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 unreleasedIPP 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.
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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.
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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.
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.
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.”
Britain has sent a senior commander and a small number of troops to Israel to help international efforts to monitor a fragile Gaza ceasefire following an American request.
John Healey, the defence secretary, revealed the deployment barely a week after Yvette Cooper, the new foreign secretary, said the UK had “no plans” to send soldiers.
The British Major General will work as the deputy to a US commander, who is tasked with running a civil-military coordination centre that is also expected to include troops from Egypt, Qatar, Turkey, and the United Arab Emirates.
The ceasefire deal, brokered by Donald Trump, between Hamas and Israel has created the “opportunity for a long-term peace”, Mr Healey said.
Image: Defence Secretary John Healey said Donald Trump had created the conditions for an end to the fighting. Pic: PA
“We have specialist experience and skills that we have offered to contribute,” he said, answering questions after delivering a lecture on wider defence issues to business leaders at an event in London on Monday evening.
The defence secretary said: “We can contribute to the monitoring of the ceasefire. That is likely to be led by others.
“We have also, in response to the American request, put a first rate two-star officer into a civilian-military command, as the deputy commander.
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“So Britain will play an anchor role, contribute the specialist experience and skills where we can. We don’t expect to be leading… but we will play our part.”
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Ceasefire in fragile state.
The British officer is being accompanied by a small team of UK military personnel, with expertise in planning.
The United States, for its part, is sending up to 200 troops to Israel. They will not enter Gaza.
The British contingent will also not be operating inside the strip.
A Ministry of Defence spokesperson said: “A small number of UK planning officers have embedded in the US led CMCC, Civil Military Coordination Centre, including a 2* deputy commander to ensure that the UK remains integrated into the US led planning efforts for Gaza post-conflict stability.
“The UK continues to work with international partners to support the Gaza ceasefire to see where the UK can best contribute to the peace process.”
Details about the US plans – headed by Central Command – to help facilitate the flow of humanitarian aid as well as logistical and security assistance into the territory emerged after Mr Trump brokered a ceasefire deal between Hamas and Israel on 10 October.
Image: Gazan mourners pray over the bodies of Palestinians killed by Israeli fire. Pic: AP
One official said the new team will help monitor implementation of the ceasefire agreement and the transition to a civilian government in Gaza.
It is separate to a planned international stabilisation force that would deploy into the territory to help secure the peace.
That force is a key part of Mr Trump’s 20-point peace plan.
In a sign of potential problems, though, The New York Times reported on Tuesday that countries that might contribute soldiers to the international force are nervous about putting boots on the ground while Hamas remains an armed group.
The arrival of British troops in Israel comes as the ceasefire deal remains under pressure, with Israel and Hamas accusing each other of breaching its terms.
Israel briefly resumed airstrikes over the weekend after its troops were reported to have come under attack.
Meanwhile, the Hamas-run health ministry in Gaza yesterday reported more than 50 deaths in the last 24 hours.
A current senior member of the King’s household was the head of royal protection at the time Prince Andrew allegedly asked one of his police officers to dig up dirt on Virginia Guiffre, Sky News has discovered.
Lord Peter Rosslyn, who is now Lord Steward and Personal Secretary to the King and Queen, was head of Royalty and Diplomatic Protection between 2003-2014.
It is not clear if Lord Rosslyn – known at the time as Commander Peter Loughborough – was made aware of Prince Andrew’s request. However, it reportedly happened in 2011 when it’s claimed Andrew wrote in an email that he passed the date of birth and confidential social security number of his accuser, Virginia Guiffre, to one of his close protection team to find out information about her.
Image: Lord Peter Rosslyn arriving at the Duchess of Kent’s funeral. Pic: PA
Sky News approached Lord Rosslyn for comment, which was passed to Buckingham Palace.
A palace spokesperson said: “As you may or may not be aware, Lord Rosslyn works for The Royal Household and thus this issue has been referred to me. However, since this matter relates to his time in service with the Metropolitan Police, they would be the appropriate body to approach with media enquiries of this nature.”
The Met Police had nothing further to add.
Police sources have told Sky News the officer (CPO) involved would have been expected to escalate this request from Andrew to his superiors.
While there may have been other members of senior staff between the CPO and Lord Rosslyn, the request should have been considered serious enough to be referred to the top of the Royalty and Diplomatic Service.
Those with knowledge of the royal household tell us Lord Rosslyn is one of the King’s closest and most trusted members of staff.
His role as Lord Steward involves managing all aspects of the King’s personal affairs, and the non-state business of the monarch.
Who is Lord Peter Rosslyn?
As well as being much respected by Queen Elizabeth II, and affectionately known as her “favourite policeman”, in 2014 Lord Rosslyn was appointed as Master of the Household of the then Prince of Wales and the Duchess of Cornwall at Clarence House.
In February 2003, he was made Lord Steward by the King, thereby becoming the “first dignitary of the King’s court” – a sign that the monarch wanted to keep him around.
While Andrew’s alleged attempts to smear Virginia Guiffre would have been morally wrong, he also would have been asking his police officer to put his career on the line.
Any attempt to use police databases to find information on an innocent individual not connected to a crime would have been a sackable offence, and unlawful.
In his statement on Friday, Prince Andrew again stressed that he vehemently denies the allegations against him.
