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.
Summary of key 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.
- 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.
- 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.
- 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.
- Decision-making framework for probation: HMPPS should introduce a clear framework for decision-making for probation practitioners.
- 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.
- Regime during 56-day recall: HMPPS should issue guidance to prisons on the regime which should
be in place during a 56-day recall.