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.”
Donald Trump has said he will sue the BBC for between $1bn and $5bn over the editing of his speech on Panorama.
The US president confirmed he would be taking legal action against the broadcaster while on Air Force One overnight on Saturday.
“We’ll sue them. We’ll sue them for anywhere between a billion (£792m) and five billion dollars (£3.79bn), probably sometime next week,” he told reporters.
“We have to do it, they’ve even admitted that they cheated. Not that they couldn’t have not done that. They cheated. They changed the words coming out of my mouth.”
Mr Trump then told reporters he would discuss the matter with Prime Minister Sir Keir Starmer over the weekend, and claimed “the people of the UK are very angry about what happened… because it shows the BBC is fake news”.
The Daily Telegraph reported earlier this month that an internal memo raised concerns about the BBC’s editing of a speech made by Mr Trump on 6 January 2021, just before a mob rioted at the US Capitol building, on its flagship late-night news programme.
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BBC crisis: How did it happen?
The concerns regard clips spliced together from sections of the president’s speech to make it appear he told supporters he was going to walk to the US Capitol with them to “fight like hell” in the documentary Trump: A Second Chance?, which was broadcast by the BBC the week before last year’s US election.
Following a backlash, both BBC director-general Tim Davie and BBC News chief executive Deborah Turness resigned from their roles.
‘No basis for defamation claim’
On Thursday, the broadcaster officially apologised to the president and added that it was an “error of judgement” and the programme will “not be broadcast again in this form on any BBC platforms”.
A spokesperson said that “the BBC sincerely regrets the manner in which the video clip was edited,” but they also added that “we strongly disagree there is a basis for a defamation claim”.
Earlier this week, Mr Trump’s lawyers threatened to sue the BBC for $1bn unless it apologised, retracted the clip, and compensated him.
The US president said he would sue the broadcaster for between $1bn and $5bn. File pic: PA
Legal challenges
But legal experts have said that Mr Trump would face challenges taking the case to court in the UK or the US.
The deadline to bring the case to UK courts, where defamation damages rarely exceed £100,000 ($132,000), has already expired because the documentary aired in October 2024, which is more than one year.
Also because the documentary was not shown in the US, it would be hard to show that Americans thought less of the president because of a programme they could not watch.
Read more from Sky News:
Key findings in 20,000 pages of documents in the Epstein files
Banksy art theft lands burglar with 13-month prison sentence
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Sky’s Katie Spencer on what BBC bosses told staff on call over Trump row
Newsnight allegations
The BBC has said it was looking into fresh allegations, published in The Telegraph, that its Newsnight show also selectively edited footage of the same speech in a report broadcast in June 2022.
A BBC spokesperson said: “The BBC holds itself to the highest editorial standards. This matter has been brought to our attention and we are now looking into it.”
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A man has been given a 13-month prison sentence for stealing Banksy’s famous Girl With Balloon print from a London gallery.
Larry Fraser, 49, of Beckton, east London, was sentenced on Friday after pleading guilty to one count of non-residential burglary at Kingston Crown Court on 9 October.
The print, one of the street artist‘s most famous, was stolen from a gallery in New Cavendish Street in London at around 11pm on 8 September last year.
The recovered artwork back in the gallery. Pic: Metropolitan Police
Fraser used a hammer to smash his way through a glass entrance door at the Grove Gallery before stealing the artwork, which was valued at £270,000.
He concealed his identity with a mask, hooded jacket and gloves, but the Metropolitan Police’s Flying Squad was able to identify him and track him to a location streets away.
He was also caught on CCTV loading the artwork into a van before fleeing the scene.
A second man, 54-year-old James Love, was accused of being the getaway driver in the burglary, but cleared of stealing the print.
Larry Fraser. Pic: Metropolitan Police
Damage to the Grove Gallery after the theft. Pic: Metropolitan Police
Fraser was arrested at his home address on 10 September, within 48 hours of the burglary, and charged the next day.
Officers were able to recover the artwork after executing a warrant on the Isle of Dogs. It has now been returned to the gallery.
Fraser pleaded to the court that he was struggling with a historic drug debt and agreed to steal the work “under a degree of pressure and fear”.
He said he did not know what he would be stealing, nor its value, until the day of the offence.
Fraser was caught on CCTV taking the artwork away from the gallery. Pic: Metropolitan Police
Jeffrey Israel, defending, said Fraser lived with his mother as her principal carer, and had only managed to “break his cycle of drug addiction” after his last prison sentence.
He added that it “would take a bold advocate” to suggest that the value of the print had increased by the burglary, but insisted “that is probably the reality”.
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Banksy artwork ‘worth millions’ scrubbed off wall outside court
Blink-182 star to auction rare Banksy worth millions
Judge Anne Brown was unmoved, however, and said the offence was “simply too serious” for a suspended sentence.
“This is a brazen and serious non-domestic burglary,” she said.
