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A new report from the Public Accounts Committee (PAC) warns that the Probation Service in England and Wales is being placed under significant strain, seriously impeding its ability to protect the public and reduce reoffending rates.

• Read the report
• Read the report (PDF)
• Inquiry: Efficiency and resilience of the Probation Service
• Public Accounts Committee

In 2024-25, HM Prison and Probation Service (HMPPS) spent £1.34bn on the Probation Service. The Ministry of Justice (MoJ) estimates that the economic and social cost of reoffending across adult offenders is around £20.9bn a year. 

The number of prisoners recalled to prison is at an all-time high. At the end of March 2025, the recall prison population was 13,583, accounting for 15% of the prison population, a 49% increase since June 2021.

Since the Probation Service was brought under full public control in 2021, its performance has deteriorated, along with an overall rise in reoffending rates. Last year, the service met just seven of its 27 performance targets. Three years earlier it was meeting half of its targets.

HMPPS’s’ new programme, Our Future Probation Service, was introduced in an effort to combat this declining performance. However, the PAC warn that this is unlikely to be sufficient.

The MoJ does not have a strong history of implementing digital change programmes well, and crucially they have yet to make decisions on changes they plan to make to the level of supervision some offenders receive.

Given the risk these decisions could pose to the public, the PAC is calling for the MoJ and HMPPS to set clear thresholds for the level of risk they are willing to accept, to help monitor operational and public protection risks.

Evidence to the inquiry showed that people classed as low-risk often require support to prevent them reoffending. HMPPS’ planned changes to probation will likely reduce supervision for these lower-risk offenders, while involving a large increase in electronic monitoring.

Noting serious performance issues with the electronic monitoring service, including delays by Serco in fitting tags, the PAC is seeking more information on how the company is performing from government, as well as what role third sector and private sector organisations will play in probation to make up for this reduction in supervision.

The vacancy rate for probation officers increased from 14% in 2021 to 21% in 2025. Probation officers are estimated to have been working on average at 118% capacity for several years, though recent findings suggest this figure is likely much higher. The inquiry heard evidence that the Probation Service's culture is built on ‘emotional strain' and 'trauma’.

The PAC is sceptical that HMPPS has a real understanding of how many staff it needs to sufficiently improve performance. The report calls for HMPPS to set out when and how it expects to be able to provide clarity to staff on when their workloads will reduce to acceptable levels.

The PAC was concerned to learn that when evaluating the risk of harm presented by offenders, practitioners only adequately assessed 28% of cases in 2024, compared to 60% of cases in 2018-19. This report calls for the MoJ to set out a clear timeline for when it expects its performance against key metrics to improve.

Chair comment

Sir Geoffrey Clifton-Brown, Chair of the Public Accounts Committee, said:

“The probation service in England and Wales is failing. The endpoint of this failure is demonstrated by our report, which shows the number of prisoners recalled to prison is at an all-time high.

"It was deeply alarming to hear of probation staff working under immense pressure in a seemingly toxic environment, in a culture built on emotional strain and trauma. This not only raises concerns about the toll the overall system is taking on their mental health but the impact it is having on their ability to perform their duties. The public’s safety relies on them doing so.

“Unfortunately, the landscape for probation is not going to become more forgiving for a service which has slipped into decline in recent years, as plans to free up capacity, including with early release schemes, in other parts of the crisis-ridden justice system are likely to increase demand.

"Well-run probation is a must-have, helping those who have served their time find their place back in society. HMPPS accepts that the current picture is unsustainable, but its own planned changes could cause further disruption and place more pressure on overstretched staff. The probation service is already teetering on the brink. Government’s immediate goal must be to avoid making matters worse.”