Independent review

Prison Capacity Review

Independent Prison Capacity Review: final report

Completed

Dame Anne Owers · Published 5 August 2025 · Commissioned by Ministry of Justice Justice & Legal

Independent review commissioned by the Ministry of Justice in February 2025 and chaired by Dame Anne Owers, former Chief Inspector of Prisons, to examine the causes, impact and governance of the 2022-24 prison capacity crisis in England and Wales. The review makes 5 recommendations to help future governments shift from crisis management to strategic and systemic improvement, covering a 10-year probation strategy, an independent advisory body, HMPPS Board evaluation, community service design, and reinvigorating Integrated Offender Management. The government accepted the majority of recommendations in principle in December 2025.

Report PDF Government response

Government Response

The Government responded to Dame Anne Owers' Independent Prison Capacity Review by written ministerial statement on 9 December 2025 (HCWS1139 in the Commons, made by the Deputy Prime Minister and Lord Chancellor David Lammy; HLWS1138 in the Lords). The Government welcomed the Review's findings and accepted in principle the majority of its recommendations, framing implementation within wider criminal justice reform including the Sentencing Bill and continued expansion of prison places.

9 December 2025

Recommendations

Recommendation 1

Ministry of Justice Accepted in Principle

I recommend that there should be a published ten-year strategy for developing capacity within probation and community services.

Recommendation 2

Ministry of Justice Accepted in Principle

I recommend that there should be an independent advisory body to provide advice and external validation of the capacity strategies and challenges in both prisons and probation, and in particular the impact of any proposed changes in the criminal justice system.

Recommendation 3

HM Prison and Probation Service (HMPPS) Board Accepted in Principle

I recommend that the HMPPS Board should be mandated to carry out an evaluation of the prison service, in consultation with the Chief Inspector of Prisons. It should also monitor and report on progress against the 10-year prison capacity strategy and the proposed strategy for probation and community capacity.

Recommendation 4

Ministry of Justice / HM Inspectorate of Probation Accepted in Principle

I recommend that both the Chief Inspector of Probation and the third sector should be involved in discussing the design, as well as the delivery, of community services. This should include the engagement and resourcing of essential non-criminal justice support such as addiction, health, housing, and employment services.

Recommendation 5

Ministry of Justice (Integrated Offender Management) Accepted in Principle

I recommend that the IOM model should be reinvigorated, properly funded, and rolled out in a consistent way as a model for cross-agency work.

No recommendations with this response.