The publication of the Independent Sentencing Review (ISR) marks a significant step forward in addressing the ongoing crisis of prison overcrowding. Commissioned in response to growing concerns about the sustainability of our prison estate, the review aims to ensure that we never again reach a point where the number of people in custody exceeds the system’s capacity.
But its significance goes beyond prison numbers; the review sets out a series of evidence-based recommendations that, if implemented, have the potential to drive meaningful change across the justice system – reducing reoffending, and ultimately preventing more people from becoming victims of crime.
As a frontline organisation delivering services across the criminal justice system, Catch22’s submission to the Review was grounded in our direct experience supporting individuals in custody and on probation – and in our belief that the justice system must both protect the public and provide people with the opportunity to change.
We welcome many of the review’s proposals, particularly its focus on expanding community-based alternatives to custody, reforming the recall system, and utilising technology to improve rehabilitation and reduce pressure on frontline services. However, the success of these proposals depends on their implementation and crucially, on sustained investment in both statutory and voluntary sector support.
In this response, we outline a number of areas of the review that we strongly support, as well as those that require further attention to ensure we create a justice system that is fair, effective, and centred on both public safety and long-term rehabilitation.
Key areas of focus – Recall, Community Sentencing, and Earned Progression
Recall
What the report recommends: “Introduce a new model for recall for those serving standard determinate sentences, with stricter criteria and thresholds”
We’ve consistently raised concerns about the overuse of recalls – particularly fixed-term recalls (FTR) – so we’re pleased to see that the review acknowledges the dramatic rise in the recall population and the significant problems this poses. The review proposes a radical reform of the recall system by introducing a new 56-days FTR to replace the current recall option. This is a reform we broadly welcome, with some notes of caution.
- FTR – We strongly agree with the review’s assessment that fixed-term recalls “are disruptive for offenders and do not provide enough time for either the offender to address their risky behaviours in custody or for further risk reduction measures to be implemented upon their re-release/return to community supervision.” In particular, we welcome the review’s reference to Catch22’s Fixed-Term Recall Insights Paper, which highlights the resettlement challenges that often trigger recalls, and how FTRs can worsen rather than resolve the issues that lead to non-compliance with licence conditions. The review accurately reflects our concern that 14- and 28-day recalls frequently interrupt progress, create additional barriers to rehabilitation, and fail to address the root causes of offending behaviour.
- Recall reform – Acknowledging also similar problems with standard recall, the review recommends for each of the current recall options to be replaced by a longer 56-days fixed-term alternative – one with a higher threshold to be used only for cases with “consistent non-compliance” and “specific and imminent risk”. While Catch22 welcomes this simplification of the recall system, especially because it should ensure more effective rehabilitation and resettlement, we are mindful that Probation practitioners will need clear guidelines for this to used fairly, consistently, and effectively. We also note that the review proposes that the 56-days FTR can, in exceptional circumstances, be shortened or extended. While we understand the rationale, particularly in terms of public protection, we think this would, at the very least, require safeguards against arbitrary decision-making.
- Licence condition and support – Our Community Resettlement Support frontline teams consistently see people being recalled for low-level breaches to their licence conditions that they may also struggle to meet due to their specific needs around e.g. addiction or homelessness. Our ACE pilot was designed to tackle this issue; reducing the number of service users becoming subject to recall specifically due to non-compliance. As such, we full-heartedly support the review’s recommended shift towards more tailored licence conditions, earlier planning for (re)release, and better support to ensure licence conditions and resettlement plans can be met – each recommendation we made in our evidence submission.
We fully support the review’s call for a more proportionate and constructive approach to recall; one that prioritises rehabilitation over punishment and ensures that individuals are supported to comply, not simply punished when they struggle to do so.
Catch22 will continue to work in partnership with fellow members of the Recall Reform Coalition – including Switchback, Revolving Doors, and others – to highlight the systemic issues with the current recall system and collectively make the case for meaningful, evidence-based reform.
Community Sentencing
What the report recommends: “Legislate to ensure short custodial sentences are only used in exceptional circumstances.”
Over a year on from the peak of the prison capacity crisis, we once again face a system on the brink. Community sentences – when robust, properly resourced, and supported – offer a clear, evidence-based alternative to short-term imprisonment. The Independent Review reflects what organisations like Catch22 have long observed: in many cases, rehabilitative support delivered in the community is more effective at reducing reoffending than custody.
