PARLIAMENTARY DEBATE
Recalled Offenders: Sentencing Limits - 15 May 2025 (Commons/Commons Chamber)

(Urgent Question): To ask the Secretary of State for Justice if she will make a statement on the public safety implications of the Government’s plan to set a 28-day limit on prison sentences for recalled offenders.

The Lord Chancellor laid a written ministerial statement yesterday, the background to which are the changes around fixed-term recall in the light of the prison capacity challenges that the Government face. When we were elected almost a year ago, we inherited a prison system on the brink of collapse. Although we took immediate action to prevent the catastrophe, prisons continue to be perilously close to filling up entirely. Last December we published a long-term building strategy, setting out our aim to open up 14,000 prison places by 2031. That is the largest expansion of the prison estate since the Victorians. We have already committed £2.3 billion to prison expansion, and since taking office we have delivered 2,400 new places.

We also commissioned the independent sentencing review, which will report shortly. The sentencing review will hopefully offer us a path to ending the capacity crisis in our prisons for good, but the impact of sentencing reforms will not be felt before next spring. On our current trajectory, we will hit zero capacity in our prisons in November—we cannot allow that to happen. That is why we have announced our intention to lay a fixed-term recall statutory instrument that will mean that those serving sentences of between one and four years can only be returned to prison for a fixed 28-day period. The measure builds on previous legislation, introduced by the last Government, that mandated 14-day recalls for those serving sentences of under a year.

To be clear, higher-risk offenders have been exempted from that change. If further information relating to an offender’s risk is received after they have been recalled which means they are no longer considered suitable for fixed-term recall, they may be detained for longer on a standard recall if that is assessed as necessary.

I call the shadow Secretary of State.

“Sorry” seems to be the hardest word today. I see that the Justice Secretary has still not come to Parliament to defend her policy. Yesterday she deliberately avoided scrutiny in this House, because she knows that this decision is wildly unpopular and risks the safety of the public. To govern is to choose. There are 10,500 foreign criminals in our jails and 17,000 people in prison awaiting trial. Combined, those two groups make up roughly a third of the prison population.

The sensible step forward would obviously be to introduce emergency measures to expedite deportations and get the courts sitting around the clock. If the Justice Secretary chose to do that, we would support her, but so far she has not. She has refused to take the judiciary up on its offer of extra court sitting days. It is not uncommon for as many as half the courts at the Old Bailey to sit empty on any given day. Instead, she has decided to let out early criminals who reoffend or breach their licence. There is now no punishment or deterrent for criminals who immediately reoffend or cheat the system. The Justice Secretary says these people will be “in prison outside of prison”—I am sure that hardened criminals will be quaking in their boots at that farcical doublespeak.

There is no two ways about it: this decision has put the public in danger and victims in jeopardy. The Domestic Abuse Commissioner, Nicole Jacobs, has said that she

“cannot stress enough the lack of consideration for victims’ safety and how many lives are being put in danger”.

Is the Justice Secretary or her Minister really telling domestic abuse victims that their abusers will be back on the streets in just 28 days if they breach their licence, and that nobody will even check with the Parole Board? Can the Minister explain to the House who is exempted from the scheme, because right now confusion reigns? Yesterday the Justice Secretary gave the impression that no domestic abusers or sexual offenders would be eligible for her scheme, but her Department has since said that it will include “many” but not all.

The written ministerial statement laid yesterday deliberately concealed the answer to the question of which criminals will be excluded, so will the Minister take this opportunity to tell the House? If he does not know the answer, will he commit to publishing it by the end of the day? Lastly, can he confirm to the House that anyone in breach of a restraining order will be ineligible for a fixed-term recall, because anything else would be an insult to the victims?

Since taking office, we have deported over 1,800 foreign national offenders in custody, securing their early removal from our prisons—15% higher than in the previous 12 months. We have just announced 110,000 court sitting days, which is the highest level for a very long time.

To answer the right hon. Gentleman’s specific questions, we will exclude anyone serving more than four years in prison; all those convicted of a terrorist or national security crime; and those who are subject to higher levels of risk management by multiple agencies where the police and the Prison and Probation Service work together, which includes certain sexual and violent offenders, including many domestic abusers. If there are ongoing concerns about the risk posed by an offender who is due to be released after the 28-day period, frontline workers can apply additional licence conditions to manage that. If further information related to an offender’s risk is received after they have been recalled, meaning that they are no longer considered suitable for fixed-term recall, they may be detained for longer on a standard recall, if that is assessed as necessary by the HMPPS public protection team.

We know how important it is that victims are kept informed. All those eligible for the victim contact scheme will be notified about an offender’s release and will have the opportunity to make representations about victim-related licence conditions. Although there are certain exclusions for serious offenders, changing recalls for fixed-term offenders is necessary. It would be even worse to run out of space, which at this stage would mean the managed breakdown of the criminal justice system. The Lord Chancellor said rightly that that would be unconscionable. No Government should leave that challenge as a legacy to their successors, as the right hon. Gentleman’s Government did.

