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England and Wales High Court (Administrative Court) Decisions |
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You are here: BAILII >> Databases >> England and Wales High Court (Administrative Court) Decisions >> McDonald, R (on the application of) v London Borough of Kensington and Chelsea [2009] EWHC 1582 (Admin) (05 March 2009) URL: http://www.bailii.org/ew/cases/EWHC/Admin/2009/1582.html Cite as: [2009] EWHC 1582 (Admin), (2009) 12 CCL Rep 421 |
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QUEEN'S BENCH DIVISION
THE ADMINISTRATIVE COURT
Strand London WC2A 2LL |
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B e f o r e :
(Sitting as a Deputy High Court Judge)
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THE QUEEN ON THE APPLICATION OF | ||
ELAINE McDONALD | Claimant | |
v | ||
LONDON BOROUGH OF KENSINGTON AND CHELSEA | Defendant |
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(Official Shorthand Writers to the Court)
Kelvin Rutledge (instructed by London Borough of Kensington and Chelsea) appeared on behalf of the Defendant
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Crown Copyright ©
The factual background
On 19th February 2008 the defendant's older persons services carried out an assessment of need on the part of the claimant. Within that assessment, Ms McDonald's view was described as follows:
"Ms McDonald wanted to emphasise that she requires assistance with all transfers and when she mobilises. Ms McDonald requested night care in order [for] someone to assist her with using [the] commode during the night. This is because Ms McDonald does not wish to use incontinence pads and sheets."
"Ms McDonald needs supervision to walk to the toilet.
Ms McDonald can maintain her independence, reduce the risks of falls and avoid the use of incontinence pads if the carers arrive on time."
"As stated at the meeting, the rationale behind the planned reduction is that we consider the current provision to be in excess of that required to meet your eligible needs under the Council's fair access to care services criteria. The Council has a duty to provide care, but we must do so in a way that shows regard for the use of public resources."
Later on in that letter the following was set out:
"This planned reduction is being initiated by us in the manner proposed only because you have not been forthcoming in offering alternative suggestions."
On 3rd December 2008 the night care scheme was withdrawn for 4 nights during the week by the defendant so that the current position is that the claimant continues to receive 3 nights' night-time care from the defendant.
The legal framework
"Where a local authority having functions under section 29 of the National Assistance Act 1948 is satisfied in the case of any person to whom that section applies who is ordinarily resident in their area that it is necessary in order to meet the needs of that person for that authority to make arrangements for all or any of the following matters...
[There follows a list of matters that may be provided for such a person].
then... it shall be the duty of that authority to make those arrangements in the exercise of their functions under the said section 29."
"Councils are also reminded that they may take their resources into account when drawing up their eligibility criteria against which they assess individuals' needs, and when deciding which services will be provided to meet those needs. However, this does not mean that councils can take decisions on the basis of resources alone. Once a council has decided it is necessary to provide services to meet the eligible needs of an individual, it is under a duty to provide those services."
"The right given to the person by section 2(1) of the Act of 1970 was a right to have the arrangements made which the local authority was satisfied were necessary to meet his needs. The duty only arises if or when the local authority is so satisfied. But when it does arise then it is clear that a shortage of resources will not excuse a failure in the performance of the duty."
The submissions
"... once a local authority conclude in a particular case that the need which triggers their duty under section 21(1)(a) exists, they must provide Part III accommodation of a kind which will meet the need for care and attention which arises in that case. They cannot at that stage parade their own lack of resources as an excuse for failing to make the necessary provision, though of course, they are entitled to take that factor into account in deciding how they meet the need by the provision of Part III accommodation, provided it meets that need."
"But one has to differentiate between what are needs and what are the services to meet those needs because, as the case of Barry, which I have already cited, makes clear, financial considerations cannot enter into the assessment of needs whereas they can enter into the question as to how those needs are to be met. Once the needs have been established, then they must be met and cost cannot be an excuse for failing to meet them. The manner in which they are met does not have to be the most expensive. The Council is perfectly entitled to look to see what is the cheapest way for them to meet the needs which are specified.
In the context of section 2 of the 1970 Act, it is not always easy to differentiate between what is a need and what is merely the means by which such need can be met. I say that because if one looks at the judgments in the Barry case one sees that Swinton Thomas LJ at page 439 pointed out that some of the matters in section 2(1) of the 1970 Act may be regarded as themselves needs as opposed to the means of meeting the needs. For example, he says, if the need is a provision for the TV set (that is within section 2(1)(b)) that need can be met by the provision of a new or a second-hand set. It may be said that the need is a need for contact with the outside world in some form or another and that the television set provides that contact. Thus the television set is the means whereby the need is to be met. If one returns to the wording of section 2, it talks about the 'making of arrangements for all or any of the following matters in order to meet the needs of that person' which on the whole suggests that one is looking to the matters set out in A to H more in terms of the way in which the needs are to be met rather than the needs themselves, although that is not necessarily an entire guide. So far as the circumstances of this case are concerned, it seems to me perfectly clear that the needs that have led to the question about the provision of a stair lift are the needs for the applicants to be able to get in and out of the premises. Those are the relevant needs. They can be met, as it seems to me, either by removing them to other premises where access is possible for them, which in the context of this case, would be ground floor premises, or adapting the existing to provide a stair lift.
It is, in my judgment, impossible to regard the provision of a stair lift at home as 'the need'. In those circumstances, it is open to the local authority to reconsider the way in which those needs can be met provided that there has been no positive decision to meet them in a particular fashion. I say 'provided there has been no positive decision', but of course such a decision itself could itself be changed upon reconsideration. One must always bear in mind that it is the duty of the authority to meet the needs and that means to meet them as soon as is reasonably practical. It does not mean that the authority is entitled to sit on things and debate with itself for a substantial period of time. Once they have identified after discussion the manner in which those needs are to be met, then the Act requires that they get on with it and meet those needs. But it seems to me that they are entitled to the flexibility as to how those needs are to be met."
The decision