Rising rates of recall: What are the solutions?

The power to recall someone to prison plays an important role in protecting the public, but the current scale of recalls is neither sustainable nor effective. Rising recall rates is putting further pressure on an already overcrowded prison system and raises serious questions about whether recall is being used proportionately and effectively. Addressing this must be a core part of any efforts to reduce prison overcrowding.

Our report ‘A Proportionate recall system’ (August 2026), finds that the number of people recalled to custody has increased exponentially over recent years. Since 2016/17, recalls have risen by 136%, despite the number of people released falling by over a fifth. Our analysis also shows that four in five recalls in 2025/26 did not relate to people who were facing a charge for further offending, but for reasons such as a failure to reside at a specified address or to attend probation meetings. This means that almost 10,000 beds are occupied by people recalled despite not facing a further charge – compared to only 5,000 beds being freed up by the introduction of the Earned Progression model in Autumn 2026.

We would like the Government to use its sentencing and recall reforms to ensure people leaving prison receive the support they need to succeed in the community, with recall used as a last resort. Read more to discover our analysis and key recommendations.

Key statistics:

• Nine out of every ten prison beds freed by people being released were filled by someone recalled to custody in 2025/26.
• We estimate that the government are spending £750 million a year on recalls, with £590 million of this spent on people not facing new charges.  
• More than 51,000 people were sent back to prison following recall last year, compared to more than 47,000 following sentencing.
• There are currently 9,900 in prison who were recalled for reasons other than facing further charges
• Four in five recalls in 2025/26 did not relate to people facing a charge for further offending, but for reasons such as a failure to reside at a specified address or to attend probation meetings – further offending was cited in just 21% of cases. 

Recommendations:

There are six steps that should be taken immediately to ensure that fewer people are recalled – not by setting arbitrary targets, but by building a system where fewer people leave prison without the support they need to avoid recall.

1. Referrals to relevant services: HM Prisons and Probation Service (HMPPS) should ensure probation officers are given a clear target to make referrals to all relevant services twelve weeks before a person is released.
2. Prison-leaver homelessness: The Ministry of Justice (MoJ) and Ministry of Housing, Communities, and Local Government should set out a joint plan to meet their target of halving the proportion of people leaving prison homeless this Parliament.
3. People at higher risk of reoffending: Along with establishing risk of further offending, HMPPS should assess individuals’ risk of being recalled to custody, and commission tailored support for those considered to be at highest risk.
4. Decision-making framework for probation: HMPPS should introduce a clear framework for decision-making for probation practitioners.
5. Minor breaches of licence: HMPPS should set out a clear ladder of interventions for people who commit minor breaches of their licence, with recall used as a last resort or in cases of further offending.
6. Regime during 56-day recall: HMPPS should issue guidance to prisons on the regime which should
   be in place during a 56-day recall.

About Nacro

At Nacro, we see people’s future whatever the past. That’s why our housing, education, justice and health and wellbeing services work alongside people to give them the support and skills they need to succeed. It’s also why we fight for their voices to be heard and campaign together to create lasting change.

We deliver services across the criminal justice system, including personal wellbeing services and accommodation advice and support for people under probation supervision, the national Community Accommodation Service Tier 2 on behalf of the Ministry of Justice, housing prison leavers and those bailed from court in need of an address.

We also provide substance misuse services for both people leaving prison and others across the country, including in Yorkshire and the Humber, and the West Midlands. Throughout this report, we have drawn on the experience and expertise of these services, and are grateful to them for their support.

Find out more about our services