National statistics

Offender management statistics quarterly: April to June 2023

Published 26 October 2023

Applies to England and Wales

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Quarterly: April to June 2023

Prison population: 30 September 2023

Main Points


87,576 prisoners in England and Wales as at 30 September 2023 This represented a rise of 8% compared to the same period in the previous year.

17,430 first receptions into prison between April and June 2023 This was a rise of 9% compared to the same period in 2022.

12,132 releases from sentences between April and June 2023 This was 6% higher than the same period in 2022.

49,556 adjudication outcomes between April and June 2023 This was 29% higher than the same period in 2022. Additional days were awarded as punishment on 1,000 occasions – this was a 56% rise compared to the same period in 2022.

6,814 licence recalls between April and June 2023 This was a 19% increase on the same quarter in 2022.

  238,264 offenders on probation at the end of June 2023 This number decreased by 2% compared to the number of offenders supervised as at 30 June 2022.

This publication provides offender management quarterly statistics for the latest date available and provides comparisons to the previous year.

For technical detail please refer to the accompanying guide, ‘Guide to offender management statistics’.

Statistician’s comment

In this publication we are reporting on the prison population as at 30 September 2023, with comparisons to the same point in 2022. Over this 12-month period, the total prison population has risen by around 6,300 (which represents an 8% increase) to 87,576. The population as at 30 September 2023 was around 4,600 higher than pre-pandemic levels (for comparison, the 31 March 2020 prison population was 82,990).

The remand population trend that we have seen since early 2020 has continued (a 12% increase between 30 September 2022 and 30 September 2023). There were increases over the past 12 months in both elements of the remand population - the ‘untried’ population (those held pre-conviction) increased by 8% and the ‘convicted unsentenced’ population (those held after having been convicted but awaiting their sentencing outcome) increased by 18%. This likely reflects the impact of continuing court recovery following COVID-19 restrictions, resulting in an increase in the number of prisoners held on remand. The large increase in the remand population this quarter has likely also been driven in part by strike action by the Criminal Bar Association during autumn 2022[footnote 1].

The remand prison population as at 30 September 2023 was 16,196. This represents the highest level for at least 50 years (effectively a ‘record high’).

The ‘recall prison population’ (those returned to prison for breaching their release conditions) was 12,031 as at 30 September 2023 (15% higher than 30 September 2022, and also a ‘record high’). The increasing recall population is likely driven by a combination of factors such as a longer-term increase in the average length of determinate sentences and an increase in the number of people serving indeterminate sentences or sentences with an extended licence.

The prisoner flows data in this publication cover the period April to June 2023 (with the comparison period being April to June 2022). The number of prisoner first receptions from April to June 2023 was around 17,400 (9% higher than the equivalent period in 2022). This represents a recovery to the level of between 17,000 and 18,000 per quarter seen pre-pandemic.

Release on Temporary Licence (ROTL) continues to ‘bounce back’ following the large drop during the COVID-19 period. There were around 100,000 ROTL incidences between April and June 2023 – this is a 6% increase compared to the same quarter in 2022, but still a little lower than the pre-COVID levels of around 110,000 per quarter.

1. Population


The prison population stood at 87,576 on 30 September 2023.

The sentenced prison population stood at 70,999 (81% of the total); the remand prison population stood at 16,196 (18%) and the non-criminal prison population stood at 381 (less than 0.5%).


Figure 1: Prison populations, September 2003 to 2023 (Source: Table 1.1 and previous Offender Management Statistics Quarterly publications)

Remand prison population

The September 2023 remand population figure of 16,196 is 12% higher than in September 2022 and is the highest September figure in at least the last fifty years. The untried prison population rose by 8% (to 10,521) when compared to the end of September 2022 whilst the convicted unsentenced population rose by 18% (to 5,675) over the same period.