Through our frontline work with people on probation, Catch22 sees daily how impactful community-based responses can be. These sentences allow individuals to stay connected to employment, families, and essential support networks – all proven protective factors against reoffending.
Despite this, community sentences remain underused. We urge the government to increase both their availability and their visibility, backed by public education and judicial confidence in their effectiveness.
We welcome the review’s call for greater use of community sentences, including electronic monitoring and unpaid work. When implemented thoughtfully and with the right wraparound support, these measures can tackle the root causes of offending and deliver far better outcomes than prison.
- Abolition of RARs – We welcome the review’s recognition of the risks present when imposing community punishments without regard for practical barriers. The proposed abolition of Rehabilitation Activity Requirements (RARs) is a positive step. Too often, individuals are required to complete activities that are not tailored to their specific needs and do little to reduce reoffending. These expectations can feel overwhelming and demotivating, undermining progress rather than supporting it. More specific, purposeful licence conditions – aligned with individuals’ needs and goals – are far more likely to lead to positive outcomes.
- To make community sentences truly effective, licence conditions must be proportionate, achievable, and grounded in an understanding of each individual’s circumstances. This requires significant investment in local services that support rehabilitation – including housing, mental health care, and substance misuse treatment – and strong partnerships with trusted third sector providers. With the right support in place, community sentences can become a powerful tool for lasting change.
Earned Progression
What the Report recommends: “Introduce an “earned progression” model for those serving extended determinate sentences”
The review proposes an “earned progression” model in which individuals serving standard determinate sentences could be released at the one-third point of their sentence if they demonstrate positive engagement with the prison regime, as opposed to halfway through if they do not. This represents a welcome shift in how we approach rehabilitation within custody. By incentivising individuals to engage with education, treatment, and positive behaviour, rather than relying solely on punitive measures, this model encourages meaningful engagement and supports better relationships between those in custody and staff. It also reinforces the idea that people in prison can take active steps toward change – and should be recognised when they do.
However, for earned progression to be fair and effective, individuals must have real opportunities to engage in rehabilitative activities. Overcrowded prisons, limited access to purposeful activity, and long periods of time spent in cells can severely restrict this.
- Complex needs: Those with complex needs – such as substance use, trauma, or mental health issues – may face additional challenges in meeting behavioural expectations without the right support in place. Without equitable access to services, the progression model risks reinforcing existing inequalities.
- We also know that the prison environment itself can create significant barriers to so-called “good behaviour.” Gang conflicts, debt, threats, and exploitation can lead to individuals feeling forced into violence or non-compliance.
- Catch22’s Violence Reduction services in HMP Wandsworth, Pentonville, and Feltham, as well as our Gangs service in HMP Thameside, are examples of targeted interventions that help individuals navigate these pressures and find safer, more constructive paths forward.
An earned progression model can be a powerful tool for rehabilitation, but only if it is implemented fairly. This means ensuring equal access to meaningful support, including therapeutic services, education, training, and conflict resolution. It also means recognising that “good behaviour” must be understood in context, and that those facing the most complex challenges often need the most support to demonstrate change. Done well, this model has the potential to empower individuals, promote safety, and reduce reoffending both inside and beyond the prison gates.
Key themes that require consideration:
Supporting people with complex needs
Many of those who come into contact with the justice system face a range of complex and interlinked challenges – from unstable housing and poor mental health to substance dependency and gang involvement. Through our frontline work, we see how these factors create additional barriers to rehabilitation, whether in meeting licence conditions, avoiding reoffending, or navigating prison life safely.
Without coordinated and accessible support, these challenges can make compliance with expectations – both in custody and in the community – unrealistic, ultimately setting individuals up to fail. If reforms such as the expansion of community sentences and the implementation of an earned progression model are to succeed, they must be accompanied by robust, tailored interventions that meet people where they are. Supporting individuals with complex needs is essential to breaking the cycle of reoffending and achieving genuine rehabilitation.
The role of the third sector
As a third sector provider delivering services to individuals on probation, Catch22 sees every day the critical role that voluntary organisations play in bridging the gap between statutory services and the people they support. Third sector organisations are uniquely placed to provide tailored, person-centred support – particularly for individuals who may lack trust in the prison or probation system, and whose engagement may otherwise be limited.
