Published online by Cambridge University Press: 02 January 2018
This paper examines the challenges of enrolling minors in biomedical research that does not offer participants any prospect of direct benefit. It does so in the context of the current Singapore regime for the protection of research subjects, and seeks to evaluate if this is adequate for the task. In the process, it reviews appropriate Commonwealth and US precedents, regulatory instruments and guidelines that bear on three main issues raised by such research, and makes some recommendations on how they might be better addressed: first, the protective ceilings of risk prescribed beyond which minors may not be exposed to. Secondly, the allocation of decision-making authority and processes employed before a minor is permitted to enrol in such research. Finally, the particular regulatory oversight mechanisms that are needed to improve ethical and legal compliance.
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26. 2000 Rev Ed Sing, reg 3 (hereafter CTR).
27. Singapore: Ministry of Health, 1999 (hereafter SGGCP).
28. See above n 26, reg 11(1) and (2).
29. Ibid, reg 11(6).
30. Ibid, reg 11(2).
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41. Ibid, at 20, para 12.1.
42. ETS No 164 (1 December 1999), online: http://conventions.coe.int/Treaty/en/Summaries/Html/164.htm (hereafter Biomedicine Convention).
43. Above n 39, at 17, para 11.1.
44. Above n 42, at paras 111–114.
45. Above n 33, at para 7.
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50. National Medical Ethics Committee, Ministry of Health Ethical Guidelines on Research involving Human Subjects (1997) at para 2.5.5, online: http://www.moh.gov.sg/mohcorp/uploadedFiles/Publications/Guidelines/human_bmr.pdf (hereafter NMEC Ethical Guidelines).
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55. This test is taken from the House of Lords' decision in S v S [1972] AC 24.
56. Above n 52 at 180; n 53 at para 5.1.4a. See also, Department of Health Seeking Consent: working with children (London: Department of Health, November 2001)Google ScholarPubMedat 25–26.
57. Above n 52.
58. Above n 53 and RCP Guidelines, above n 54, at para 5.13.
59. RCPCH Guidelines, above n 52, MRC Guidelines, above n 53.
60. RCPCH Guidelines, above n 52. See also section (d) (iii) below.
61. Ibid. See also RCP Guidelines, above n 54, at paras 5.13–5.20.
62. Nicholson, R (ed) Medical Research with Children: Ethics, Law & Practice (Oxford: Oxford University Press, 1986)Google Scholarch 5 at pp 118–119.
63. See above n 49.
64. Medical Registration Act (Cap 174, 2004 Rev Ed Sing) Part VII.
65. Ibid, s 2; above n 48, at paras 2.30–2.35.
66. Above n 48, at paras 3.25–3.26.
67. See for example Secretary, Department of Health and Community Services v JWB and SMB (1992) 175 CLR 218 at 269–272, 278–280, per Brennan J (hereafter Marion's case). In Singapore, the parens patriae jurisdiction in respect of minors is explicitly reserved for the High Court by s 17(d) of the Supreme Court of Judicature Act (Cap 322, 2007 Rev Ed Sing). See also, Laurie, G Parens Patriae Jurisdiction in the Medico-Legal Context: the Vagaries of Judicial Activism’ (1999) 3 Edinburgh Law Review 95 CrossRefGoogle Scholar at 98.
68. Marion's case, ibid, at 239–240, 258–259, per Mason CJ, Dawson, Toohey and Gaudron JJ.
69. Ibid, at 280–281, per Brennan J.
70. Ibid, at 259, per Mason CJ, Dawson, Toohey and Gaudron JJ. Cf Brennan J at 270–272.
71. Nicholson, above n 62, ch 6 at pp 134–135.
72. Re Eve (1987) 31 DLR (4th) 1 (SCC).
73. Ibid, at para 86, per La Forest J.
74. See for example Williams, R Pediatric Research and the Parens Patriae Jurisdiction in Canada and England’ (1999) 18 Medicine & Law 525 Google ScholarPubMed at 539, 545–546. These views raised concerns amongst many commentators uncomfortable with the implications for the advancement of knowledge and therapies for paediatric conditions and diseases: see for example at 198–199. For further obstacles in the Canadian context, see at 132–136.