Most of those in custody on remand were being held for either: violence against the person (40% of the untried population and 27% of the convicted unsentenced population); or drug offences (16% of the untried population and 25% of the convicted unsentenced population). The introduction of new domestic abuse legislation active from June 2022[footnote 2] appears to be a contributing factor to a substantial increase in the number of prisoners associated with a violence against the person offence (56% increase in the untried population, 84% increase in the convicted unsentenced population in the last 12 months).

While white prisoners make up 73% of the sentenced population, they make up only 65% of the remand population. All other reported ethnic groups have a larger proportional representation in the remand population than they do in the sentenced population.

Sentenced prison population[footnote 3]

The sentenced population was 70,999 which is a 7% increase from the same point 12 months earlier. The largest percentage increases were seen in the recall population, the number of people serving determinate sentences of twelve months to less than five years and those serving an Extended Determinate Sentence (see below).

Most prisoners under an immediate custodial sentence have been convicted of a violence against the person offence (32%), sexual offence (20%) or drug offence (17%). All three offence groups have seen increases in their population over the last year (11%, 12%, and 15% respectively in the 12 months to 30 September 2023).

Extended Determinate Sentences (EDS)

EDS constitute a custodial term, the majority of which is served in prison, followed by an additional extended period of licence in the community. They can be imposed if the offender is found guilty of, or has a previous conviction for, a specific sexual, violent or terrorist offence. On 30 September 2023, 7,778 prisoners were serving such sentences; an 11% increase compared to the same time last year. Prisoners serving EDS account for 9% of the total prison population.

Indeterminate sentences

On 30 September 2023, there were 8,526 (8,191 male; 335 female) ‘unreleased’ prisoners serving indeterminate sentences (Imprisonment for Public Protection (IPP) and life sentences). This largely the same as 30 September 2022 (a less than 0.5% decrease).

The number of ‘unreleased’ prisoners (7,257) serving life sentences has increased by 2% compared to one year ago whereas the number of ‘unreleased’ IPP prisoners fell by 12% to 1,269. At point of sentencing, offenders are given a minimum time period (“tariff”) that they must serve in prison before they can apply to the Parole Board for release. The majority (55%) of the remaining ‘unreleased’ IPP prisoners have been held for at least ten years beyond the end of their tariff.

The number of ‘recalled’ prisoners serving life sentences increased by 20% to 871 when compared to September 2022, whilst the number of ‘recalled’ IPP prisoners saw a 14% increase to 1,652.

Recall to custody

The population recalled to custody (12,031 prisoners) has increased by 15% relative to the total a year earlier. The increasing recall population is likely driven by a combination of factors such as a longer-term increase in the average length of determinate sentences and an increase in the number of people serving indeterminate sentences or sentences with an extended licence.

Foreign National Offenders (FNOs)

There were 10,418 (3,360 remand, 6,706 sentenced and 352 non-criminal) foreign nationals held in custody on 30 September 2023; representing 12% of the total prison population. The number of FNOs in the prison population has increased by 8% compared to 30 September 2022, consistent with the percentage growth in the number of British Nationals. This increase was driven by a 13% increase in the FNO remand population and an 11% increase in the sentenced FNO population. The non-criminal Foreign National population fell by 44% over the same period. The most common nationalities after British Nationals in prisons are Albanian (14% of the FNO prison population), Polish (8%), Romanian (7%), Irish (6%), Jamaican (4%), and Lithuanian (4%).

Operation Safeguard

On the 31 July 2023 eight male prisoners were being held in police cells rather than prisons, and on the 30 September 2023 this figure was 11. This was part of Operation Safeguard[footnote 4], a measure implemented to help cope with prison capacity constraints.

2. Prison receptions and admissions


17,430 offenders were received into custody as first receptions in the latest quarter.

11,784 were remand first receptions, 5,581 were sentenced first receptions and 65 were civil non-criminal first receptions.


Offender first receptions

The total number of first receptions between April and June 2023 was 9% higher than the same quarter in 2022. The number of first receptions is now back to similar levels observed pre-pandemic at around 17,000 to 18,000 first receptions per quarter.

