This report records the views of a working group of the Vienna Initiative to Save European Academic Research (VISEAR). VISEAR, an association of European researchers predominantly from the public sector, seeks to improve European regulation of medical research. It is organised and financially supported by the University of Vienna, the Vienna School of Clinical Research and the Office of the Ethics Committee. The report discusses: (1) the implementation of the EU Directive 2001/20/EC ('the Clinical Trials Directive') insofar as it related to research involving adult patients unable to consent; (2) legal, ethical and practical difficulties experienced as a result of implementation of the Clinical Trials Directive; and (3) possible solutions to the problems experienced. The report is concerned with a broad variety of research involving incapacitated persons including research about mental illness, intellectual disability, age-related illness, critical care and emergency medicine (e.g. stroke, cardiac arrest, traumatic head injury). The Working Group makes the following recommendations: Implementation 1. Member States should monitor the impact of their laws on research involving incapacitated patients, particularly Member States which have applied the conditions of the Clinical Trials Directive to medical research other than clinical drug trials. 2. The European Commission ('EC') and Member States should publish guidance to assist researchers and ethics committees with the interpretation of the Directive and implementing legislation. Risk Assessment 3. The EC and Member States should recognise that in circumstances of clinical equipoise (which is an ethical requirement for enrolling patients in clinical trials) there will be substantial uncertainty whether administering a medicinal product will benefit a patient. The requirement that the trial be expected to produce benefits outweighing risks (or no risk at all) must be interpreted in light of this. 4. The EC and Member States should publish guidance about 'component analysis' to clarify that when assessing whether a trial will produce a benefit to the patient outweighing the risks (or no risk at all), the judgment should be made with reference to the benefits and risks associated with the research component of the trial (rather than components of the trial that reflect accepted medical therapies or treatments in equipoise). 5. In conjunction with component analysis, the EC and Member States should review or clarify the requirement that the trial produce 'a benefit to the patient outweighing the risks or produce no risk at all'. It should allow a protocol to include non-therapeutic components (e.g. scans, chart checks, blood tests) of no benefit to the individual, provided they represent no more than minimal risk, are minimised and proportionate to the knowledge gained. 6. When national legislation implementing the Directive covers more than clinical drug trials, Member States should ensure it permits research with no therapeutic benefit for the individual, provided it poses them no more than minimal risk (for example observational studies, research using human tissue samples or health records, and pathophysiological research). 7. Researchers should document instances when non-therapeutic research has been unwisely prohibited by inappropriate implementation or extension of the Directive. 8. The EC and Member States should support ethical and legal research to develop guidelines for difficult risk comparisons. Ethics Committee Review 9. The EC and Member States should increase the resources available for Ethics Committees to secure members or advisors with specialist knowledge relevant to clinical trials with incapacitated patients. 10. The EC and Member States should develop centralised bodies, guidelines and records of precedent decisions for ethics committees to increase the efficiency, consistency and predictability of their decisions. Revocation of Consent 11. The EC and Member States should clarify the extent of a legal representative's power to revoke the individual's participation in a clinical trial with reference to the future analysis for research purposes of data or tissue already collected. Permitted Investigations 12. Ethics committees should ensure that they interpret the phrase 'research...directly related to a life-threatening or debilitating clinical condition' appropriately, and not too narrowly. The interpretation should permit research in non-neurological conditions accompanied by incapacity, research in settings where incapacity is the consequence of essential therapy, research that addresses the common complications of incapacitating conditions, and research to improve methods of supportive therapy. Legal Representatives for Proxy Consent 13. Further legal research should be undertaken to ascertain the definitions of 'legal representative' that apply in Member States. This could be used as a resource to ensure the lawfulness of international trials; for the basis of public debates and discussion papers discussing whether to broaden current definitions; and to analyse the extent to which current definitions cause problems for research about emergency and critical illness. Emergency and Critical Illness Research 14. Article 5(a) of the Directive should be construed purposively or amended if necessary (by extension, waiver or deferral) to permit and harmonise emergency research involving incapacitated persons where treatment must be commenced as a matter of urgency. 15. Member States should implement systems for legal representation that are compatible with critical illness research. Countries which ordinarily rely on court appointed representatives should check the system is making timely appointments. Countries which usually rely on family members to act as legal representatives should permit decisions to be made by other persons (unconnected with the research) when family members are too stressed to decide, or should waive or defer the consent requirement.