Cost of keeping people in prison on indeterminate IPP sentences tops £1bn since 2012
Keeping people who are serving a controversial indefinite sentence beyond their minimum term in prison has cost the taxpayer more than £1bn since 2012, Sky News analysis has found.
Sky News has analysed data relating to those serving imprisonment for public protection (IPP) sentences.
This is a type of open-ended sentence that was abolished more than a decade ago following widespread concern over its implementation and psychological impact on inmates.
From April 2012 to December 2023, it cost the taxpayer an estimated £1.1bn to house unreleased IPP prisoners who were serving time beyond their original tariff – the term used to describe the minimum amount of time they had to spend in custody before they could be considered for release by the Parole Board.
It does not include those who have been recalled back to prison after initially being released under strict licence conditions.
The analysis comes as new data released by the Ministry of Justice (MoJ) shows 2,852 people remain incarcerated under the IPP system, including those who have been recalled back into custody.
Of this number, 1,227 have never been released, while 1,210 are behind bars beyond their original tariff.
In the analysis, Sky News took the average cost of a prisoner in each financial year back to 2012/13 and multiplied that by the number of prisoners remaining on expired IPP sentences at the end of each year.
Adding together these costs for each year since 2012/13 comes to a total of £1.1bn.
What are IPP sentences?
Implemented in 2005 under the then Labour government, IPP sentences were intended for the most serious violent and sexual offenders who posed a significant risk of serious harm to the public but whose crimes did not warrant a life term.
Although the government’s stated aim was public protection, concerns quickly grew that IPP sentences were being applied too broadly and catching more minor offenders – with many serving time in prison much longer than their initial term.
In light of the criticisms, IPPs were scrapped in 2012 but the change was not applied retrospectively – meaning those who were in prison at the time the sentence was abolished were not able to benefit.
There have long been calls from campaigners for the government to review the use of IPP sentences – which have been described as “cruel and degrading” by Alice Jill Edwards, a torture expert at the UN.
In 2022 parliament’s Justice Select Committee published a report recommending a resentencing exercise, arguing the IPP sentence was “irredeemably flawed” and caused “acute harm” to those serving them due to the prisoner not knowing when they might be released.
Successive governments have been reluctant to carry out a resentencing exercise on the grounds it could compromise public safety.
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Sky News speaks to families whose loved ones are being held in prison on open-ended sentences
However, Justice Secretary Alex Chalk – who has described IPPs as a “stain” on the justice system – has come under pressure to heed the committee’s calls due to the current capacity constraints in the prison system.
Data from the MoJ published last week shows the prison estate in England and Wales is approaching its operational capacity limit, with just 1,430 spaces left.
According to the campaigning organisation the Institute of Now, the number of people still inside on IPP sentences beyond their tariff could fill the equivalent of more than four average-size UK prisons.
Henry Rossi, a human rights campaigner and founder of The Institute of Now, said: “Far too many people, both prisoners and their families, have been subjected to psychological torture from this wicked sentence, which in so many cases, has led to suicides.
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In 2012 the government abolished IPP sentences, but they didn’t do this retrospectively
“Prisons are not the place to manage those that have served their time as punishment. The UK has blood on its hands and the government must urgently relook at this draconian sentence and release post-tariff IPP prisoners with the appropriate support.”
A MoJ spokesperson said: “We have reduced the number of unreleased IPP prisoners by three-quarters since we scrapped the sentence in 2012, with a 12% fall in the last year alone where the Parole Board deemed prisoners safe to release.
“We have also taken decisive action to curtail licence periods and continue to help those still in custody to progress towards release, including improving access to rehabilitation programmes and mental health support.”
The MoJ figures and Sky News analysis comes as a separate report from the Independent Monitoring Board (IMB) shows how care and separation units (CSUs) are regularly being used as a “stop gap” to manage prisoners with severe mental health needs – including those serving IPP sentences.
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It costs about £48,000 to keep someone in prison in the UK – and there are still just under 3,000 IPP prisoners behind bars
In one case, a man with a schizophrenia diagnosis cumulatively spent almost nine months in the CSU – also known as segregation or “the seg” – during which time the IMB said his mental health “dramatically deteriorated”.
In another example, an IPP prisoner with a personality disorder spent over 800 days in the CSU before they were transferred to an appropriate unit.
Read more:
Inside the lives of IPP prisoners
Reforms announced on indefinite prison sentences
Elisabeth Davies, IMB national chair, said: “Segregating any prisoner, especially those with mental health needs, is not a decision taken lightly by prison managers. While they clearly feel that they have no other option, CSUs should not be used as holding bays for these vulnerable individuals.