A Buckingham Palace source told Sky News that the recent claims that have emerged are being viewed by the Royal Family with “very serious and grave concern” and “should be examined in the proper and fullest ways”.
Image: Prince Andrew’s signature
Andrew should give evidence to US authorities – minister
The revelation comes as a government minister said Andrew should give evidence to US authorities – and anger grows after it emerged he had been paying “peppercorn rent” for two decades.
Passages from the memoir released on Tuesday of the late Virginia Giuffre, who accused Prince Andrew of sexually assaulting her, provide further details of their alleged encounters.
Prince Andrew has always strenuously denied the allegations.
Business Secretary Peter Kyle said on Tuesday he would “support” Prince Andrew giving evidence to US prosecutors.
He added he would also support any decision by the Met Police to investigate allegations that Prince Andrew used a Met bodyguard to gain information on Giuffre.
It comes as anger continues to grow over Prince Andrew’s housing arrangements.
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‘Victims should be in driver’s seat’
‘Peppercorn rent’
The royal has only paid “peppercorn rent” for more than two decades at his Windsor mansion, according to a National Audit Office report published in 2005.
“Peppercorn rent” is a legal term used in leases to show that rent technically exists, so the lease is valid, but it’s nominal, often literally £1 a year or just a symbolic amount.
In practice, it means the tenant pays no rent.
It also shows he was required to pay a further £7.5m for refurbishments.
A document from the Crown Estate also shows he signed a 75-year lease on the property in 2003.
It reveals he paid £1m for the lease and that since then he has paid “one peppercorn” of rent “if demanded” per year.
The agreement also contains a clause which states the Crown Estate would have to pay Andrew around £558,000 if he gave up the lease.
Pressure is mounting on him to give up the 30-bedroom mansion.
Senior Tory Robert Jenrick called for Prince Andrew to live privately.
‘He has disgraced himself’
He said: “It’s about time Prince Andrew took himself off to live in private and make his own way in life.
“He has disgraced himself, he has embarrassed the royal family time and again. I don’t see why the taxpayer, frankly, should continue to foot the bill at all. The public are sick of him.”
Image: Virginia Giuffre’s posthumous memoir was released today. Pic: Reuters
Mr Kyle, however, said that would be a question for King Charles.
But he did say MPs could bring forward a motion to strip Prince Andrew of his remaining titles, adding it would be up to Speaker Sir Lindsay Hoyle to choose one of these motions for debate.
The chief executive of Lloyds Banking Group has warned that a tax raid on the banks could harm lending to households and businesses.
In an exclusive interview with Sky News at the government’s regional investment summit, Charlie Nunn urged the chancellor to ignore calls for a windfall tax on commercial banks even though the sector is enjoying record profits.
“If we are going to have the ability and the confidence to continue to lend into the real economy, to help households and businesses invest, we need to make sure that the financial services system and Lloyds Banking Group really remains healthy in that context,” he said.
Image: Charlie Nunn was appointed Lloyds boss in November 2020. Pic: PA
Britain’s four largest banks – HSBC, Barclays, Lloyds Banking Group and NatWest – posted record profits of £45.9bn last year and are on course for another bumper performance this year, thanks to higher interest rates.
Their financial success has raised speculation that the sector could be in the chancellor’s firing line at next month’s budget.
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Rachel Reeves could raise the bank surcharge – a levy on bank profits in addition to corporation tax.
The Conservative government cut the levy from 8% to 3% in 2023. Returning it to 8% could raise £2bn for a chancellor who needs to find anywhere up to £50bn to meet her fiscal rules.
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Chancellor faces tough budget choices
Some have suggested a separate windfall tax, which could raise closer to £8bn.
Mr Nunn said such a move risked undermining the health of a sector which underpins the country’s economic prosperity.
“Obviously, taxes are a matter for the government to look at. But it’s definitely one of the factors that impact our ability to support the real economy in the UK,” he said.
A raid on the banks would cause pain to a sector that is already facing substantial costs because of the car finance scandal.
Lloyds, one of the most exposed lenders, has set aside nearly £2bn to cover potential compensation arising from the Financial Conduct Authority’s (FCA) redress scheme.
The FCA established the scheme to draw a line under the long-running mis-selling scandal, in which lenders failed to disclose commission paid to brokers, meaning many customers ended up paying more than they should have for their car finance.
Under the FCA’s scheme, eligible customers – as many as 14.2 million – could receive an average of £700 each.
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4:21
Payouts due after motor finance scandal
There is mounting anger within the industry at the way the scheme, which is going out to consultation, has been set up. Mr Nunn said the proposal was too generous to customers and not proportionate to the harms actually caused to customers.
He did not rule out the possibility of a judicial review but, in the first instance, called for a rethink, warning that the current scheme risks scaring away investors, causing an exodus from the market and driving up the cost and availability of credit.
“When you look at the implication of what’s being proposed by the FCA, it’s going to potentially take 20 years of profitability of the car finance industry. And, what does that mean for invest ability in that industry and for other investors and businesses looking to invest in the UK? There’s real concern that this is going to create an invest ability issue,” he said.
“Our concern is will the industry continue to function? Will it support all customers across the whole of the UK that need finance? Will other investors be looking at this and wondering whether the UK is a place they should invest, if retrospectively we can take away 20 years of profits?”