Policy paper

Response to an inspection of management of contact with migrants

Published 25 June 2026

This was published under the 2024 to 2026 Starmer Labour government

September 2024 – February 2025

The Home Office thanks the Independent Chief Inspector a of Borders and Immigration (ICIBI) for this inspection report on the Home Office management of contact with migrants who are without leave to enter or remain.

The Department is committed to robustly managing and maintaining contact. It welcomes the recognition of the significant challenges faced in doing so with a large and diverse population. It also welcomes recognition of the extensive activity that is already being undertaken, to re-establish contact, particularly using immigration bail, reporting mechanisms, and the development of the population of interest dataset. 

The challenges identified by the ICIBI are fully recognised by the Home Office, and we are taking urgent steps to address these. Whilst some of the mitigations, particularly those involving complex changes to underpinning systems, may take some time to deliver, work is under way and we have already made significant progress, including mapping contact points with migrants across the whole Migration and Borders system, developing a system-wide contact management strategy, and investing in the development of technology and systems to ensure better quality data and more consistent contact management. This work is now being coordinated and delivered through a dedicated Contact Management Transformation Programme, supported by funding to drive system-wide improvements. We have already addressed many of the issues identified by the ICIBI and work is progressing well on the more complex areas, and are confident that, should the ICIBI return to this area, they will see significant improvement. 

The Population of Interest is a workflow tool for Immigration Enforcement, and as such is not any form of proxy for the overall illegal population. It cannot include all illegal migrants, such as those who have not come to the attention of law enforcement, and not everyone in the Population of Interest is yet suitable for enforcement action, including those who may have outstanding asylum claims. The tool makes an important contribution to the efficient and effective prioritisation of enforcement activity, but the Home Office fully accepts that the data that informs it needs further improvement. It remains too reliant on manual processes, and historic data, and we are taking steps to tackle this. These include data cleansing to remove historic records, particularly for absconders. With millions of data points, this process is complex and time consuming, but we are determined to make early progress. 

In addition to tackling the issues around data quality and systems, rightly identified by the ICIBI, we have also developed a strategy for improved contact management. Implementing this strategy may require legislative change, which could then enable the Home Office to maximise compliance with reporting regimes. Urgent work is ongoing across the Home Office to develop these proposals. 

It is important to note that the Population of Interest workflow is defined by indicators designed to guide Immigration Enforcement teams in identifying individuals for further assessment. Given the complex and highly person-specific nature of immigration casework, staff will make their own assessments of appropriate next steps and determine each individual’s suitability for further action.  

The Population of Interest workflow tool encompasses all arrival types, from those who abuse legal routes, such as visa overstayers, and those who arrive illegally.  

While every effort is made to ensure regular engagement with these individuals, not all records are consistently maintained, with some dating back several years. Additionally, some individuals have been identified as potentially of interest, but further work and engagement are required before Immigration Enforcement can determine their status.  

The report also references approximately 50,000 cases recorded as absconders, including an estimated 1,200 Foreign National Offenders (FNOs). These numbers were drawn from open absconder flags recorded on the Home Office system (Atlas) at the time of the review and include historical markers. 

The nature of absconding is complicated because individuals frequently come in and out of contact. Whilst the Home Office has processes for the recording of absconder events, and for seeking to bring such individuals back into contact, the recording of information about absconders is complex and the operational systems involved do not currently support the production of robust statistics on this area.  

Official statistics published by the Home Office are kept under review in line with the code of practice for statistics, taking into account a number of factors including user requests, the public resources required to compile the statistics, and importantly the quality and availability of data. The Home Office does not publish data on subjects where the information held is known to be of a quality that would be unsuitable for appropriately supporting public debate. 

Work is already underway to strengthen operational processes and improve the clarity and consistency of how absconder flags are applied, making it clearer for immigration officials interacting with individuals to know when a flag should be associated to a person. 

In the period since the Government took office, strong operational delivery has demonstrated what can be achieved even while wider improvement work is underway. Returns performance has risen markedly, with the highest levels seen in recent years: nearly 70,000 people with no right to be in the UK were returned between 1 July 2024 and 31 March 2026, including over 39,000 returns in the latest 12 month period (1 April 2025 to 31 March 2026), which is an increase of 7% on the previous year, and a 13% increase in enforced returns.  

