Source · Select Committees · Justice Committee
7th Report – Ending the cycle of reoffending – part one: rehabilitation in prisons
Justice Committee
HC 469
Published 14 November 2025
Recommendations
2
Deferred
Include measures to ensure rehabilitation is not compromised in the next prison capacity statement
Recommendation
In the next annual statement on prison capacity, the Government should set out not only how it intends to manage the demand and supply of prison places, but also the steps it will take to ensure that rehabilitation is not …
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Government Response Summary
The government partially accepts, but responds by detailing HMPPS commitments to comprehensive staff induction, ongoing training, and career development through a Workforce Planning Guide and Career Pathways framework, rather than committing to set out specific rehabilitation measures in the annual statement on prison capacity.
Ministry of Justice
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6
Deferred
Produce a comprehensive 15-year public workforce plan with targets to reduce prison staff vacancies.
Recommendation
The Government must produce a comprehensive, public workforce plan for the prison system (including the women’s and children’s estate) for the next fifteen years, modelled on the process used for the NHS Long Term Workforce Plan, with commencement of that …
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Government Response Summary
The government responds by acknowledging the recommendation for greater Governor involvement in recruitment and describes ongoing work to design an approach for this, detailing challenges with previous local recruitment pilots, completely deflecting from the recommendation to produce a comprehensive workforce plan.
Ministry of Justice
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9
Deferred
Set out clear plan to address £1.8bn prison maintenance backlog with detailed funding breakdown.
Recommendation
The Government must clearly set out how it intends to address the £1.8bn maintenance backlog using the funding set out by its Prison Capacity Strategy and Infrastructure Strategy. In response to this report, we expect the Government to update the …
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Government Response Summary
The government's response focuses on HMPPS's contract management practices, the new Procurement Act 2023, and initiatives to simplify procurement and engage SMEs and VCSEs, thus deflecting from the recommendation to detail how it will address the £1.8bn prison maintenance backlog.
Ministry of Justice
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11
Deferred
Implement recommendations to increase Governor autonomy, reduce turnover, and clarify rationale for parity.
Recommendation
The Government should update the Committee on the findings of its review into Governor autonomy, including whether it will implement the Lords Home Affairs and Justice Committee’s recommendations on staffing, budgeting, and regime design. It should also set out a …
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Government Response Summary
The government's response explains its decision to focus on measuring 'purposeful activity' for prisoners, detailing the rollout of a new Digital Prisons Service Activities and Appointments tool to improve data quality, thereby deflecting from the recommendation on Governor autonomy, turnover, and support.
Ministry of Justice
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14
Deferred
Set out plans to simplify HMPPS contract management and reduce governor burden.
Recommendation
In response to this report, the Government should provide the Committee with a clear and comprehensive overview of how HMPPS is managing its current contracts, including steps being taken to simplify procurement processes and improve contract flexibility. It should also …
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Government Response Summary
The government's response details measures in the Sentencing Bill to address the prison remand population and improve bail use, completely bypassing the recommendation on HMPPS's contract management and procurement processes.
Ministry of Justice
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15
Deferred
Introduce comprehensive contract management training and centralised advice for governors.
Recommendation
A substantial element of the role of a Prison Governor is contract management. The Government should provide comprehensive training on procurement and contract management to all public sector prison governors within 12 months. This should form an integral part of …
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Government Response Summary
The government's response focuses on remand prisoners' access to the prison regime and purposeful activity, completely ignoring the recommendation for specific training on procurement and contract management for governors and a new centralised advice unit.
Ministry of Justice
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20
Deferred
Publish full details and implementation plans for the earned progression scheme.
Recommendation
The Government should set out how it plans to implement the earned progression scheme and publish full details of this within six months. (Recommendation, Paragraph 90)
Government Response Summary
The government's response outlines ongoing efforts to strengthen prison education, including maximizing attendance, implementing Working Week prototypes, and improving quality and support services. It does not set out how it plans to implement the earned progression scheme or commit to publishing its details within six months.
Ministry of Justice
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22
Deferred
Review and update ROTL framework to improve consistent use and public understanding.