- Trusted, community-based support – Rehabilitation is most effective when delivered in settings that are local, trusted, and accessible. Voluntary organisations can meet individuals where they are, offering practical support and building relationships that foster long-term change. These services are often able to respond flexibly to the complex needs of individuals – from housing and mental health to employment and addiction.
- We are therefore encouraged that the review recognises the importance of investing not just in probation, but also in the third sector organisations that make meaningful community sentences possible. Sustainable funding, strong partnerships, and consistent commissioning are essential if the voluntary sector is to continue playing a central role in supporting rehabilitation, reducing reoffending, and delivering better outcomes for individuals and communities alike.
Support for victims
As an organisation that works closely with victims through our dedicated victim services, Catch22 recognises that the prospect of offenders spending less time in custody and more time in the community can cause understandable anxiety and concern. These feelings are valid – and they underscore the need for any shift in sentencing policy to be accompanied by robust investment in public services. Probation must be properly resourced to manage risk, reduce reoffending, and give victims the confidence that justice is being served.
- Listening to victims’ concerns – The review rightly highlights that a lack of transparency around sentencing and release – such as through schemes like SDS40 – has left many victims feeling blindsided and eroded public confidence in the justice system. Being a victim of crime can already come with feelings of powerlessness and a loss of control, and these experiences must be taken seriously in any reform.
- Building trust through transparency – We welcome the review’s recommendation to improve public understanding of sentencing changes, and to bring greater consistency to how offenders progress through custodial sentences. In combination with the new Victims and Prisoners Bill – which strengthens victims’ rights to information about their offender’s release and licence conditions – we hope these changes will give victims greater clarity, reassurance, and autonomy.
Despite the understandable concerns that victims may have, we firmly believe that reforms done well can deliver better outcomes for both victims and offenders. Community sentences – when properly supported – are more effective than short custodial sentences at reducing reoffending. With tailored interventions to address the root causes of offending, and continued support for victims to recover and feel safe, we can take meaningful steps to reduce future harm and prevent more people from becoming victims of crime.
Investment in probation: a critical piece of the jigsaw
Catch22 welcomes the report’s vision for an expansion of community sentencing, but its success hinges on one thing: the capacity of the probation service to deliver it.
Probation Officers are currently overstretched and under-resourced. Without sufficient staffing and support, they cannot offer the meaningful supervision, risk management, rehabilitative interventions, or timely enforcement that make community sentences effective.
The review makes clear that reducing reoffending must be a central aim of the criminal justice system – and that a well-functioning probation service is essential to achieving it.
With the Spending Review due next month, the government has an urgent opportunity to invest in probation. Doing so will not only reduce pressure on our overcrowded prisons – it will lead to fewer victims, lower long-term costs, and better outcomes for people in the justice system. Catch22 urges the government to seize this moment. Effective community sentencing is not a soft option – it’s a smarter, fairer, and more sustainable one.
Conclusion
As an organisation that supports individuals facing barriers to employment or training, we were surprised to see that the review did not address the critical link between employment and reduced reoffending. Stable work is one of the most effective factors in supporting rehabilitation. Through our frontline delivery with people on probation, we consistently see how lack of access to meaningful employment or training opportunities can hinder progress – and conversely, how finding secure work can transform a person’s confidence, mental health, and ability to reintegrate into society.
We strongly believe that any strategy aiming to reduce reoffending must place sustainable employment at its core. Without focused investment in employment pathways – including pre-release preparation, skills training, and post-release support – we risk missing a vital opportunity to create long-term change in the lives of those leaving prison.
However, the recommendations in this report, if adopted, mark a significant step towards reform of a system that simply can’t continue in its current form. Its proposals point toward a more effective and humane approach – one that focuses on addressing the individual needs of people in the system, rather than defaulting to costly and often ineffective prison sentences. By prioritising community-based solutions that are tailored to the specific criminogenic needs of each individual, we have an opportunity to significantly reduce reoffending. This means moving away from impersonal community sentences or custodial terms that fail to foster real change, and instead investing in approaches that promote rehabilitation, build trust, and ultimately create safer communities.
Fewer people in prison, effective rehabilitation and a safer society are all measure of a well-functioning criminal justice system. The sector knows what works; the questions now is whether there’s the political will to make it happen.