“Whilst you did not know the precise value of the print, you obviously understood it to be very valuable.”
She added: “Whilst I am sure there was a high degree of planning, this was not your plan.”
However, Fraser may be eligible for immediate release due to time spent on electronic curfew.
Detective Chief Inspector Scott Mather, who led the Met’s investigation, said: “Banksy’s Girl With Balloon is known across the world – and we reacted immediately to not just bring Fraser to justice but also reunite the artwork with the gallery.
“The speed at which this took place is a testament to the tireless work of the flying squad officers – in total it took just four days for normality to be restored.”
The 2004 artwork was part of a £1.5m collection of 13 Banksy pieces at the gallery.
Gallery manager, Lindor Mehmetaj, said it was “remarkable” for the piece to have been recovered after the theft.
The 29-year-old said: “I was completely, completely shocked, but in a very, very positive way when the Flying Squad showed me the actual artwork.
“It’s very hard to put into words, the weight that comes off your shoulders.”
UK
‘Incredibly dangerous’ sex offender Chao Xu jailed – as police say there could be hundreds more victims
An “incredibly dangerous” sex offender who drugged his victims and installed spy cameras around his home has been jailed for life with a minimum term of 14 years – as police appeal for hundreds more potential victims to come forward.
Warning: This article contains details of sexual offences
Chinese national Chao Xu, 33, has been described by police as “one of the most prolific offenders ever uncovered” by the Metropolitan Police.
Xu, who was a law postgraduate student at the University of Greenwich in London between 2015 and 2016, ran his own recruitment business and targeted victims at networking events at his home.
He invented his “Spring of Life” cocktail, a mix of alcohols and Chinese herbal medicines, to sedate guests, and planted spy cameras in items including air fresheners, sanitary packaging and speakers.
Chao Xu setting up his camera
Pic: Met Police:
Police found thousands of pictures and videos, with some showing unconscious or incapacitated victims in his flat in Greenwich, south-east London.
Xu, who is from China but is believed to have been living in the UK since 2013, also covertly filmed women on their daily commutes at stations such as London Bridge in so-called upskirting incidents.
He pleaded guilty to 24 sex offences between 2021 and 2025 at Woolwich Crown Court in August relating to six victims, with two charges relating to a seventh woman left to lie on file.
Xu admitted four counts of rape, eight counts of assault by penetration, four counts of sexual assault, four counts of voyeurism, two counts of administering a substance with intent and two counts of operating equipment beneath the clothing of another without consent (commonly known as upskirting).
Special drink
Pic: Met Police:
An air freshener with a hidden camera.
Pic: Met Police
An air freshener with a hidden camera
Pic: Met Police
‘Incredibly dangerous man’
His Honour Judge Christopher Grout described Xu as an “incredibly dangerous man” who “took great enjoyment” from his offending.
“Your behaviour was calculated and planned, evidenced by the covert recording systems you had set up in your flats and the fact you had incapacitated a number of your victims by drugging them.
“You betrayed the trust of a number of women who you befriended in the most appalling ways imaginable,” he added.
Speaker with hidden camera
Pic: Met Police:
Hidden camera in bottom left of women’s sanitary packaging
Pic: Met Police
Could be hundreds of victims
Another 11 alleged victims have since come forward but the Metropolitan Police believe there are hundreds more in the UK and China, with offences committed in workplaces, public spaces and overseas.
Acting Detective Superintendent Lewis Sanderson described Xu as one of the “most prolific” offenders the force has ever investigated, adding that his “crimes were calculated, sustained, and devastating”.
Speaking outside the court on Friday, he said: “Chao Xu was a prolific and predatory sexual offender who committed some of the most cowardly and abhorrent crimes imaginable. His actions caused deep and lasting harm.”
“The number of victims of sexual assault, voyeurism and upskirting is believed to be in the hundreds. This includes individuals filmed without consent in Xu’s flat at his workplace and in public spaces.
“That is why today I’m making a direct appeal. If you believe you may have been a victim of Chao Xu, or if you have any information that could assist our investigation, please come forward. You will be listened to. You will be believed and you will be supported.”
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Xu was ‘prolific’ sex offender
He said all of the sexual assault victims were Chinese women, aged between 18 and 30, while the voyeurism victims are also young females but of different ethnicities.
He added that there will be women who may not know they are victims of his crimes, as they may have been drugged by Xu.
Detectives were alerted to Xu’s crimes after he held a networking event in Greenwich in June.
Read more from Sky News:
Man admits to summer camp attacks
Murder investigation after girl’s death
Burglar jailed over Banksy theft
When one of the women who attended became unwell, Xu offered to let her stay, before raping her several times, the Metropolitan Police said.
They later found he had drugged her with substances known to cause drowsiness and incapacitation.
The case included six million messages on WeChat, the popular Chinese messaging app, most of them in Mandarin, which all had to be checked with the help of a translator.
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