Recommendation
We welcome the Minister’s commitment to expanding the use of Release on temporary licence (ROTL). HMPPS should review and update its operational framework to ensure ROTL is used more consistently and proactively across the estate. The Ministry of Justice should …
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Government Response Summary
The government's response outlines its commitment to enabling prisoner access to higher education and states that the MoJ and DfE will review recommendations on student finance for prisoners, without addressing the recommendation to review and update the operational framework for Release on Temporary Licence (ROTL).
Ministry of Justice
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26
Deferred
Require Government to produce plan for all prisoners to access full regime within three years
Recommendation
The Ministry of Justice must consider the benefits of giving remand prisoners access to all parts of the regime, should they choose to participate. In the event that this is not currently viable due to the prioritisation of courses for …
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Government Response Summary
The government's response highlights existing healthcare and mental health interventions for women in prison, including a recent review and Mental Health Bill reforms, but does not address the general recommendation for all remand prisoners to access all parts of the regime or provide a 3-year plan for doing so.
Ministry of Justice
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27
Accepted in Part
Require formal report outlining prison rehabilitation's contribution to violence against women reduction target
Recommendation
The Government must outline how rehabilitation in the prisons, including for both convicted and remand prisoners, is going to contribute to the Government’s target of reducing of violence against women and girls by 50 per cent, with a formal report …
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Government Response Summary
The government partially accepts, outlining various existing and expanding rehabilitation programs aimed at reducing reoffending by perpetrators of violence against women and girls (VAWG). However, it does not explicitly commit to outlining *how* these contribute to the 50% VAWG reduction target with a formal report within six months, instead referencing a progress update on purposeful activity in April 2026.
Ministry of Justice
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28
Accepted
Prisons used as places of safety, despite Government aims to end the practice
Recommendation
We were shocked and appalled to hear that prisons are used as a place of safety. We acknowledge and welcome that the Government aims to end this practice in the Mental Health Bill. We request details of how this will …
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Government Response Summary
The government accepts the request, detailing that the Mental Health Bill will introduce a statutory 28-day time limit for hospital transfers from prisons and stop courts from temporarily detaining individuals with severe mental illness in prison as a ‘place of safety’.
Ministry of Justice
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30
Accepted
Require Government to develop action plan for improving youth estate conditions, increasing time out of cell
Recommendation
The Government must respond to this report with an action plan as to how it plans to manage current conditions across the youth estate. For Young Offender Institutions, this should include what impact the introduction of 85 PAVA has had …
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Government Response Summary
The government accepts the recommendation and has developed "roadmaps to effective practice," implemented in April 2025, to improve conditions in YOIs, focusing on safety, time out of cell, and purposeful activity. Information on PAVA's impact will be provided by September 2026.
Ministry of Justice
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31
Accepted in Part
Set statutory minimum for time out of cell in Young Offender Institutions, with data published
Recommendation
As well as making every effort to meet the statutory minimum of 15 hours for education, HMPPS must set a statutory minimum for time out of cell in Young Offender Institutions. As with adult prisons, this minimum must be monitored …
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Government Response Summary
The government partially accepts, committing to consider introducing a statutory minimum for time out of cell in legislation and assess its effectiveness, while noting the Youth Custody Service already works to an 8-hour daily expectation which is centrally monitored, though not consistently met across all sites.
Ministry of Justice
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33
Accepted in Part
Require Government to clarify scale and rationale for planned prison education cuts and their impact
Recommendation
We expect the Government to urgently clarify the scale and rationale for any planned cuts to prison education budgets. It must set out how it plans to ensure that all prisons retain the funding necessary to deliver core education provision. …
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Government Response Summary
The government clarifies the prison education budget has not been cut in cash terms but acknowledges a 20-25% reduction in core education delivery from October 2025 due to rising costs. They will use a revised funding formula, new contracts, and digital systems, and are developing an evaluation strategy, but do not commit to publishing an immediate impact assessment for the cuts.
Ministry of Justice
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35
Accepted in Part
Publish clear plan with funding to improve prison education participation and quality
Recommendation
The Government must publish a clear plan, with an associated funding allocation, to improve both participation and quality in prison education. This should include steps to address poor Ofsted outcomes, ensure that all prisoners—including those on remand—have access to meaningful …
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Government Response Summary
The government partially accepts, stating it is taking steps to improve participation and quality in prison education, including maximizing attendance, increasing purposeful activity, and implementing new roles and digital tools for quality. However, it will provide a funding update next year, as future funding depends on allocation decisions, and does not commit to publishing a single comprehensive plan with a funding allocation immediately.