There were 3,181 first receptions of foreign nationals between April and June 2023, which is 20% higher compared to the same period in 2022. The representation of foreign nationals amongst first receptions has remained the same since 2020, around 17%-18% of first receptions were foreign nationals. The five foreign nationalities with the highest numbers of first receptions in the latest quarter were: Albanian (608), Romanian (342), Polish (286), Irish (136), and Lithuanian (130). When taken together, these five nationalities accounted for just under half (47%) of the 3,181 first receptions of foreign nationals in Q2 (April to June) 2023.

Prison admissions

Compared to the same quarter in 2022, the number of remand and recall admissions increased. Remand admissions can be split between untried and convicted unsentenced admissions, which increased by 18% and 19% respectively, while recall admissions increased by 20%.

When considering immediate custodial sentenced admissions, violence against the person had the largest number of sentenced admissions overall, accounting for 22% of all immediate custodial admissions. The number of immediate custodial sentenced admissions for robbery increased by 33% when compared to the same period last year. The largest overall decrease occurred in the summary non-motoring group, down by 41% (this is likely attributable to data improvement work). Compared to females, males made up a larger proportion of sentenced admissions across each offence group, but there are certain offences where this difference was more pronounced - sexual offences and summary motoring (see figure 2 below).

Figure 2: Representation (percentage) of male and female immediate custodial sentenced prisoner admissions in each offence group between April and June 2023 (Source: Table 2.5b)

When compared with the same quarter last year, there were increases in sentenced admissions across all sentence length bands, except for sentences of less than 12 months, extended determinate sentences, and indeterminate sentences. The largest percentage increase was for determinate sentences of 10 to less than 14 years, up 21%.

Former Members of the Armed Forces

When individuals are first received into custody, they complete a Basic Custody Screening (BCS) process. This serves to identify their needs in areas including employment, childcare and healthcare. As part of this process, they are asked whether they had served in the armed services. Between April and June 2023, 204 matched individuals first received into custody answered that they had served in the armed services - this represented just above 3% of those who provided a response to the question at the point of their first reception during the latest quarter.

3. Releases


12,132 offenders were released from custody during in the latest quarter.

12,015 releases from determinate sentences and 117 from indeterminate sentences.


Prison releases from custodial sentences

The number of prisoner releases between April and June 2023 was 6% higher than the same quarter in 2022.

Between April and June 2023, there was a 14% increase in the number of prisoners released from sentences greater than 6 months to less than 12 months, as compared to the same period in 2022. Similarly, a 15% increase was observed for releases from sentences of 12 months to less than 4 years. In contrast, releases from longer sentences of 4 years or more (excluding indeterminate sentences) decreased by 6% compared to the same period last year. Releases from indeterminate sentences decreased by 2% compared to the same quarter in 2022, driven by an increase in releases from life sentences.

Releases on Home Detention Curfew (HDC)

There were 2,186 offenders released on HDC in the latest quarter, a decrease of 1% compared to the same period last year. The number of offenders who might have been eligible for HDC (based on sentence length) over the same period was up 14% (11,119) compared to the same quarter in 2022.

Releases on Temporary Licence (ROTL)

ROTL numbers have continued to increase as shown by the 6% increase in ROTL incidences in the quarter ending June 2023 compared to the same period in 2022. However, the number of ROTL incidences remains below pre-pandemic levels. There were 99,739 incidences of ROTL during the quarter ending June 2023, compared to 119,069 in the quarter ending December 2019, the last pre-pandemic quarter. Of the ROTL incidences in the latest quarter, 66% were for ‘Work Related’ reasons.

The number of individuals receiving at least one incidence of ROTL between April and June 2023 continued to rise also, up 4% from the same quarter in 2022. 4,282 individuals were released on temporary licence in the latest quarter.

There were 238 Temporary Release Failures (TRF) between April and June 2023 which represents a rate of around 1 TRF for every 419 incidences of ROTL. The rate of TRFs this quarter has increased by a third compared to the same quarter last year.