Alongside strengthened operational delivery, the Department has also invested in improving the digital tools that support contact management. Since the inspection was conducted, the Department has scaled the use of messaging to remind individuals of visa expiries, promote voluntary returns, and help maintain engagement and compliance throughout the case progression journey.  

Building on this, a further £10 million has been allocated to support continued modernisation of contact management systems, including investment in the rollout of self-service reporting devices in reporting centres and police stations across the UK. These devices, which are planned to be deployed by December 2026, will provide a more efficient and reliable way for individuals on immigration bail to report, while enabling staff to focus on higher-value activity to progress cases and support increased detentions and removals. These results reflect strengthened grip across the system and provide a firm platform for further progress.  

In 2021 we introduced a digital reporting immigration bail condition.  

Today there are approximately 100,000 people who have this bail condition. Digital Reporting requires people to respond to us when we contact them using smart phones and emails, usually on a monthly basis. In addition to ensuring we keep contact details up to date we also promote voluntary return directly to these individuals and re-engage those that abscond. More recently, enhancements to digital contact have included the introduction of digital geo-location. Those subject to immigration bail participate in digital reporting whilst also providing their location details, including those arriving illegally by small boat and foreign national offenders. 

In November 2025 the Home Office published a set of comprehensive reforms to the Asylum and Returns system (‘Restoring Order and Control’). These reforms were aimed at reducing arrivals and increasing returns as well as commitments on safe and legal routes. These fundamental reforms to our asylum system will improve the end-to-end system and its performance, meaning a more streamlined journey from decision-making and case progression to enforcement and returns – bringing in new technology and systems to aid delivery. These changes will ensure the system is more responsive, resilient and focused on delivering outcomes in a fair, fast and efficient way 

We recognise that the recommendations provided align with our ongoing initiatives to enhance the efficiency, effectiveness and consistency of our contact management processes. The insights gained from this inspection will be instrumental in driving improvements across various functions and support our commitment to better manage the Population of Interest workflow and improve outcomes for the migrants involved.  

The ICIBI identified several areas for improvement and has made eight recommendations. The Home Office has accepted seven recommendations (1, 2, 3, 4, 5,7 and 8) and partially accepted one (6). 

Recommendation 1

Develop (and refresh as necessary) a narrative for use internally, and with a version for use externally, that explains what it is seeking to achieve with migrants without leave to remain in the UK, how it intends to achieve it, how it will measure success, and the risks and challenges it faces in maintaining contact with and managing this population. This narrative should break the population down into defined cohorts insofar as this helps understanding, and every effort should be made to quantify or estimate the size of the different cohorts.

Accepted

Date of Implementation: Completed 

The Department accepts this recommendation. The Department is clear that individuals with no legal basis to remain in the United Kingdom should leave and are committed to ensuring this happens. However, we recognise that a quick return is not always possible. In such cases, the Department seeks to ensure individuals remain in contact and comply with relevant requirements, including reporting obligations. 

A comprehensive Contact Management narrative has now been developed, setting out clear objectives, delivery approach, success measures, and the key risks and challenges associated with managing contact with this population. The narrative aims to achieve a system that enables efficient and effective contact management with migrants without leave to remain and will: 

• Ensure the Home Office maintains reliable contact with all relevant individuals, safeguarding the integrity of the migration system and upholding legal obligations. 

• Use contact management to promote compliance, support case progression, and facilitate returns where appropriate, while signposting safeguarding concerns. 

• Optimise resource use and build public confidence in the management of this population. 

The narrative recognises that some of the challenges will require significant policy change, investment in IT infrastructure and improved governance and oversight. Work is already underway across the Home Office to develop these proposals.  

The narrative provides greater clarity for staff and stakeholders and supports a more consistent system-wide approach to contact management. This work has been informed by end-to-end discovery and strengthened governance.  

The narrative will continue to be refined and refreshed through the Contact Management Transformation Programme as wider system improvements are delivered.