Ministry of Justice
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37
Accepted
Publish updated Neurodiversity Action Plan detailing identification and support for prisoners
Recommendation
The Government must publish an update to the Neurodiversity Action Plan without further delay. It should include how they plan to systematically identify how many prisoners have neurodivergent needs, as well as how it aims to support them. (Recommendation, Paragraph …
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Government Response Summary
The government accepts the recommendation, committing to publish an update to the Neurodiversity Action Plan imminently. It also details new measures to identify neurodivergent needs, including a new screening tool introduced in October 2025, and mentions the rollout of Neurodiversity Support Manager posts across 124 prisons to provide support.
Ministry of Justice
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39
Deferred
Remove the six-year funding requirement to enable all prisoners to access higher education
Recommendation
Access to higher education should be based on rehabilitative potential, not sentence length. We repeat the recommendation of the previous Education Select Committee and encourage the Government to remove the six-year funding requirement to enable all prisoners to access higher …
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Government Response Summary
The government partially accepts, committing to reviewing the Justice and Education Select Committee’s recommendations on access to student finance for prisoners, including the six-year funding rule, to inform future policy decisions. It notes existing work with partners and charitable grants for some prisoners.
Ministry of Justice
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41
Accepted
Prioritise education in youth custody action plan and address operational delivery barriers
Recommendation
The current conditions in youth custody settings are deplorable, and it is shameful that access to education for children has deteriorated as part of this wider decline. As part of an action plan for youth custody, as recommended in paragraph …
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Government Response Summary
The government accepts the recommendation and is addressing failings in youth custody education through "Roadmaps to Effective Practice in Education." They plan to ensure individualised, trauma-informed learning supported by comprehensive multi-disciplinary plans to overcome operational barriers.
Ministry of Justice
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44
Accepted
Require Government to outline plans for upholding prison healthcare equivalence and integrating services
Recommendation
The Government must set out how it will ensure that the principle of equivalence in prison healthcare is upheld in practice. This should include a plan to address the operational barriers to healthcare delivery—such as staffing shortages, late receptions, escort …
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Government Response Summary
The government accepts the recommendation, referencing the National Partnership Agreement and the NHS 10-Year Health Plan as key to upholding healthcare equivalence. They are addressing operational barriers through continued collaboration, data collection on service delivery, and the re-procurement of integrated clinical digital systems by early 2026.
Ministry of Justice
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45
Accepted
Publish regular, transparent data on prison healthcare access and outcomes for accountability
Recommendation
NHS England, or its successor, should publish regular, transparent data on healthcare access and outcomes across the prison estate. This data should be used to monitor progress against the principle of equivalence and to hold both NHS England or its …
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Government Response Summary
The government accepted the recommendation, committing to ensuring equivalent healthcare standards and noting NHSE's re-procurement of digital systems by early 2026 to capture data on healthcare access and outcomes. NHS England will update the Committee on plans to publish new data by April 2026.
Ministry of Justice
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47
Accepted
Require Government to detail actions addressing complex health needs of women in custody
Recommendation
The Government should respond to this report setting out what action it is taking to address the complex health and wellbeing needs of the women it currently has in its custody. (Recommendation, Paragraph 212) 88
Government Response Summary
The government accepted the recommendation, setting out its ambition to reduce the female prison population and detailing actions such as existing specialized health services, recommendations from a November 2023 health review, new funding for safety projects, and reforms within the Mental Health Bill to support women with severe mental illness.
Ministry of Justice
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Conclusions (26)
1
Conclusion
Rejected
We recognise the Government’s efforts to increase transparency around prison capacity, and its action towards ending the capacity crisis. However, the evidence we received demonstrates that the current level of overcrowding, in combination with a high number of staff vacancies, is having a profound impact on the ability of prisons …
Government Response Summary
The government rejects expanding the Annual Statement on Prison Capacity to include rehabilitation measures, stating it would be beyond its remit. It highlights that much of the requested information is already published through other reports and officials are considering further accountability on purposeful activity.