75. Hart v Brown (1972) 289 A2d 386 at 373–375 (SC, Connecticut).
76. Curran v Bosze (1990) 566 NE2d 1319 (SC Illinois),
77. Ibid, at 1343–1344.
78. Ibid. Apart from this psychological benefit, it was clear that the bone marrow donation was of no physical benefit to the child donor.
79. In the Marriage of GWW and CMW (1997) 21 Fam LR 612 (Fam Ct, Aus).
80. See also In re Y (adult patient) (bone marrow transplant) [1997] 2 WLR 556, where the court was prepared to infer ‘benefit’ from the improvement of the incompetent's relationship with her mother who very much desired the procedure and the eternal gratefulness of the donee sister.
81. Simms v Simms [2003] Fam 83.
82. Ibid, at [64]. See also J Harrington ‘Deciding Best Interests: Medical Progress, Clinical Judgment and the ‘Good Family’ [2003] 3 Web JCLI, online: http://webjcli.ncl.ac.uk/2003/contents3.html, who argues that the court took a relational view of best interests.
83. Mason, K and Laurie, G Law and Medical Ethics (Oxford: Oxford University Press, 2006)Google Scholarch 18 at para 18.5.
84. Ibid, at para 19.12.
85. Above, n 55.
86. Ibid, at 44, per Lord Reid (emphasis added).
87. Ibid, at 44, per Lord Reid; at 58, per Lord Hodson.
88. See the typology offered by Kopelman, L The Best Interests Standard as Threshold, Ideal, and Standard of Reasonableness’ (1997) 22 Journal of Medicine and Philosophy 271 CrossRefGoogle ScholarPubMed at 279–281. Kopelman articulates three senses of ‘best interests’: as a threshold for intervention in child abuse and neglect cases, an ideal to promote the good of children or establish prima facie duties, and as a standard of reasonableness based on what most informed rational people would do to maximise net benefits and minimise net harms.
89. Above, n 55, at 43.
90. Dworkin, above n 74, Nicholson, above n 62, at p 135, Kennedy, I and Grubb, A Principles of Medical Law (New York: Oxford University Press, 1998)Google Scholarch 13 at p 730, para 13.40.
91. Above n 55, at 57, per Lord Hodson.
92. B Dickens ‘The Use of Children in Medical Experimentation’ (1975) Medico-Legal Journal 166 at 168–169.
93. Grimes v Kennedy Krieger Institute (2002) 782 A2d 807.
94. Ibid, at 852–853 (emphasis added). In doing so, the court affirmed an earlier decision in TD et al v New York State Office of Mental Health (1996) 228 AD2d 95 at 124 (SC App Div, New York), which held that ‘a parent or guardian…may not consent to have a child submit to painful and/or potentially life-threatening [greater than minimal risk] research procedures that hold no prospect of benefit for the child and that may have the same result as a denial of necessary medical treatment…’.
95. Grimes, ibid, at 858.
96. Ibid, at 862.
97. Ibid, at 853.
98. Ibid, at 855–856, citing TD v NYSOMH (1995) 626 NYS2d 1015 (trial court) at 1017–21, which in turn cited Prince v Massachusetts (1944) 321 US 158 (SC) at 170.
99. Grimes, ibid, at 856 fn 41.
100. 45 CFR §46.102(i) (2006).
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111. On the difficulties associated with judicial resolution or clarification, see Dickens, above n 74, at 146–147.
112. Ackerman, above n 102, at 95–96. See also Dickens, above n 92.
113. S v S, above n 55, at 45, per Lord Reid.
114. See Marion's case, above n 67.
115. Above n 50.
116. See Kopelman, above n 101.
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119. Ibid, at 16.
120. 45 CFR §46.405 and §46.406 (2006) respectively.
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129. See E Wender ‘Assessment of Risk to Children’ in Grodin and Glantz, above n 4, ch 6.
130. Ackerman, above n 102. See also Wendler, above n 101, at 39–41.
131. For the Singapore Centre for Transfusion Medicine's guidelines on blood donation by minors, see Health Sciences Authority, online: http://www.hsa.gov.sg/publish/hsaportal/en/health_services/blood_donation/can_i_donate/who_can_donate.html.
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150. Above n 28. The default age of majority in Singapore at common law is 21 years: Rai Bahadur Singh and Another v Bank of India [1993] 1 SLR 634 (HC); affirmed on the point by Bank of India v Rai Bahadur Singh and Anor [1994] 1 SLR 328 (CA).