Recommendation 2

Map out the key contact points within the ‘end-to-end’ journey from first encounter to conclusion (e.g. regularisation of status, voluntary departure or removal) for migrants without leave to remain (broken down by cohort as necessary), and identify at each point: the purpose and desired outcome, including the minimum requirements from the contact (confirming contact details and any change of circumstances, for example); who is responsible for delivery; the hand-offs and any dependencies.

Accepted

Date of implementation: Completed  

The Department accepts this recommendation. A new Director level governance group has been established across the Migration and Borders System. As part of the initial discovery activity led through this governance, the Department has completed a comprehensive mapping exercise covering key processes and interactions where contact details are captured and recorded across the Migration and Borders System to ensure a full understanding of the end-to-end journey and has informed the development of the Migration and Borders Contact Management Strategy. Completion of this discovery phase means that the recommendation has now been implemented, and the resulting insights will continue to inform ongoing improvements to operational processes and contact management.

Recommendation 3

Review data collection in relation to all aspects of contact management and identify and fix gaps and quality issues, including but not limited to the data collected at Western Jet Foil and Manston; data in relation to entry, movement and exit from the asylum accommodation estate and absences (setting out the minimum steps that must be taken before this may be used to withdraw a claim); how and where information is recorded on Atlas; immigration bail records.

Accepted

Date of implementation: July 2027 

The Department recognises that the availability and quality of operational data is critical to effective contact management, case progression, and public confidence. We acknowledge that there are gaps and inconsistencies in how data is captured across the end-to-end contact management journey, including at initial intake, within the asylum accommodation estate, and in case working systems such as Atlas. 

We are taking forward a targeted programme of work across the Migration and Borders System to strengthen data collection, quality, and consistency. This includes building on existing thematic reviews to establish clearer standards for what data must be captured at key points in the system, improving guidance and training for frontline staff, and strengthening governance to ensure consistent application across operations. This work is coordinated through system-level contact management governance and supports wider efforts to improve data integration and management information. 

Specific action is underway in priority areas identified by the inspection. At initial intake, the Small Boats Operational Command (SBOC) and the Illegal Migration Intake Unit (IMIU) are reinforcing processes and guidance to ensure that key contact and identity information is recorded consistently prior to handover. Work is also progressing to improve how data is recorded and maintained on Atlas, including clarifying expectations for recording contact events and immigration bail activity. In relation to absconders, we are reviewing the application of absconder flags to ensure consistent and accurate use, supported by clearer operational guidance. 

Reporting Offender Management (ROM) centres have made contact details more readily available within existing systems and introduced a best practice guide to ensure they are verified and updated during every event. As part of our response to embrace technology, automation and data quality to deliver modern reporting, we continue to modernise and transform our reporting bail technology and processes with the development and introduction of 50 Self-Service Reporting kiosks in our ROM centres and busiest police stations. Devices will deliver other enhancements including verification of identity using facial recognition technology, routinely confirming and obtaining new contact details whilst identifying through business rules individuals who cases may be more suitable for progression through manual intervention.  

The Department will, by July 2027, complete a full review of data collection and management information across contact management and implement improvements to address identified gaps with necessary funding and prioritisation to enable delivery. This will include standardising data capture at key stages of the contact management journey, strengthening assurance processes, and improving the reliability of data used for operational decision-making. In the interim, we will reinforce expectations with staff on the accurate capture and maintenance of contact data at all points of interaction.

Recommendation 4

Agree (between Customer Services Group and Immigration Enforcement) a prioritised list of enhancements to Atlas to support contact management and set out a clear delivery timetable.

Accepted

Date of implementation: July 2027 

The Department has prioritised several improvements to Atlas to enhance contact management. These enhancements are currently scheduled for delivery over the next eighteen months, although delivery timelines are dependent on wider technology change capacity. We have designed the Reporting Overview service, to provide a clearer view of reporting status and compliance across all channels. Similarly, plans are in train to update the ‘View and Record Communications’ service, developed in collaboration with the Asylum Group and Border Security Command. 

The Home Office has decommissioned the legacy caseworking system. Atlas will now provide continuous improvement to ensure operational efficiencies are seen. Alongside, enabling the operationalisation of any changes in ministerial priorities. 