3
Conclusion
Accepted
We heard concerns that recruitment and training for prison staff falls significantly short when compared to other public sector services. It is not right that promotions often come without proper training for their new role. This undermines both staff confidence and the quality of prison operations. (Conclusion, Paragraph 33)
Government Response Summary
The government agrees with the importance of staff training and outlines ongoing work through the Enable Programme to redesign training and develop capability packages for various roles. It notes this full national rollout is not feasible within 12 months and a new Prisons Training Oversight Function, whose board is not yet established, is responsible for curriculum development.
4
Conclusion
Deferred
Staff should never be promoted, even temporarily, without the proper training required to fulfil the duties of the role. As part of the Government’s work through ‘the Enable Programme’ it must ensure that, from prison officer to Governor, every member of prison staff receives training on recruitment, on promotion, and …
Government Response Summary
The government's response focuses on its existing practices for workforce data transparency and why it does not publish data on skilled worker visas, completely deflecting from the recommendation about mandatory training for staff upon recruitment and promotion.
5
Conclusion
Deferred
HMPPS must be transparent on its workforce data. Data must be captured and published on the vacancy rate for each prison staff role, how many of those roles have staff that are eligible to retire in the next five years, 81 and how many staff are on skilled worker visas. …
Government Response Summary
The government accepts the recommendation to publish a comprehensive workforce plan, stating the format and timing will be determined later, but does not address the specific request to publish granular workforce data on vacancy rates, retirement eligibility, or skilled worker visas.
7
Conclusion
Deferred
Governors must have the ultimate decision on the recruitment of staff who work in their prison. HMPPS must amend its recruitment process to ensure that all frontline staff, including prison officers, undergo a mandatory face-to-face interview process led by Governors or a member of the senior leadership team. (Recommendation, Paragraph …
Government Response Summary
The government's response focuses on current and future investment in prison estate maintenance, including specific funding amounts and how priorities are set, entirely deflecting from the recommendation about Governors having ultimate decision-making power in recruitment and mandatory face-to-face interviews.
8
Conclusion
Deferred
We are shocked by the dire living conditions that many prisoners are living in, and it is deeply concerning to hear that prisons may be in violation of human rights legislation. We accept that the Government recognises this and that it has invested a sizeable amount of funding in repairs …
Government Response Summary
The government's response discusses its existing framework for Governor empowerment (Free, Flex, Fixed) and ongoing review of Governor autonomy, noting the constraints of civil service guidelines, thereby deflecting from the recommendation concerning dire living conditions and the prison maintenance backlog.
10
Conclusion
Accepted
In the current climate of overcrowding, staffing pressures, and a crumbling prison estate, public sector prison Governors work under immense pressure to run their prisons as best as they can. It is clear that they are further constrained by the low level of autonomy they are awarded. It is promising …
Government Response Summary
The government fully accepts the recommendation, committing to provide all Prison Governors with practical training and support on procurement and contract management within 12 months. This includes introducing a 'Securing Best Value' module, increasing the Inclusive Repair Threshold in new Facilities Management contracts, and providing dedicated contract management support with full training rollout planned through 2026.
12
Conclusion
Deferred
The evidence we received shows that the current contracting and procurement system within HMPPS is inefficient. Poorly designed and inflexible contracts are limiting the ability of voluntary and specialist providers to deliver effective rehabilitation services. The system is not fit for purpose and risks undermining both prison management and rehabilitative …
Government Response Summary
The government's response describes the new 'Progression Model' and plans for tougher punishments for prisoner rule-breaking, stating a factsheet has already been published, completely deflecting from the recommendation about the inefficiency and inflexibility of HMPPS's contracting and procurement system.
13
Conclusion
Deferred
As the Prisons Minister said, contracts within HMPPS are complex and hard to understand. We are not convinced that HMPPS has a handle on the way it procures its services. Prison Governors are not contract managers and should not be seen or treated as such. (Conclusion, Paragraph 65)
Government Response Summary
The government's response addresses Release on Temporary Licence (ROTL) and its expansion, despite the recommendation focusing on HMPPS's procurement and contract management processes for prison governors.
16
Conclusion
Deferred
It is unacceptable that the statutory minimum for time out of cell is not being met, which means that prisoners either do not have access to basic needs, such as a shower or time in fresh air, or must choose between those or engaging in rehabilitative activities. Whilst we support …
Government Response Summary
The government's response details rehabilitation programs for perpetrators of domestic abuse and sexual offences (VAWG), but does not address the recommendation about ensuring all prisoners consistently meet the statutory minimum for time out of cell.
