, usually on the side of inappropriately releasing the patient.
4. Patient confidentiality rights may prevent hospital staff from being able to obtain important information regarding the patient’s psychiatric history and their behavior prior to hospitalization. This can result in the staff being inadequately prepared in the certification hearing that may then result in the patient being inappropriately released at the hearing. This also interferes with the staff being able to make the best possible treatment plan for the patient.
5. There is a major structural defect in the present definition of grave disability! As we all know, serious mental illness, particularly schizophrenia and bipolar disorder, strikes most people in the age range of 15 to 23 or so. And even before that first major decompensation, there has been a gradual deterioration in the functioning of the ill person over a period of at least a year or more. The result of this gradual deterioration is that the person becomes increasingly dependent on others, usually their parents, for their basic needs of food and shelter even before their first major decompensation. Since the deterioration was gradual, their inability to manage food and shelter on their own was never obvious to others. Therefore, at that decompensation when they are presented for hospitalization while living with their parents, their inability to manage food or shelter is almost impossible to prove, even though their need for involuntary treatment may be obvious. Therefore, if they are not dangerous to self or others, they will almost certainly not be certified for treatment. In this situation, which is created by the nature of the illness, the grave disability criterion of inability to manage food or shelter is grossly inappropriate and must be replaced by another criterion that must be appropriate and not too broad or inclusive.
RECOMMENDED CHANGES TO LPS
Recommended modification to current definition of "gravely disabled".
We believe that it should be specifically stated in the W&I Code that a person who otherwise meets the current criterion for being gravely disabled is gravely disabled even though the caretaker of the person is providing food and/or shelter to the person, so long as the caretaker is no longer willing or able to continue to provide food and/or shelter. This is to avoid the untenable situation in which the family or other caretaker has to actually evict the ill family member before he/she can be determined to be gravely disabled. This is cruel to both the ill person and to the family. Also, families should not be required to make this statement in the presence of the ill family member.
"Housing" rather than "shelter".
"Unable to provide for food, clothing or shelter" should be changed to "unable to provide for food, clothing or housing". Housing should be the standard, not whether someone can find a place to sleep under a freeway overpass.
Psychiatric history.
It should be emphasized that an understanding of a person’s psychiatric history is essential to understanding his/her current condition. It should be stated clearly in the law that history can and should be considered in any commitment proceeding. This would include history provided by family and other caregivers.
Confidentiality provisions
History is essential to understanding a person’s current condition. Under present law, confidentiality provisions do not prevent a treatment facility staff from contacting a patient’s family to obtain information about the patient’s prior history and recent functioning with the patient’s approval. This can be very important information for a hearing officer or judge to have in the interest of making the best decision for the patient. It also can be helpful information in creating the best treatment plan for the patient. Consequently, we recommend that treatment facility staff be authorized to seek and accept such information even if the patient objects. We also recommend that treatment facility staff be required to make reasonable attempts to obtain such information from family and recent caregivers. The staff would not be authorized to give any information about the patient except that the patient is in their facility.
We do not recommend change to any other provisions of the confidentiality laws because we respect the patient/therapist privilege.
Proposed change to the definition of "gravely disabled".
After many hours of meetings over a period of a number of months, our committee recognizes that there is no such thing as a perfect definition for grave disability. The best that we have been able to do so far and is approved of by a majority of the committee is as follows:
A condition in which a person, as a result of a mental disorder, is unable to provide for his or her basic personal needs for food, clothing or shelter [or housing] ~ where a person is determined to lack capacity to make informed decisions regarding his or her treatment and presents acute symptoms of a serious mental illness that results in marked impairment in social, educational or occupational functioning.
Why we make this recommendation.
Basically our addition to the current definition of grave disability says that if the person is
severely and acutely mentally ill with a serious mental illness and doesn’t have the capacity to make treatment decisions, then the person can be involuntarily treated. It provides a different criterion to determine severe mental illness, one that avoids the aforementioned problems of the current definition involving food, clothing and shelter. Our proposed new standard provides the protection of the requirement of court-determined incapacity before the person can be court-certified for involuntary treatment, not just medicated, as was provided by the Riese decision of the California Supreme Court.
OUR OBJECTIONS TO THE ‘GRAVELY DISABLED’ DEFINITION THAT WAS
IN AE1800 OR ANY OTHER SUCH DEFIMTION THAT IS IN ANY WAY BASED
ON A PREDICTION OF TILE FUTURE CONDITION OR STATUS OF A PERSON.