The Home Office has specialist teams focused on improving data quality. This includes reviewing operational processes, improving technology and staff training to reduce data quality errors and increase adoption of strategic products, whilst minimising use of grey IT.

Recommendation 5a

Immediately: Clarify whether the mode and frequency of immigration bail reporting suggested in ‘Reporting and offender management’ guidance should apply unless there is a specific (and documented) reason why they would be inappropriate; clarify who is empowered to decide the reporting mode and frequency, what steps have to be taken before a decision can be made (e.g. completion of a ‘mitigating circumstances interview’), and how mode and frequency can be varied; socialise this amongst Immigration Enforcement managers and staff involved with face-to-face, telephone and digital reporting, listening to and responding to their concerns.

Accepted

Date of Implementation: July 2026 

The Department accepts this recommendation. The Department agrees that clarity and consistency in the application of immigration bail reporting conditions is essential to ensure fair and proportionate contact management.  

The current ‘Reporting and Offender Management’ (ROM) guidance already provides a clear framework for determining the mode and frequency of reporting. It sets out suggested types and frequency of reporting for different cohorts, while also making clear that each case must be considered on its own merits. 

The guidance confirms that local ROM managers are responsible for deciding the appropriate reporting arrangements, except in specific cases managed by the Foreign National Offenders Returns Command (FNORC). These decisions are expected to be informed by a First Reporting Event interview, which includes a mitigating circumstances assessment. The process for varying reporting conditions, whether initiated by the Department or requested by the individual or their representative, is also covered in detail in the guidance. 

To reinforce consistent application and ensure staff are confident in using the guidance: 

• Relevant sections of the guidance, including a revised reporting frequency table, were updated and shared with all ROM Managers in September 2025 to improve clarity and usability, alongside the full guidance to ensure accessibility. 

• ROM Managers were asked to engage their teams, gather feedback and respond to concerns. Feedback has been reviewed and incorporated where appropriate. 

• The guidance has been reordered to improve flow and readability, and the final version has now been published on GOV.UK. 

To support effective implementation: 

• A communication will be issued to all staff, setting out the changes. 

• Further explanation will be provided through a dedicated call with all ROM staff. 

This approach ensures that staff are clear on expectations, confident in applying the guidance, and supported to make fair, proportionate and well-documented decisions on reporting conditions.

Recommendation 5b

In the short- to medium-term: Gather evidence of the strengths and weaknesses of the different reporting modes with a view to producing a ‘Target Operating Model’ that makes the best use of each individually and as part of an integrated system, with a focus on how to make each reporting event as meaningful as possible.

Accepted

Date of implementation: July 2027 

The Department recognises the importance of ensuring that immigration bail reporting is effective, proportionate, and meaningful. A range of reporting modes are currently in use, including face-to-face, telephone, digital reporting, and electronic monitoring. These are supported by published guidance and operational strategies across Immigration Enforcement. These strategies reflect a ‘blended reporting’ approach, which allows the Department to apply the most appropriate reporting conditions based on individual circumstances, risk, and removability. This approach provides flexibility, resilience, and capacity to manage contact with individuals in a way that supports compliance and case progression. 

The Department will undertake work to assess the strengths and limitations of each reporting mode across the end-to-end immigration journey. This will inform the development of a single, integrated Target Operating Model (TOM) that sets out how each mode should be used, individually and in combination, to deliver effective and proportionate contact management. 

Building on the mapping of key contact points completed under Recommendation 2, over the next thirteen months, this work will contribute to wider efforts to embed a cross-system contact management strategy across the Migration and Borders system.

Recommendation 6

Produce an analysis of the use and value of electronic monitoring of FNOs that can be used to inform how it is best deployed in future and also to engage with the concerns of stakeholders about its use.

Partially Accepted

Date of implementation: January 2027 

The Department is committed to using every means at its disposal to appropriately monitor Foreign National Offenders (FNOs). Legislation places a statutory duty on the Department to impose electronic monitoring as a condition of immigration bail for individuals subject to deportation action, unless one of a number of statutory exemptions applies.  