Prisoner transfers

Between April and June 2023 there were 19,978 incidences of prisoner transfer, with 17,260 prisoners having at least one incidence of transfer. Both figures represent increases since the same period of 2022, with rises of 9% and 11% respectively, as transfers continue to recover towards pre-pandemic levels.

4. Adjudications


There were 49,556 adjudication outcomes between April and June 2023.

This is an increase of 29% on the same quarter in the previous year. Additional days were awarded as punishment on 1,000 occasions in this quarter.

Two thirds (66%) of adjudications were proven.


There was a 28% increase in the number of proven adjudications (to 32,855) from the same quarter in 2022. This in turn resulted in a 31% rise in the number of punishments (to 57,977).

A third (32%) of proven adjudications were for offences of ‘disobedience and disrespect’, with the next largest category being ‘unauthorised transactions’ (30%).

There were increases the in number of proven adjudications across all adjudication offence types except escape/abscond. The largest rise was in ‘Unauthorised transactions’, which rose by 37% (to 9,741). The number of proven offences for ‘willful damage’ and ‘disobedience and disrespect’ rose by 34% (to 3,606) and 23% (to 10,503) respectively on the same quarter of the previous year.

The number of proven adjudications for ‘violence’ in the latest quarter increased by 12% (to 4,685) compared to the same period in 2022. This is still below pre-pandemic levels (there were 4,830 proven adjudications for ‘violence’ between January and March 2020).

Additional days were awarded as punishment on 1,000 occasions between April and June 2023; this is a 56% rise compared with the same period in 2022. A total of 15,474 days were awarded in the latest quarter – this is a 55% rise compared with the same quarter in 2022 (10,006 days between April and June 2022).

While the overall number of adjudication outcomes increased by 29% in comparison to Q2 2022, this is still lower than pre-pandemic levels (of around 50,000 per quarter).

More information about the trends in Adjudications between 2011 and 2018 can be found in ‘The Adjudications Story’ publication.

5. Licence recalls


The number of licence recalls between April and June 2023 was 6,814, of which 354 were recalls from Home Detention Curfew (HDC).

The total number of recalls increased by 19% compared to the same quarter in 2022.


The total number of quarterly recalls trended upwards between October-December 2016 and July-September 2019. There was a marked increase in the number of quarterly recalls from early 2018 to July-September 2019, mostly due to increases in the number of HDC recalls and recalls of offenders from determinate sentences of 12 months or more. These numbers then began to fall, and the downward shift was accelerated by the introduction of COVID-19 restrictions. Following relaxation of COVID-19 restrictions in early 2021, the number of quarterly recalls has generally gone up with the latest figure being an increase of 19% from a year ago. However, the current quarter saw a slight drop of 10 recalls (0.1%) from the previous quarter.

Following relative stability up to January-March 2020, the number of quarterly recalls of offenders released from a sentence of under 12 months (ORA recalls) noticeably began to fall, falling below 2,000 for the first time since July-September 2016, partly due to the introduction of COVID-19 restrictions. The relaxation of COVID-19 restrictions and the unification of the probation services in June 2021 (where these offenders are now recalled under a set of requirements different from that under the old Community Rehabilitation Companies) have contributed to increases in these numbers, with the latest figure (2,733) representing an increase of 2% from the previous quarter and an increase of 38% from a year ago. Increases in these recalls have mostly driven increases in overall recall numbers since the unification in mid-2021.

The pattern in quarterly recalls of offenders with a sentence of 12 months or more (including those with indeterminate sentences) used to mirror that of the overall quarterly recalls during relative stability in ORA recalls. In recent quarters, the share of these recalls has dropped from about 2 out of 3 to about 6 out 10 recalls, coinciding with increases in ORA recalls. Between April and June 2023, there were 4,081 recalls of such offenders, representing a decrease of 1% from the previous quarter and an increase of 9% from a year ago.

Ethnicity proportions in quarterly recalls have remained relatively stable, with about 8 in 10 recalls being white, 8% being black and 4% being Asian in the latest figures.