151. Above n 28.
152. See Gillick v West Norfolk and Wisbech AHA and Anor [1986] AC 112 (HL).
153. See Glantz, above n 20, at 225–226.
154. Above n 26, reg 11(2).
155. See, for example CIOMS Guidelines, above n 2, Commentary to Guideline 14. The US National Commission, above n 138, at p 16, distinguished ‘assent’ from a legally valid consent. The former represents a child's ability to understand the purposes and procedures of research and indicate her wish regarding participation. The US Federal Regulations define assent to mean a child's ‘affirmative agreement to participate in research’: 45 CFR §46.402 (2006).
156. Above n 152, at 189, per Lord Scarman.
157. Above n 27, para 4.8.12 read with para 4.8.5, which together provide that where a minor cannot give ‘informed consent’, ‘the subject should be informed about the trial to the extent compatible with the subject's understanding and, if capable, the subject should sign and personally date the written informed consent’.
158. Above n 50.
159. Above n 33, Part 4, para 4. The MRC view this measure as additional protection device in that it disallows even competent minors (under 16 years of age) from consenting to participation in clinical trials: MRC Guidelines, above n 53, at para 25.
160. Ibid, at paras 6 and 7.
161. Above n 33, reg 2.
162. Ibid, Sch I, Part 3.
163. See RCPCH Guidelines, above n 52, at 180; MRC Guidelines, above n 53, at paras 5.1.3–5.1.3a, which also notes the different position in Scotland, where individuals aged 16 and above may give consent of legal effect in any transaction: Age of Legal Capacity (Scotland) Act 1991, c 50, s 1.
164. MRC Guidelines, above n 53, at para 5.1.4.
165. RCPCH Guidelines, above n 52, at 180; MRC Guidelines, ibid, at para 5.1.4.a. See also, Department of Health Seeking Consent: Working with children (London: Department of Health, 2001)Google ScholarPubMedat 25.
166. The RCP Guidelines 2007, above n 54, at para 4.58, continue this advice, albeit in less absolute terms. In fact, the RCP's earlier Guidelines on the Practice of Ethics Committees in Medical Research Involving Human Subjects (2nd edn, January 1990) advocated a dual consent approach for subjects below the age of 18 (at para 13.1). A similar recommendation was made by the Institute of Medical Ethics working group in respect of non-beneficial research: Nicholson, above n 62, at p 151.
167. Marion's case, above n 67, at 316, per McHugh J.
168. Above n 55, at 45.
169. Above n 156. See also Marion's case, above n 67, at 316, per McHugh J; cf Brennan J at 280–281.
170. Re R [1992] Fam 11 (CA).
171. Re W [1993] Fam 64 (CA).
172. Bonner v Moran 126 F2d 121 (1941) (USCA, DC). See also, Glantz, above n 20, at 227–229 and Re W, ibid, at 78–79, where Lord Donaldson observed obiter that it was inconceivable, in the context of organ donation, that doctors would proceed solely on the basis of the consent of a Gillick competent child without ‘supporting parental consent’ or a court order.
173. Medical Research Council of Canada Guidelines for Research Involving Human Subjects (Ottawa: Minister of Supply and Services Canada, 1987)Google ScholarPubMedat 29.
174. Collogan and Fleischman, above n 145, at pp 84–86.
175. Weisstub et al, above n 21, at p 394.
176. See section 2 (d) (iii) above.
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178. As recognised in the CTR, above n 26, reg 14.
179. As recognised in the NMEC Ethical Guidelines, above n 50, para 2.5.5.1.
180. Beyleveld, D and Brownsword, R Consent in the law (Oxford: Hart Publishing, 2007)Google ScholarPubMedch 1 at pp 5–7.
181. In re C (Adult: Refusal of Treatment) [1994] 1 WLR 290 (Fam). This test was applied to a minor in Wolverhampton Metropolitan Borough Council v DB [1997] 1 FLR 767 (Fam).
182. Cf CIOMS Guidelines, above n 2, which appears to conceive of assent as agreement to participate which falls short of legally valid consent solely on the score of the chronological age of majority.
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185. Ackerman, above n 142. Cf NMEC Ethical Guidelines, above n 50.