We oppose the following provisions in the "gravely disabled" definition that was proposed in AB 1800 for the following reasons: "a person .. who presents, as a result cf a mental disorder, an acute risk of .. harm to the person in the absence of treatment" and "an .. escalation of symptoms or behaviors .. that render it more likely than not that the person will be unable to provide for his or her basic needs or become dangerous ..."
1. This is a very vague and subjective standard that would be extremely difficult to decide in a court of law with any degree of confidence. This requires a prediction of the future condition of a person that a psychiatrist can’t do with any reliable accuracy and, without a lot of psychiatric training, a judge, a hearing officer or a jury can’t do accurately at all. This would leave the judge, hearing officer or jury at the mercy of the psychiatrist’s subjective opinion with all of its potential inaccuracies, thus effectively returning us to the situation that we had before the passage of the LPS Act. We firmly believe that any grave disability standard should be based only on the current condition (including history) of the person, not on any prediction or expectation of the condition of the person in the future. To do that creates a very slippery slope open to serious abuse.
2. Consider an informed mental health consumer who is basically doing fairly well but who has an escalation of symptoms, possibly because of stress or because their medications aren’t working as well as they were. What many do now in this situation is voluntarily go to see their psychiatrist to get their medications adjusted. However, under the above definition of grave disability, it seems rather obvious that there would be some fear that since they now might be thought to meet the new involuntary commitment standard and since they would not want to be involuntarily treated, they would likely be reluctant to get help, thus possibly leading to further deterioration. We certainly don’t want to encourage this reluctance.
3.
This type of definition of grave disability, based not exclusively on the person’s current condition but rather on a prediction of the future condition of the person, casts far too broad a net. It almost certainly would inappropriately commit numerous people to involuntary treatment, treatment that would otherwise be provided on an outpatient basis, which is much better treatment, much better for the person involved.4. The newest and most hopeful trend in the treatment of mental illness is the movement toward recovery from serious mental illness, particularly including schizophrenia. This has been partly facilitated by the newer medications of the last decade. However, recovery requires a lot more than medication and in some cases can be facilitated
even after a period of medication is completed. Recovery is a very delicate process involving, among other things, increased hope and self-confidence within the consumer, particularly in the face of widespread pessimism among many mental health professionals. It is widely accepted that recovery has many setbacks on the road toward improved functioning. Some such setbacks can be fairly serious. On the recovery road, consumers are encouraged to learn about their disability sometimes by experimentation. Obviously, this can lead to setbacks. One of the worst things that might happen to an individual on such a road is to be committed for involuntary treatment, undermining both hope and self-confidence, during a serious setback. This is clearly antithetical to the recovery process. This new definition of grave disability that was in AB 1800 makes it too likely that an individual’s recovery process might be seriously derailed during a setback by a too easily obtained inappropriate involuntary treatment commitment.
OTHER SERIOUS ISSUES
1. There is a complete lack of oversight of the various counties’ procedures and actions as they pertain to the LPS act. There is little uniformity among the various counties in their interpretation and administration of the LPS act. For example, in some counties, if a person with mental illness gets his food by eating out of a dumpster, it is said he is not gravely disabled by being unable to provide for food.
2. There is virtually a complete lack of training about mental illness for the hearing officers and other adjudicators and for patient’s right’s advocates, all of whom make life-altering decisions for mentally ill people.
Prepared by the NAMI — Bay Area Coalition Subcommittee on LPS Reform
John Sisk, MSW NAMI — Santa Clara Co., Vice Pres.,
Psychiatric Social Worker, San Mateo Co. Mental Health, retired LPS Conservatorship Investigator, San Mateo Co. M. H., retired
Steve Bischoff NAMI— Alameda Co.
Executive Director, Mental Health Assoc. of Alameda Co.
Lori Campbell NAMI — San Mateo Co.
Tom Farris NAMI — California, Board of Directors, just retired
Anne O’Niell, J.D. NAMI — California, Board of Directors
Tom Purvis NAMI— San Francisco Co.
Sharon Roth, R.N. NAMI — Santa Clara Co., President
Reviewed and supported by:
John Hatfield, PhD Clinical Psychologist, San Mateo Co. Mental Health, retired Chief, South San Mateo County M.H. Crisis Team, retired
Clinical Psychologist in Private Practice