The Covert Administration of Psychotropic Medication to Adult Inpatients Determined to Be Decisionally- Incapable in Ontario’S Psychiatric Settings
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Meds on the Menu: The Covert Administration of Psychotropic Medication to Adult Inpatients Determined to be Decisionally- Incapable in Ontario’s Psychiatric Settings by C. Tess Sheldon A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Dalla Lana School of Public Health University of Toronto © Copyright by C. Tess Sheldon 2015 Meds on the Menu: The Covert Administration of Psychotropic Medication to Adult Inpatients Determined to be Decisionally- Incapable in Ontario’s Psychiatric Settings C. Tess Sheldon Doctor of Philosophy Dalla Lana School of Public Health University of Toronto 2015 ABSTRACT Drawing on the fields of human rights and public health, this research explores the covert administration of medication: the concealment of medication in food or drink so that it will be consumed undetected. Adopting a rights-based approach, it explores multiple understandings of the impact of the practice on inpatients’ rights- experiences. Relying on critical approaches, it also explores the practice’s underlying socio-political-legal structures. The common themes of policies, protocols or guidelines that govern its practice in Ontario are identified. Focus groups and individual interviews were held with three groups of stakeholders (nurses, legal experts and psychiatrists), relying on fictional clinical scenarios. Few policies, protocols or guidelines govern the practice in Ontario’s psychiatric settings. The practice impairs access to knowledge by patients and substitute decision-makers. It also precludes healthcare practitioners’ access to information about side effects and underlying reasons for medication refusal. It may interfere ii with therapeutic relationships and patients’ meaningful recovery as they transfer from hospital without knowledge of the fact of the covert medication. It may be characterized as autonomy restoring since patients may become capable of making treatment decisions after having received the medication surreptitiously. Covert medication reflects an inflexible approach to capacity determination; it is distinguishable from approaches that imagine capacity as able to be fostered with support. It is primarily concerned with the management of “risky” inpatients in the short-term. The practice relies on a faith that medication will be effective, deferring to medical decision-making. While covert medication is understood to have “something to do” with rights, there is confusion about how those rights play out on the ground. Institutional silences underlie and reinforce the practice. This research will support the development of effective, safe and appropriate approaches to treatment non-adherence that maximize patient dignity. Most pressing, this research concludes that the covert administration of medication warrants an overt discussion. iii ACKNOWLEDGEMENTS I am so grateful to Lori Ferris, my thesis supervisor and mentor. With her immeasurable support, vision and generosity, I gained confidence to push further into murky interdisciplinary fields, to remain faithful to what was important to me, and to critically consider all angles (even when it was uncomfortable). She is a leader who delights in sharing success. I am proud to share the success of the completion of this project with her. I also offer my sincerest gratitude to my thesis committee, Dr. Elizabeth Peter and Dr. Trudo Lemmens for their critical and insightful feedback during all stages of the project. In particular, I thank Elizabeth for her expert methodological guidance and Trudo for his expert legal and research ethics support. I thank the stakeholders who participated in this study and generously shared their time, experience and expertise. I am unspeakably indebted to my dear family and friends for their unwavering optimism, patience and encouragement. A thousand thanks to Raja, especially, for making everything more fun. It makes me happiest of all to offer the biggest thanks to the littlest people in my life (Sabi and Liv). You send me over the moon! iv TABLE OF CONTENTS Acknowledgements .................................................................................................................................. iv List of Tables ............................................................................................................................................ viii List of Figures ............................................................................................................................................. ix List of Appendices ..................................................................................................................................... x CHAPTER 1: INTRODUCTION ............................................................................................................... 1 I. Language ............................................................................................................................................... 2 II. Context ................................................................................................................................................. 3 III Statement of Focus and Exclusions ......................................................................................... 6 IV. Research Questions ....................................................................................................................... 8 V. Public Health Significance ............................................................................................................ 8 i) State Power including Use of Coercion and Restraint .............................................. 13 ii) Population Focus ..................................................................................................................... 15 iii) The Centrality of Social Justice, including the Health of Marginalized Communities ................................................................................................................................... 16 iv) Engaging Questions of the Nature and Value of Rights .......................................... 19 VI. Roadmap ......................................................................................................................................... 22 CHAPTER 2: THEORETICAL FRAMEWORKS .............................................................................. 25 I. Rights-Based Approaches ........................................................................................................... 25 i) Law Commission of Ontario’s Framework .................................................................... 26 ii) Broad Conceptualization of "Rights" ............................................................................... 30 iii) Challenges to Rights-Based Approaches ...................................................................... 32 II. Critical Theories of Rights ......................................................................................................... 34 i) Critical Legal Studies ............................................................................................................... 35 ii) New Legal Realism .................................................................................................................. 37 iii) Critical Disability Studies .................................................................................................... 38 III. Synergistic Combinations of Rights-Based and Critical Approaches .................... 41 CHAPTER 3: LEGAL AND GOVERNANCE LANDSCAPE ........................................................... 43 I. Ontario Legislation ........................................................................................................................ 43 i) Health Care Consent Act, 1996 ............................................................................................. 45 ii) Substitute Decisions Act, 1992 ............................................................................................ 48 iii) Mental Health Act, 1990 ...................................................................................................... 49 iv) Long-Term Care Homes Act, 2007… ................................................................................ 50 II. International Legal Materials .................................................................................................. 54 III. Highlights – Canadian Jurisprudence ................................................................................. 63 i) With Protections, Forced Treatment May Not Offend the Charter ...................... 64 ii) The Determination of Treatment Capacity Must be Contextually Driven ...... 65 iii) Application of Restraints to Effect Treatment May Not Offend the Charter . 67 v iv) The Availability of Claims of Assault, Battery and False Imprisonment ........ 69 v) Mental Health Tribunals Have Tangentially Approached Covert Medication71 IV. Professional Guidance: Domestic and International .................................................... 74 V. Summary ........................................................................................................................................... 81 CHAPTER 4: LITERATURE REVIEW ............................................................................................... 82 I. Search Strategy ................................................................................................................................ 83 II. Reviews (most relevant first) .................................................................................................