A proportionate recall system
A new (26 August 2026) report from the social justice charity Nacro “A Proportionate Recall System” presents the exceptional cost to the justice system caused by prison recalls, and proposes an approach that prioritises strengthening efforts to reduce reoffending and improve outcomes for prison leavers, therefore reducing the burden that recall presents for the capacity crisis in prisons.
Rising recall rates
Nacro argues that while the power to recall someone to prison plays an important role in protecting the public, the current scale of recalls is neither sustainable nor effective. It says that 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.
The report shows 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. There are currently 9,900 in prison who were recalled for reasons other than facing further charges. While a number of this group may pose a risk to the community, action to create a more proportionate system would free up capacity in the prison estate, and is as important as the ‘earned progression’ system that is expected to free up 5,000 beds over the next nine months.
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
The charity sets out six steps which says 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.
Thanks to Andy Aitchison for kind permission to use the header image in this post. You can see Andy’s work here