I call the Chair of the Justice Committee.

We should never forget that the crisis in our prisons that the current Lord Chancellor is seeking to resolve was created over 14 years by the irresponsible mismanagement of the previous Government. Although today’s announcement makes sense in the short term, subject to safeguards, we must consider the whole way in which recall has developed, from 100 cases 30 years ago to more than 13,000 today—over 15% of the prison population—with less than 30% of recalls being for further offences. Will the Government consider the way in which recall operates? Without the freeing up of space in prisons, rehabilitation is impossible, overcrowding reaches ridiculous levels and we run out of space altogether.

My hon. Friend is right: the recall population has doubled in just seven years and we need to address that. The independent sentencing review will report shortly, and I hope that there will be recommendations to which we can respond in that report.

I call the Liberal Democrat spokesperson.

There is no doubt that the Conservatives plunged our prisons into crisis. [Interruption.] They chunter from a sedentary position, but what else would they call it? It is clear that the Government have failed to step up and tackle the sheer scale of the problem. Across the country, victims and survivors are worried about what this will mean for them. If there were a specific domestic abuse offence, dangerous offenders could be excluded from early release, but the Government have taken no action at all since the Liberal Democrats raised that solution with them last autumn. Will the Minister finally commit to giving victims and survivors the protections that they deserve by creating new domestic abuse aggravated offences, and will he go further to protect our communities by introducing a clear plan to reduce reoffending, which is the only way to solve prison crowding once and for all? If the Minister will not listen to me, will he listen to the Domestic Abuse Commissioner, who has just warned that lives are now at risk?

The hon. Member will know that his colleague, the hon. Member for Chichester (Jess Brown-Fuller), is working closely with the Under-Secretary of State for Justice, my hon. Friend the Member for Pontypridd (Alex Davies-Jones), on getting things right for victims. That is something we take very seriously, and it needs to be done properly, with victims, in order to get it right. I hope that the independent sentencing review report will contain things that give us confidence about moving forward and about the way we work with victims.

The Conservatives appear to have forgotten quite a number of things, and I think it might be a good time to remind them. Former Justice Secretary Chris Grayling’s disastrous partial privatisation of the Probation Service was overturned in 2019 after the number of serious offences—including rape and murder—committed by those on probation skyrocketed. Does the Minister agree that we are seeing the long tail of Conservative failure, which overshadows everything that we must do now?

My hon. Friend is right to remind the House of the chaos and turmoil that the Conservatives applied to our very important Probation Service when they were in government. We are putting probation back together. We have already brought 1,000 new probation officers on board, and we are committed to a further 1,300 in the coming year.

Mr Speaker, to pick up on your statement, for which I think the whole House will be grateful, I am sure that my Committee will take up your clear urging for us to look at the issue with regard to the ministerial code.

I know the Minister will agree that domestic abuse cannot be an issue to which lip service is paid in this House and then policies seem to neglect. I make no apologies for returning to the views of the Domestic Abuse Commissioner for England and Wales, who issued a severe warning to the Lord Chancellor yesterday, commenting:

“I cannot stress the lack of consideration for victims’ safety and how many lives are being put in danger because of this proposed change.”

Why does the Minister think the commissioner, with all her expertise and knowledge, has arrived at that conclusion?

We have great respect for the Victims’ Commissioner. What would be letting down victims is if we allowed the prison system to get to a place where we cannot lock prisoners up—that would be unconscionable. That is why it is important that we have taken these steps. I remind the hon. Member that we are excluding those prisoners who pose the most risk and are managed under MAPPA—multi-agency public protection arrangements—levels 2 and 3. That means various agencies working together. The exclusion also includes all those convicted of terrorist and national security crimes. Proper action can be taken where agencies identify risk to move from a fixed-term recall to a standard recall.

Will the Minister tell me whether I am correct that when we entered office, there were fewer than 100 spaces left in our prisons—a terrible failure from the Conservative party? Does he agree that instead of empty words and false promises to build prisons, this Government are getting on with the job?

My hon. Friend is quite right. We faced a real emergency when we came into office. It is unconscionable that any Government would do that to an incoming Government. The previous Labour Government added 28,000 prison places in 13 years. In their 14 years, the Conservative Government managed to add 500. In 10 months we have already delivered 2,400 prison places.

Has the Ministry of Justice conducted an impact assessment for this policy? If so, will it release that to the House as soon as possible? If not, can the Lord Chancellor confirm how she knows what impact the policy will have on victims and the wider public?

We are always alert to the need to assess how policies apply to the wider public and victims. That is important.

