White paper setting out detailed proposals to establish a new statutory framework to ensure that those with severe mental disorder get care and treatment to meet their needs and, secondly, that the public is protected from those who may, occasionally, pose a threat to their safety. The proposed changes will affect: local and health authorities; service providers in the statutory, independent and voluntary sectors; and people with mental disorders and their carers. Part 1 of the paper presents the legal framework, and Part 2, in a separate booklet, looks at high risk patients.