“While local IMBs found that overall staff worked hard to support prisoners in the best way that they could, collectively they have reported a disturbing picture of mentally unwell men spending lengthy periods in isolation, which often results in a deterioration of their mental health.
“If anything is to change, the solution is, and has always been, providing appropriate mental health provision in the community and tighter controls around the transfer times from prison to hospital.”
A government spokesperson said: “Segregation is an absolute last resort for those deemed a danger to themselves or others.
“Prisoners are entitled to the same care as they would receive in the community, which is why we guarantee the most vulnerable individuals are able to access mental health support tailored to their needs.”
UK
‘I have nightmares of dead bodies’: Patients dying and undiscovered for hours in hospital corridors
Patients are dying in corridors and going undiscovered for hours while the sick are left to soil themselves, nurses have said, revealing the scale of the corridor crisis inside the UK’s hospitals.
In a “harrowing” report built from the experiences of more than 5,000 NHS nursing staff, the Royal College of Nursing (RCN) found almost seven in 10 (66.81%) say they are delivering care in overcrowded or unsuitable places, including converted cupboards, corridors and even car parks, on a daily basis.
Demoralised staff are looking after as many as 40 patients in a single corridor, unable to access oxygen, cardiac monitors, suction and other lifesaving equipment.
Women are miscarrying in corridors, while some nurses report being unable to carry out adequate CPR on patients having heart attacks.
Sara (not her real name) said she was on shift when a doctor told her there was a dying patient who had been waiting in the hospital’s corridor for six hours.
“It took a further two hours to get her into an adequate care space to make her clean and comfortable,” she told Sky News.
“That’s a human being, someone in the last hours of their life in the middle of a corridor with a detoxing patient vomiting and being abusive behind them and a very poorly patient in front of them, who was confused, screaming in pain. It was awful on the family, and it was awful on the patient.”
Dead patients ‘not found for hours’
A nurse working in the southeast of England quit her job after witnessing an elderly lady in “animal-like conditions”.
She told the RCN: “A 90-year-old lady with dementia was scared, crying and urinating in the bed after asking several times for help to the toilet. Seeing that lady, frightened and subjected to animal-like conditions is what broke me.
“At the end of that shift, I handed in my notice with no job to go to. I will not work where this is a normal day-to-day occurrence.”
Another nurse in the South East said a patient died in a corridor and “wasn’t discovered for hours”.
Sara told Sky another woman needed resuscitating after the oxygen underneath her trolley ran out. Sara was one of just two nurses caring for more than 30 patients on that corridor.
“I have had nightmares – I have a nightmare that I walk out in the corridor and there are dead bodies in body bags on the trolleys,” she said, growing visibly emotional.
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No electricity to plug in computers
One nurse, who spoke to Sky News, said the conditions were “undignified” and “inhumane”.
“It’s not just corridors – we utilise chairs, cupboards, whatever space is available in the hospital to be repurposed into a care space, in the loosest sense of that term. These spaces are unsafe.”
Some spaces, she said, don’t even have basic electricity for nurses to plug in their computers.
The nurse, who spoke to Sky on the condition of anonymity, said she has experienced burnout multiple times over the state of her workplace.
“I have come to the conclusion this week I don’t think I can continue working in the NHS or as a nurse,” she said.
“It breaks my soul; I love what I do when I am able to do it in the right way. I like caring for people, I like making people better, I also like providing a dignified death.”
She added: “I want to look after the institution I was born into, but for the sake of my family and my mental health, I don’t know how much more I can give.”
With 32,000 nursing vacancies in England alone, data also shows around one in eight nurses leave the profession within five years of qualifying.
Nurses are being forced to provide care in hospital corridors and car parks. Pic: PA
Staff ‘not proud of the care they are giving’
The Royal College of Nursing (RCN) says the testimony, which runs to over 400 pages, must mark a “moment in time”. In May 2024, the RCN declared a “national emergency” over corridor care in NHS services.
Professor Nicola Ranger, RCN general secretary and chief executive, said: “At the moment, [nursing staff] are not proud of the care they are giving.”
“We hear stories of escalation areas and temporary beds that have been open for two years,” she added. “That is no longer escalation, it’s understaffed and underfunded capacity that is pretty shocking care for patients. We have to get a grip on that.”
Read more: Hospital advertises for corridor nurse amid NHS winter crisis
She called the situation “a disgrace”, citing abuse of staff as another reason for people leaving the profession in droves.
Last week, a nurse was left with “life-changing injuries” after being stabbed by a man while at work.
“The NHS used to be the envy of the world and we need to take a long hard look at ourselves and say ‘what needs to change?’
“The biggest concern for us is that the public Is starting to lose a little faith in their care, and that has to stop. We absolutely have to sort this out.”