This situation is one of the most egregious examples of state failure and a consequence of the worst chaos and incompetence of the last 14 years. The Lord Chancellor has been clear that, given current levels of demand, we cannot build our way out of this crisis. Does the Minister agree that we have to be honest and do something different to ensure that we never again run out of prison places, including improving the existing prison estate and investing in the Probation Service, so that we can reduce reoffending and thereby reduce the pressure on prison places?

We are improving the prison estate and investing in probation, and there will also be actions coming forward from the independent sentencing review. I agree with everything my hon. Friend said.

Victims of domestic abuse, sexual abuse and stalking are now in fear, particularly those who live in rural areas, where tagging does not always work. What particular measures will the Minister put in place to support victims in rural areas who are distant from probation officers and the police?

Anybody subject to a fixed-term recall will be recalled for 28 days, and if their risk is assessed as greater, they will be transferred to a standard recall. The reality is that anybody affected by this has already served their time in prison; they are on licence, being properly monitored and effectively managed by the Probation Service.

The prison capacity crisis has been years in the making. Does the Minister welcome the news that Wayland Prison in Norfolk has been granted planning permission just this week, by Breckland council’s planning committee, for a 25% increase in capacity, with 247 extra places? That application alone represents 50% of the total places created under the last Government in 14 years. Does he agree that this is further evidence of the Government delivering after years of inaction?

My hon. Friend is exactly right to point to that planning application going forward. It is excellent news, and shows that we are cracking on with the job.

Although the Government should have volunteered to defend their position, I accept, having held ministerial responsibility for the prison estate, that they had no good options at this point. Does the Minister accept that the problem with what he is choosing to do is that the return to prison for breach of important licence conditions is there to be a deterrent, and if we reduce that deterrent, we run the risk of more people breaching licence conditions, which would make the overcrowding problem worse? If he chooses that path, will he consider increasing the deterrent effect by ensuring that, following a 28-day return to prison, there are other restrictions on a prisoner’s freedom, such as electronic tagging?

I certainly hope that all those things will be looked at by the independent sentencing review. The mandating of the 14-day fixed-term release was a measure taken by the previous Government. We are extending that to 28 days for sentences of up to four years because of the situation that we face, to ensure that we do not run out of prison places in the interim.

Like me, many residents across Filton and Bradly Stoke were rightly appalled last summer to discover the real situation left behind by the Conservative party. When it comes to prisons, does the Minister agree that this is an opportunity for the Conservative party to apologise?

My hon. Friend makes a good point, and the House will have heard it.

The Minister and the Secretary of State have often used the word “emergency” to describe the state of the prison population, and I have asked the Secretary of State how long it will take to deport all the foreign criminals clogging up our jails. This is a moment for the Secretary of State to say, “Yes, this is an emergency,” and to deport the lot of them, freeing up about 10,000 places, which would help overcome this crisis.

We have deported more foreign national offenders in 12 months than the last Government did in the previous 12 months, and we are continuing to work hard with the Home Office to deport foreign national offenders. We will never be able to do that on the scale necessary to address the challenges that we face in our prisons at this time.

On a recent visit to Featherstone prison near Wolverhampton, I came across several prisoners who had been recalled, and who were waiting up to a year to have their cases progressed. Does the Minister agree that limiting the recall sentence, making greater use of technology to punish offenders in the community, and making the Probation Service more effective will result in better rehabilitation of prisoners, reduce reoffending, and ease the prison overcrowding caused by the previous Government?

My hon. Friend points out the actions that we must take to address the challenges that we face in the system, and to make the system work better for victims and protect the public.

Many domestic abusers will, given their nature, welcome the opportunity to give another twist of the knife at the cost of a mere 28 days. Has the Minister just presented them with a practical opportunity?

I have carefully gone through the exclusions from this measure, and emphasised the importance of good professional bodies continuing to apply proper risk assessments. When risk assessments say that a standard recall is more appropriate than a fixed-term recall, that will happen.

It is a bit rich for Conservative Members to be critical when they left the criminal justice system in total meltdown. Does my hon. Friend agree that tagging is an important resource for protecting the public from criminals? Perhaps he saw the Channel 4 programme “Dispatches”, which showed that the contract given to Serco by the Conservative party was totally and utterly failing. Does he have confidence in Serco to deliver that contract, and if not, will he remove it, and bring that service back under public control?

It is clear that tagging technology has huge potential. A recent study has shown a 20% reduction in reoffending by offenders wearing curfew tags, but my hon. Friend is right to draw attention to concerns about the contract. Serco’s performance is improving, but it is still not acceptable. The reporting in the “Dispatches” programme was from last year, when we knew that there were serious issues, and we issued financial penalties to Serco, which was given the contract by the previous Government. If Serco’s performance drops again, all options will remain on the table.