17
Conclusion
Deferred
HMPPS should formalise, standardise, and publish time out of cell data for every prison in England and Wales. It must closely monitor prisons that are failing to meet the statutory minimum and provide urgent support to enable compliance. Accurate and transparent reporting is essential to drive improvement and ensure accountability. …
Government Response Summary
The government's response outlines specific improvements, roadmaps, and frameworks for Young Offender Institutions (YOIs) to enhance safety and time out of room. It does not commit to formalising, standardising, or publicly publishing time out of cell data for every prison in England and Wales.
18
Conclusion
Acknowledged
We agree wholeheartedly with Lord Timpson that there is too much inconsistency across the prison estate. Purposeful activity is integral to supporting rehabilitation. It is therefore disappointing that it continues to be deprioritised by HMPPS amidst other pressures. We are sympathetic to the current constraints the Government is facing regarding …
Government Response Summary
The government commits to considering and assessing the effectiveness of introducing a statutory minimum for time out of room for children in legislation, while noting existing efforts and monitoring within the Youth Custody Service.
19
Conclusion
Deferred
The Sentencing Bill 2024–25 aims to move towards an ‘earned progression scheme’, where eligible prisoners could be released earlier. However, as the Bill is currently drafted, it is unclear as to how this scheme will work in practice, especially as to whether as the Independent Sentencing Review set out, it …
Government Response Summary
The government's response details changes to the prison education budget, including anticipated reductions in delivery hours, and efforts to maintain quality and efficiency in education. It does not address the recommendation's concerns about the viability and implementation of the 'earned progression scheme'.
21
Conclusion
Deferred
Release on temporary licence (ROTL) is a proven and effective tool for rehabilitation, helping prisoners maintain family ties, gain employment, and reintegrate into the community. Despite its strong track record, with a 99.8 per cent compliance rate, it remains inconsistently applied and underutilised. (Conclusion, Paragraph 95)
Government Response Summary
The government's response details its comprehensive approach to supporting neurodiverse prisoners, including an upcoming update to the Neurodiversity Action Plan, new screening tools, and the rollout of Neurodiversity Support Managers. It does not address the recommendation about the inconsistent application and underutilisation of Release on Temporary Licence (ROTL).
23
Conclusion
Accepted
Many remand prisoners are convicted but released straight from court without any rehabilitative support. This means they are more likely to reoffend. We welcome impending change as part of the Sentencing Bill; however, we are concerned this will not go far enough to slow the growth of the remand population. …
Government Response Summary
The Youth Custody Service (YCS) is implementing 'Roadmaps to Effective Practice in Education,' aiming to reduce classroom sizes from eight to four children, introduce more vocational learning, and enhance partnerships with community education providers for continuity on release.
24
Conclusion
Deferred
Custodial remand must only be used for those that present the greatest level of risk to the public. The Ministry of Justice must respond to this report with what further action it will be taking to reduce the use of adult custodial remand. (Recommendation, Paragraph 102)
Government Response Summary
The government's response addresses healthcare provision for people in prison, outlining commitments to equivalent standards, data collection efforts, and future digital system re-procurement, but does not detail actions to reduce the use of adult custodial remand.
25
Conclusion
Deferred
It is right that the remand population should not be mandated to participate in the regime, as they have not been found guilty. However, due to the length of time remand prisoners are in custody for due to the court backlogs, it is not right that they are spending their …
Government Response Summary
The government's response focuses on ensuring equivalent healthcare access for prisoners, detailing existing agreements, digital system upgrades, and plans to publish healthcare data by April 2026, rather than addressing the broader issue of providing more options for remand prisoners beyond healthcare.
29
Conclusion
Accepted
The Youth Custody Service, and in particular Young Offender Institutions, is clearly not working for children. Children should not be spending up to 23 hours a day in cell due to the failure of HMPPS to manage behaviour effectively. It is disappointing that the only action the Government has taken …
Government Response Summary
The government accepts the criticism, stating they have developed and implemented comprehensive, site-specific 'roadmaps to effective practice' from April 2025 to address concerns in YOIs. They commit to considering a statutory minimum for time out of room and are already working towards an 8-hour daily expectation.