The Department recognises that operational issues need to be addressed. This work is now being taken forward with the Ministry of Justice and contracted providers.

As part of the work being undertaken in response to Recommendation 5b, the Department will also work with stakeholders to further consider the role of the electronic monitoring of FNOs. This will include how electronic monitoring is used alongside other reporting modes, how it is used in practice and how it contributes to immigration outcomes. The Department expects this analysis to be completed within seven months.  

The outcome will be a strengthened Target Operating Model, which takes stakeholder views into account, and which robustly monitors FNOs.

Recommendation 7

In relation to the ‘failure to report’ and absconder processes, confirm that aims and objectives are clearly defined, along with relevant success criteria; that the priorities of relevant Home Office teams and other agencies (e.g. the police) are aligned; and that assurance measures are in place to monitor the processes and to measure effectiveness. 

Note: This recommendation repeats part of a recommendation from ICIBI’s 2017 inspection of immigration reporting centres (“ROMs”). The other part of this recommendation concerned conducting fundamental review, but this is unnecessary since this was done in 2023.

Accepted

Date of implementation: January 2027 

The Department accepts this recommendation and closer working with other relevant Home Office teams is already in place to ensure tracing activities are aligned. We are strengthening our absconder processes and guidance, across the Department to ensure these are clearer to immigration officials when interacting with individuals. Work is underway, to identify and build new technologies needed to support this change. This is part of a broader end‑to‑end contact management strategy focused on maintaining contact, driving compliance, and progressing cases to conclusion. 

The ROM Fail to Report (FTR) / Absconder strategy aims to: 

• Maintain meaningful contact 

• Drive case progression to enforcement outcomes 

• Act quickly on loss of contact 

We are introducing self‑service reporting kiosks across all 13 ROM sites and selected high‑footfall police stations, significantly increasing the capacity of ROM centres. These devices will allow individuals to report quickly and securely without the need for a staff‑led appointment, supporting a more efficient and consistent reporting process.  

Self‑service reporting devices are designed to automate routine and low-complexity reporting activity, enabling staff to focus on higher‑priority operations. The kiosks also help maintain up‑to‑date contact information by validating service users’ details at every reporting event. 

The move towards kiosk‑based reporting is part of Immigration Enforcement’s wider modernisation agenda, embracing digital solutions to streamline processes, improve user experience, and strengthen operational resilience. 

All self‑service reporting events will be supported by secure technology that confirms identity, captures accurate information, and ensures reporting requirements are met in line with Home Office standards. 

This change will directly support the organisations strategy to bring more individuals into regular contact and to ensure that contact is more meaningful. Work is already underway to make the most of this additional future capacity with ROM staff utilising new and existing business rules to apply Immigration Bail reporting conditions to more individuals include both FNOs and non-FNOs.  

Dependent on technical delivery technology being delivered, these changes are expected to be completed and implemented within the next seven months.

Recommendation 8

Review the scope of the Asylum and Returns Transformation (ART) programme and determine whether it can be extended to accommodate the body of work set out in these recommendations and identified in this inspection report. If not, create a suitable governance structure to oversee this work.

Accepted

Date of implementation: Complete 

The Department accepts this recommendation. Since the inspection was carried out, the previous Asylum and Returns Transformation (ART) programme has been redesigned into the programme to deliver the Government’s Asylum Policy Statement. These changes are a fundamental reform of our system to strengthen border control and increase returns.  

The Department has completed a review of how best to oversee the work arising from the inspection. A new Director-level governance group, led from Immigration Enforcement, has been established across the Migration and Borders System to provide clear senior oversight, align activity and ensure that crosscutting work is coordinated effectively.  

In addition, a dedicated Contact Management Transformation Programme has been established to bring together the activity required to deliver the recommendations, supported by funding to drive system-wide improvements. This programme provides a structured approach to implementation, ensuring that progress is coordinated, monitored and delivered at pace. 

This governance now provides the mechanism through which progress is monitored and driven, ensuring that the recommendations are taken forward coherently across the system.  

Given the breadth and interconnected nature of the recommendations, a systems-wide approach remains essential, and the governance now in place supports sustained improvement across the Migration and Borders System.