This announcement is a further illustration of why this House should legislate to remove all impediments to the deportation of foreign national offenders. In his reply to the shadow Justice Secretary, the Minister said that victims who are affected by this policy should be kept informed about release, yet he refused to say whether the Department has conducted an impact assessment. What new information is he today willing to commit to publishing each month, so that victims are indeed kept informed?

Victims absolutely need to be kept informed, and we continue to work with victims’ groups and the Victims’ Commissioner to ensure that they are.

In separate cases, two families in my constituency lost loved ones when they were murdered by offenders who were out on remand but should never have been. Will the Minister meet me and, if they wish, both families, so that they can have some assurance that lessons have been learned from these cases, and so that other families are not placed in the same horrendous situation?

I am very sorry to hear about the cases mentioned by my hon. Friend. I am happy to meet him to take the matter further.

The Victims’ Commissioner has warned that freeing prisoners early who have been shown to pose a reoffending risk to the public will

“place victims and the wider public at an unnecessary risk of harm.”

The Domestic Abuse Commissioner has said that it is “simply unacceptable”. What discussions did the Government have with those two commissioners before making the announcement?

We speak to the Victims’ Commissioner regularly; the Under-Secretary of State for Justice, my hon. Friend the Member for Pontypridd (Alex Davies-Jones), is speaking to them later today.

The Justice Secretary could have chosen to deport more of the thousands of offenders in our jails, maxed out court sitting days, repurposed buildings or procured temporary facilities to hold offenders. Why has she instead chosen to release serious offenders, including domestic abusers, from jail early, with no consideration for the victims?

This is not about releasing people from prison earlier.

Yes, it is.

No, it is not. This is about people who have already served their sentence in prison; they are out in the community. If they breach a condition of their licence, they are returned to prison. The hon. Gentleman might as well ask why the Government he supported did not take any of the measures that he mentions. Our Government inherited the mess that his Government left us, and we are taking decisions to address the unconscionable threat of having a prison system that is not able to lock up dangerous people.

Ministers seem to have been deliberately vague about the number of domestic abuse offenders who will be eligible for release, and the breadth of their offences. Given how big the announcement is, the Government and the Department will have done a lot of work looking at who will be eligible. Will the Minister set out to the House the exact number of domestic abuse offenders who will be eligible for this scheme?

I hear the right hon. Gentleman’s question, and I will write to him.

The hon. Gentleman will be aware that the Victims and Courts Bill is about to go through Parliament, and that is the sort of issue that we will look at during the Bill’s passage.

One of the reasons why our prisons are so full is that we have more than 10,000 foreign nationals in them. What steps is the Minister taking to deport them?

I say gently that we have deported more foreign nationals in the first year on our watch than the previous Government did in the years on their watch. He is right that we have to roll up our sleeves and continue to get on with the job.

The Minister has been slightly equivocal in answering this question, which I have asked on two previous occasions; third time lucky! Prior to announcing this policy change yesterday, did the Government meet and consult the Domestic Abuse Commissioner about it—yes or no?

The commissioner has been spoken to by the team. To be clear, the impact assessment will be published when we come to consider the statutory instrument.

The new measures announced by the Justice Secretary suggest that the Government have learned nothing from the furore and loss of public confidence that followed last year’s early release debacle. That same Justice Secretary, along with the Victims Minister, the hon. Member for Pontypridd (Alex Davies-Jones), who is in her place, signed the protest letter that led to the convicted child rapist Fabian Henry being removed from a deportation flight. The Prime Minister signed that letter, too. Why do the Justice Secretary and her Ministers appear to have such scant regard for the impact that their management of prison releases will have on the victims of crimes? When will she implement measures that act as a deterrent to recidivism, rather than as a minor inconvenience to the continuation of a criminal career?

We are committed to getting this right. The early release scheme that the previous Government put in place did not have the same exceptions as our early release scheme did for the sort of offenders that the hon. Gentleman draws attention to, but these matters are very difficult. The most important thing is ensuring that we have a criminal justice system that works. We need to be able to lock up dangerous people, and those who do really bad things. When we came into government, the situation was that we might not be able to maintain that ability. We have had to take actions that we would far rather not take in order to keep the system going.

The Minister is a very decent person, and he and I have been friends for many years, but I must ask this question, which I hope I can put in the way that I wish to. I really struggle to understand the rationale behind allowing a criminal to consider their options and work out whether what they intend to do is worth an additional 28 days in jail, or allowing a person to weigh up whether breaking a restraining or non-molestation order is worth a month in prison. Criminals need to fear that if they break the law again, it will be worse for them. How do the Minister and the Department think that the policy will disincentivise repeat offending?

I have made clear the exceptions that apply to this tight, fixed-term recall alteration. The management of people in the community will be risk-assessed, as always. If the view is that a different approach needs to be taken, it will be taken.