32
Conclusion
Accepted in Part
We are alarmed by reports of significant real-term cuts to prison education budgets, with some prisons facing reductions of up to 50 per cent. As this report makes clear, prison education is already underfunded when compared to provision in the community, and such cuts risk undermining efforts to reduce reoffending. …
Government Response Summary
The government partially accepts, clarifying the national prison education budget has not been cut in cash terms but acknowledges real-term reductions in delivery hours (20-25% from October 2025) due to rising costs. It details a revised funding formula, new education contracts, and digital systems to manage the impact and ensure quality.
34
Conclusion
Accepted in Part
It is unacceptable that 50 per cent of prisoners are not involved in prison education, training or work, despite the high level of need across the adult estate. Even for those who do access education, the quality remains poor, with 75 per cent of prisons inspected by Ofsted in 2024/25 …
Government Response Summary
The government partially accepts the concerns, affirming education's importance and outlining steps to strengthen provision. These include maximising attendance, increasing purposeful activity through "Working Week prototypes," and introducing measures like new leadership roles and neurodiversity support managers to improve education quality, working with Ofsted on a new framework for June 2026.
36
Conclusion
Accepted
It is unclear how the Government plans to support those with neurodivergent needs in the criminal justice system without having consistent and reliable data on how many neurodivergent prisoners there are. Furthermore, it is disappointing that those with neurodivergent needs, who require targeted 86 educational support, are being let down …
Government Response Summary
The government has committed to publishing an update to the Cross-Government Neurodiversity Action Plan, introduced a new Additional Learning Needs tool from October 2025, and rolled out Neurodiversity Support Manager roles across 124 prisons to improve support for neurodivergent individuals.
38
Conclusion
Deferred
Evidence shows that prisoners who participate in higher education are 20 per cent less likely to reoffend and commit 30 per cent fewer reoffences in the year following release. Reforming the six-year funding rule would support long-term prisoners to develop skills, contribute positively to prison life, and reduce their risk …
Government Response Summary
The government partially accepts, committing to review the Justice and Education Select Committee’s recommendations on access to student finance for prisoners, including the six-year funding rule, to inform future policy decisions. It highlights existing provisions through partners and charitable grants.
40
Conclusion
Accepted
Article 28 of the United Nations Convention on the Rights of the Child affirms that all children have the right to education, including those in detention. Yet Young Offender Institutions are routinely failing to meet the statutory minimum of 15 hours of education per week—a failure that appears to be …
Government Response Summary
The government accepts the findings, acknowledging failings in meeting education minimums in YOIs. It is addressing these through 'Roadmaps to Effective Practice in Education' and plans to vary existing seven-year contracts to drive improvements and support a comprehensive, individualised learning journey for children.
42
Conclusion
Acknowledged
Prison libraries play a vital role in supporting rehabilitation by providing an alternative educational space for prisoners that fosters literacy and reading. However, access to these services is increasingly constrained by issues across the estate, and an unsustainable commissioning model. 87 Without recognition and action from the Government, prisons risk …
Government Response Summary
The government acknowledges that increased costs mean reductions in core education delivery hours (20-25% by October 2025) are necessary, but is implementing a revised funding formula, new education contracts, and digital systems to protect quality and evaluate future delivery plans, without directly committing to preventing the loss of prison library services.
43
Conclusion
Accepted
Given the acute needs of those in prison, particularly regarding mental health, it is imperative that prisoners have access to good health and wellbeing services to assist them in properly engaging with rehabilitative programmes. However, despite the principle of equivalence, prisoners are not receiving healthcare on a par with the …
Government Response Summary
The government accepts the principle of healthcare equivalence in prisons, committing to the National Partnership Agreement and leveraging the NHS 10 Year Health Plan. They are undertaking specific activities including data capture exercises and re-procuring integrated clinical digital systems in early 2026 to improve healthcare provision.
46
Conclusion
Accepted
Women in prison often have acute and complex health needs, yet the system is failing to meet even their most basic requirements. We acknowledge the Government’s ambition to reduce the population in the female prison estate, and that change is expected following the work of the Women’s Justice Board. But, …
Government Response Summary
The government acknowledged that many women in prison have complex needs, outlining its ambition to reduce the female prison population and detailing existing services, a recent health review, and new Mental Health Bill reforms aimed at improving support and transfers to hospital.