Essays in Ethics and Health Policy
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Essays in Ethics and Health Policy The Harvard community has made this article openly available. Please share how this access benefits you. Your story matters Citation Player, Candice Teri-Lowe. 2013. Essays in Ethics and Health Policy. Doctoral dissertation, Harvard University. Citable link http://nrs.harvard.edu/urn-3:HUL.InstRepos:11051184 Terms of Use This article was downloaded from Harvard University’s DASH repository, and is made available under the terms and conditions applicable to Other Posted Material, as set forth at http:// nrs.harvard.edu/urn-3:HUL.InstRepos:dash.current.terms-of- use#LAA Essays in Ethics and Health Policy A dissertation presented by Candice Teri-Lowe Player to The Interfaculty Initiative in Health Policy in partial fulfillment of the requirements for the degree of Doctor of Philosophy in the subject of Health Policy Harvard University Cambridge, Massachusetts May 2013 © 2013 Candice Teri-Lowe Player All Rights reserved. Professor Michelle Mello Candice Teri-Lowe Player Dissertation Advisor Essays in Ethics and Health Policy Abstract In 1999 New York enacted Kendra’s Law, in memory of Kendra Webdale, a young woman who was pushed to her death in front of an oncoming train by a man with untreated schizophrenia. Under Kendra’s Law a court can order a person with a mental illness to participate in an “assisted outpatient treatment” (AOT) program. Kendra’s Law includes a number of procedural due process protections including the right to a hearing and the right to counsel. Still critics argue that people with mental illnesses are routinely ordered to participate in the AOT program based on no more than “a bare recital of the statutory criteria.” The first essay in this dissertation, Outpatient Commitment and Procedural Due Process, reports the findings from a study on procedural due process and assisted outpatient treatment hearings under Kendra’s Law. Findings from this study suggest that despite the shift from a medical model of civil commitment to a judicial model in the late 1970s, by and large judges continue to accord great deference to clinical testimony. A second paper, Rethinking Kendra’s Law, addresses the ethical dilemmas that arise when courts impose AOT over the patient’s objection. The third paper of this dissertation, Public Assistance, Drug Testing and the Law, addresses the Fourth Amendment questions that arise when states condition public assistance benefits on passing a suspicionless drug test. To date eight states—including Florida, Georgia and Missouri—condition public assistance benefits on passing a drug test. Proposals to condition public assistance on passing a drug test have also appeared in Congress. However, without a genuine threat to public health or public safety, proposals to condition public assistance on passing a drug test without individualized suspicion of drug use are unreasonable under the Fourth Amendment. Even if the Supreme Court iii were to recognize special needs beyond a genuine threat to public health or public safety, policies that result in withholding public assistance benefits from people who abuse illegal drugs are likely to make many social problems much worse. iv CONTENTS CHAPTER 1. OUTPATIENT COMMITMENT AND PROCEDURAL DUE PROCESS ................... 1 I. PROCEDURAL DUE PROCESS ............................................................................................ 4 A. CASE LAW .................................................................................................................... 4 1. The Right to a Hearing ........................................................................................... 6 2. The Right to Counsel ............................................................................................... 10 3. The Standard of Proof: Clear and Convincing Evidence ............................................ 11 4. The Right to a Neutral Factfinder ........................................................................... 13 B. EMPIRICAL STUDIES ................................................................................................. 15 1. The Right to a Hearing ......................................................................................... 15 2. The Right to Counsel ............................................................................................... 17 3. The Standard of Proof: Clear and Convincing Evidence ............................................ 19 4. The Right to a Neutral Factfinder ........................................................................... 20 C. SUMMARY ................................................................................................................... 23 II. KENDRA’S LAW ................................................................................................................. 24 A. MECHANICS ............................................................................................................... 24 B. DUE PROCESS CHALLENGES ................................................................................... 27 C. PROGRAM IMPLEMENTATION ................................................................................. 31 D. SUMMARY .................................................................................................................. 33 III. METHODS .......................................................................................................................... 34 A. DATA COLLECTION .................................................................................................. 34 1. Courtroom Observation ............................................................................................ 34 2. Participant Interviews .............................................................................................. 34 B. DATA ANALYSIS ........................................................................................................ 35 IV. RESULTS............................................................................................................................... 36 A. AOT HEARINGS ....................................................................................................... 36 1. Uncontested Hearings .............................................................................................. 36 2. Contested Hearings .................................................................................................. 37 a. Evidence ........................................................................................................... 40 b. Defense Counsel Activity .................................................................................. 42 c. Disposition ....................................................................................................... 42 B. INTERVIEWS ............................................................................................................... 43 1. Attorneys ................................................................................................................ 44 a. Impediments to Effective Advocacy ................................................................... 44 i. History of Treatment Noncompliance ........................................................ 44 ii. Expert Testimony .................................................................................... 45 iii. Judicial Attitudes Toward the Mentally Ill ............................................... 46 iv. Medicalization of Deviance .................................................................... 47 b. Attorney Role: Zealous Advocacy or Best Interests?.......................................... 47 2. Judges .................................................................................................................... 48 a. Deciding AOT Hearings ................................................................................. 48 i. Expert Testimony ................................................................................ 49 ii. Harm to Others ................................................................................... 50 v iii. The Revolving Door of Hospital Admissions ......................................... 50 vi. Liberty Interests ................................................................................... 51 b. Clear and Convincing Evidence ........................................................................ 52 c. Attorney Role: Zealous Advocacy or Best Interests? .......................................... 52 V. DISCUSSION ........................................................................................................................ 53 CHAPTER 2. RETHINKING KENDRA’S LAW: THE ETHICS OF ASSISTED OUTPATIENT TREATMENT ...................................................................................................................................... 59 I. DEINSTITUTIONALIZATION: PITFALLS AND PROMISES ............................................. 63 II. KENDRA’S LAW ................................................................................................................ 69 III. HARM TO OTHERS ........................................................................................................... 71 A. VIOLENCE AND MENTAL ILLNESS ........................................................................ 73 1. Community Surveys ................................................................................................. 73 2. Psychosis and Violence ............................................................................................