COMPLEXITY AND CHANGE IN THE UNITED KINGDOM'S SYSTEM OF MENTAL HEALTH CARE ABSTRACTIn the context of wider efforts to improve efficiency and the user-centredness of health and social care provision, public policy in the United Kingdom (UK) demonstrates an explicit appeal to 'whole systems' management. This otherwise laudable attempt to develop services may, however, reveal an underestimation by policymakers of how complex systems of work can evolve in unpredictable ways. In this paper we utilise sociological theories of the division of labour to underpin a wide-ranging case study of the historical evolution and current characteristics of the ecology of mental health care in the UK. Beginning with an analysis of the development of a system in which psychiatry emerged as the lead profession, and progressing to a review of the challenges faced by psychiatric knowledge and practice, we highlight the interrelated and dynamic features of this system of work. Our paper closes with an examination of contemporary 'modernisation', which we argue has the potential for triggering widespread system disturbance.
KEYWORDSdivision of labour; health care policy; mental health services; modernisation; occupations; organisational characteristics 3
INTRODUCTIONBeginning with the insights of one of sociology's founding fathers (Durkheim, 1933), ecological theories of work have been developed and refined by successive generations of scholars (E Hughes, 1971;Abbott, 1988). In this paper we draw on ecological ideas which emphasise the world of work as a complex, dynamic and interrelated system to underpin a wide-ranging case study of the historical evolution and contemporary characteristics of mental health care in the United Kingdom (UK).Trends in UK health and social care policymaking make our paper both timely and of interest to commentators and practitioners not otherwise concerned with the mental health field. Emerging policy reveals a shift towards 'whole systems' thinking (see for example: NHS Modernisation Agency, 2005). This development is driven by an explicit focus on improving both service efficiencies and how the needs of service users are met.Policy action is directed at managing the provision of integrated services through the development of system technologies aimed at engineering closer interoccupational and interagency working. Examples include the creation of shared standards, such as the use of national service frameworks, national guidelines and the development of integrated care pathways. Favourable conditions are also being created for the emergence of new occupational groups and for the configuration of new types of care team. For example, policy has explicitly contributed to the appearance of new mental health worker roles in primary care, and to the creation of new interprofessional teams focusing on the provision of services (such as assertive outreach) to closely-defined groups of users. The new policy context has also fostered conditions in which service providers are able to create 4 new groups of workers,...