186. See generally, Collogan and Fleischmann, above n 145, at pp 83–85.
187. Ibid.
188. Weisstub et al, above n 21, at pp 399–403.
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190. Wendler, above n 143.
191. See Nicholson, above n 62, ch 7 at p 148.
192. See W Bartholome ‘Parents, Children and the Moral Benefits of Research’ (1976) Hastings Center Report 44 at 45.
193. Above n 144.
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195. Above nn 170 and 171 respectively. In Ney v Canada (Attorney General) (1993) 79 BCLR (2d) 47 (BC SC) the court noted that it was still uncertain at common law whether parental control yields to the child's independence or whether there are concurrent powers of consent.
196. Cap 347, 1985 Rev Ed Sing, s 3(2)(c).
197. Smoking (Control of Advertisements and Sale of Tobacco) Act (Cap 309, 2003 Rev Ed Sing), s 10.
198. Scott et al, above n 194, at 228.
199. Ibid.
200. J Santelli et al ‘Recruitment of Pregnant, Minor Adolescents at Risk of Pregnancy into Longitudinal Observational Research’ in Kodish, above n 145, at p 110.
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206. R Jagtiani, ‘I'm on a drug trial’ The Straits Times 24 September 2006, which noted a trend in Singapore of young adult and minor students enrolling in clinical trials and other biomedical research to make extra pocket money.
207. See text accompanying nn 106–109 above.
208. In respect of clinical trial participation: CTR, above n 26, reg 14.
209. See text accompanying n 192 above.
210. Brody, J et al ‘Comparisons of adolescent and parent willingness to participate in minimal and above-minimal risk pediatric asthma research protocols’ (2005) 37 Journal of Adolescent Health 229 CrossRefGoogle ScholarPubMed at 234.
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213. For recommendations on appropriate practices in obtaining informed consent from parents and adolescents, see Broome, et al ‘Children in Research: New Perspectives and Practices for Informed Consent’ (2003) 5 IRB: Ethics & Human Research S20 CrossRefGoogle Scholar at S23.
214. As defined in section (d) (ii) above.
215. Collogan and Fleischman, above n 145, at p 91.
216. Cf Collogan and Fleischman, ibid, at p 94.
217. See, for example, the example given by 45 CFR §46.408(c) (2006).
218. Women's Charter (Cap 353, 1997 Rev Ed Sing), s 17.
219. Above n 197, s 10.
220. Medical (Therapy, Research and Education) Act (Cap 175, 1985 Rev Ed Sing), s 3.
221. Enlistment Act (Cap 93, 2001 Rev Ed Sing), s 10.
222. See above n 131.
223. See for example Appelbaum, P et al ‘False Hopes and Best Data: Consent to Research and the Therapeutic Misconception’ (1987) 17(2) The Hastings Center Report 20 CrossRefGoogle ScholarPubMed at 20–21.
224. Above n 25.
225. Miller, P and Kenny, N ‘Walking the Moral Tightrope: Respecting and Protecting Children in Health-Related Research’ (2002) 11 Cambridge Quarterly of Healthcare Ethics 217 CrossRefGoogle ScholarPubMed at 222.
226. SGGCP, above n 27, at 8, para 1.37.
227. BAC, Guidelines for IRBs, above n 48, at para 2.20.
228. Ibid, at para 2.25, citing a Singapore Ministry of Health Directive dated 25 June 1998.
229. Ibid, at paras 3.9 and 3.25 respectively.
230. Ibid, at para 4.17(d).
231. Ibid, at paras 5.12–5.17: although institutions may share IRBs or refer protocols to an IRB established by a parent organisation, these IRBs are still, by definition, principally institution-based.
232. See Wendler, above n 101, at 40–41.
233. See Scott et al above n 194; Steinberg and Cauffman, above n 201.
234. J Lantos ‘Children and Clinical Research’ (Transcript of presentation to the President's Council on Bioethics, 20 April 2006), online: http://www.bioethics.gov/transcripts/april06/session4.html.
235. Kopelman, above n 126, at 757.
236. Edgar, H and Rothman, D ‘The Institutional Review Board and beyond: Future Challenges to the Ethics of Human Experimentation’ (1995) 73(4) The Millbank Quarterly 489 CrossRefGoogle ScholarPubMed at 497–502.