The intended purpose of prisons is to rehabilitate criminals, as well punishing them and managing their risk to the public through the deprivation of liberty. But we heard that offenders are instead languishing in prisons. 50 per cent of prisoners are not taking part in education or work, and two thirds of offenders are not in education or work six months after release. It is therefore unsurprising that 80 per cent of all offending in England and Wales is reoffending.

Following growing concerns about persistently high reoffending rates and the ability of HM Prison and Probation Service (HMPPS) to meet its rehabilitative duties, this report sets out the Justice Committee’s initial findings on rehabilitation within prisons, The inquiry has taken place against the backdrop of a prison capacity crisis, with overcrowding, staffing shortages, and deteriorating infrastructure undermining efforts to reduce reoffending. The Committee found that the current conditions across the prison estate are not conducive to rehabilitation. Overcrowding has led to arbitrary prisoner transfers, disrupted sentence progression, and reduced access to purposeful activity, education, and family contact. Given that demand for prison places is set to keep increasing, we recommend that the Government should set out the steps it will take to ensure that rehabilitation is not compromised, alongside how it intends to manage demand and supply. Remand prisoners now make up 20 per cent of the prison population, the highest level in at least 50 years. Yet they remain excluded from much of the prison regime, including access to education and rehabilitative programmes. We heard that remand prisoners often spend extended periods in custody, only to be released directly from court following a conviction without any support or intervention. This raises serious concerns about how the Government expects these individuals to avoid reoffending. Remand prisoners should have access to all parts of the regime, should they choose to participate.

In the 12 months to 30 June 2025, there was a leaving rate of 11.6 per cent and a resignation rate of around eight per cent among band 3–5 prison officers. These figures highlight the severity of staffing challenges in prisons. Alongside this high turnover, poor recruitment processes and limited professional development have all contributed to a culture that hinders rehabilitation. Governors lack the autonomy to lead effectively, and the current staffing model is unsustainable. The Committee recommends that prison staff should receive training at least annually, with more frequent support as they progress through their careers.

The prison estate is in a state of disrepair. Dilapidated buildings and broken infrastructure limit access to rehabilitative spaces and contribute to poor mental health. Despite recent capital investment, it remains unclear how the Government intends to address the £1.8 billion maintenance backlog. We call on the Government to provide a clear breakdown of how funding will be used to address this backlog, and to ensure that future investment is targeted at improving prison conditions with access to rehabilitative activities in mind.

The Committee is deeply concerned by the widespread failure to meet the statutory minimum for time out of cell. Many prisoners are locked up for 22 hours or more each day, with limited access to fresh air, showers, or rehabilitative activities. This lack of time out of cell undermines efforts to reduce reoffending and contributes to poor mental health and disengagement. Purposeful activity, including education, work, and offending behaviour programmes, is central to rehabilitation, yet it is inconsistently delivered and often deprioritised. The Committee calls for a renewed focus on ensuring all prisoners have access to meaningful activity, and for time out of cell to be formalised, standardised, and its data to be published going forward.

Prison education is underfunded and poorly delivered. Participation rates are low, Ofsted ratings remain poor, and neurodivergent prisoners are not adequately supported. Education on the youth estate is also in a state of decline. Children in custody are entitled to 15 hours of education per week, yet the Committee heard that this minimum is routinely not met. Behaviour management issues, staffing shortages, and restrictive ‘keep apart’ policies are preventing children from accessing even basic educational provision. Given this, we are alarmed by reports of significant real-term cuts to prison education budgets of up to 50 per cent. We expect the Government to clarify the rationale of any planned budget reductions.

Health and wellbeing services are failing to meet the needs of prisoners. Mental health support is inconsistent, and operational pressures prevent timely access to care. Women in prison face acute and complex health needs, yet the system is failing to provide even basic support. Although the Government has set out its ambition to reduce the number of women in custody, it is unclear what action will be taken for those currently in prison. The Committee expects the Government to respond with a clear plan for how it will meet the health and wellbeing needs of the women currently in its care.

The Committee will continue its inquiry by examining rehabilitation and resettlement in the community. A further report will follow, setting out long-term recommendations for structural reform, to end the cycle of reoffending.