Commenting on the RCN’s report, Duncan Burton, chief nursing officer for England, said the NHS had experienced one of the “toughest winters” in recent months, and the report “should never be considered the standard to which the NHS aspires”.
“Despite the challenges the NHS faces, we are seeing extraordinary efforts from staff who are doing everything they can to provide safe, compassionate care every day,” he added. “As a nurse, I know how distressing it can be when you are unable to provide the very best standards of care for patients.”
Have you experienced corridor care in an NHS hospital? Get in touch on NHSstories@sky.uk
Singer Linda Nolan, who rose to fame alongside her sisters in The Nolans, has died after several years of battling cancer.
The Irish star, 65, and her sisters Coleen, Maureen, Bernie, Denise and Anne, had a run of hits in the late 1970s and ’80s – including the disco classic I’m In The Mood For Dancing.
Paying tribute on The Nolans‘ X account, her sisters described her as “a pop icon and beacon of hope”, who “faced incurable cancer with courage, grace and determination, inspiring millions”.
Linda died peacefully in hospital this morning, “embraced with love and comfort” with her siblings by her side, her agent Dermot McNamara said in a statement.
“As a member of The Nolans, one of the most successful girl groups of all time, Linda achieved global success; becoming the first Irish act to sell over a million records worldwide, touring the world and selling over 30 million records,” he said.
“Her distinctive voice and magnetic stage presence brought joy to fans around the world, securing her place as an icon of British and Irish entertainment.”
As well as her TV and musical career, Linda helped to raise more than £20 million for numerous charities, including Breast Cancer Now, Irish Cancer Society, Samaritans and others.
“Her selflessness and tireless commitment to making a difference in the lives of others will forever be a cornerstone of her legacy,” Mr McNamara said.
Five of the Nolans in 1983 (L-R): Linda, Anne, Bernie, Coleen and Maureen. Pic: PA
Linda’s death came after she was admitted to hospital with pneumonia over the weekend. She began receiving end-of-life care after slipping into a coma on Tuesday.
Details of a celebration of the star’s “remarkable life” will be shared in due course.
Linda was born to Tommy and Maureen Nolan in Dublin on 23 February 1959, the sixth of eight children.
Her parents were both singers and keen to turn their young family into a musical troupe. Linda made her stage debut aged just four.
Those early years put the siblings on track for a career in show business which lasted for decades. As well as I’m In The Mood For Dancing, The Nolans had hits with Gotta Pull Myself Together, Attention To Me and Don’t Make Waves, and they also had their own TV specials.
At their height, they toured with Frank Sinatra and were reported to have outsold The Beatles in Japan.
Linda left the group in 1983, but later reformed with her sisters for several comeback performances. She also became known for musical theatre, most notably performing the role of Mrs Johnstone in Blood Brothers for three years from 2000.
L-R: Bernie, Denise, Linda (top), Anne and Maureen Nolan pictured in 1975, before youngest sister Coleen joined the group
Four siblings struck by cancer
Linda was first diagnosed with breast cancer in 2005, and underwent a mastectomy two days before her 47th birthday.
After being given the all-clear in 2011, in 2017 she was diagnosed with secondary breast cancer. Three years later, Linda and Anne together revealed they were being treated for cancer once again.
The sisters were diagnosed with different forms of the disease just days apart after they returned home from filming a series of their show, The Nolans Go Cruising. Linda had cancer of the liver, while Anne had breast cancer.
The star, pictured last year, had battled cancer for several years. Pic: Shutterstock
They went on to write Stronger Together, an account of their journey that included frank details of their treatments and the side effects.
But in 2023, Linda revealed the cancer had spread to her brain and she was beginning treatment as part of a new drug trial.
The Nolans lost their second-youngest sister, Bernie, to cancer in 2013, aged 52.
Loose Women star Coleen Nolan also revealed she was diagnosed with skin cancer last year, and said she was using a chemotherapy cream to remove it.
Linda’s husband of 26 years, Brian Hudson, died in 2007 after being diagnosed with skin cancer.
Anne Nolan is now cancer-free.
Tributes to star ‘who was always a joy’
TV star and singer Cheryl Baker and comedian Tommy Cannon are among those who have paid tribute.
“I’m heartbroken to hear about the passing of Linda Nolan,” Cannon wrote on X. “I had the pleasure of working with her on so many occasions, and she was always a joy – full of warmth and love. My thoughts and love are with the Nolan girls and the whole family.”
“The most incredible voice, the wickedest sense of humour, such a massive talent,” Baker wrote. “You’re with Brian now, Lin.”
Loose Women also sent its love to her family. Linda appeared as a guest panellist on the ITV chat show over the years, alongside her sister Coleen.
The Blackpool Grand Theatre described her as “a true Blackpool icon”.
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