There usually is more than one reason for recalling an offender on licence. Of recalls in April-June 2023, about 28% involved a charge of further offending, 74% involved non-compliance, 31% involved failure to keep in touch, and 27% involved failure to reside.

Between April and June 2023, 107 IPP prisoners and 55 prisoners serving a life sentence were rereleased, having previously been returned to custody for a breach of licence conditions. These together represent an increase of 5% from the same quarter a year ago.

Offenders not returned to custody

Of all those released on licence and recalled to custody due to breaching the conditions of their licence between April 1999 and June 2023, there were 2,302 who had not been returned to custody by the end of September 2023.

A further 15 offenders had not been returned to custody as of September 2023 after recall between 1984 and April 1999, meaning the total number of offenders not returned to custody at the end of September 2023 was 2,317. These figures include some offenders believed to be dead or living abroad but who have not been confirmed as dead or deported.

Of the 2,317 not returned to custody by 30 September 2023, 338 had originally been serving a prison sentence for violence against the person offences and a further 76 for sexual offences.

6. Probation

Future probation statistics

We are starting the process of transitioning from legacy systems to more modern data processing methods to enable greater functionality that, in turn, can present further opportunities for more thorough, accurate and timely analysis and insight. We are also reviewing how we publish probation statistics, and where they should be located. As a consequence, there will be a pause in publishing these statistics for January 2024, with the final two quarters of 2023 to be published in April 2024. This will allow us to focus on transitioning our data processes, make improvements to our publication, and develop these statistics to meet new and developing user needs. Users can contact us via the email address probation-statistics-enquiries@justice.gov.uk if they have any queries. Note the pause in January 2024 will affect the probation statistics only. This decision has been discussed with both the Head of Profession for Statistics in the Ministry of Justice and the Office for Statistics Regulation. Moving to the new system retains our commitment to customer needs, delivering quality and value, and consolidating the trustworthiness of these statistics.


The total number of offenders on probation (i.e. court orders and pre/post-release supervision) at the end of June 2023 was 238,264.

This represents a 2% decrease compared to the end of June 2022 and an increase of 9% compared to June 2013.


Latest figures continue to show that the trends in probation starts and caseload volumes are at similar levels to those observed prior to the COVID-19 pandemic[footnote 5]; this follows increases more broadly since operational restrictions[footnote 6] introduced in response to the pandemic, were lifted in late spring 2020.

This release includes new breakdowns for the Imprisonment for Public Protection probation population, which can be found in tables 612, 6.13 and 6.14.

Caseload

As of 30 June 2023, there were 238,264 offenders supervised by the Probation Service in England and Wales (Figure 3), representing a 2% decrease compared to 30 June 2022 and a 0.5% decrease compared to 31 March 2023.

Between the end of June 2022 and the end of June 2023, court order caseload decreased by 5% from 115,456 to 109,133, with the number of offenders on a community order (CO) decreasing by 7% and those on a suspended sentence order (SSO) with requirements decreasing by 3%.

The total caseload of offenders supervised before or after release from prison at the end of June 2023 was 133,486, representing an increase of 1% compared to the end of June 2022.

Figure 3: Number of offenders under Probation Service supervision, 30 June 2013 to 30 June 2023 (Table 6.6 is the source for figures from 2023, Table 4.6 is the source between 2018 and 2022, while Table 4.7 is the source prior to 2018)[footnote 7]

Starts

Between April and June 2023, 38,490 offenders started court order or pre-release probation supervision (Figure 4), representing a decrease of 6% on the previous quarter and is broadly equivalent to the same quarter a year ago.

Between April and June 2023, the number of offenders starting court orders specifically, decreased by 6% compared to the previous quarter, and decreased by 3% compared to the same quarter a year ago. The number of offenders starting COs decreased by 6% to 14,869 compared to the previous quarter and decreased by 4% compared to the same quarter a year ago.

Meanwhile, the number of offenders starting SSOs with requirements decreased by 7% to 7,930 compared to the previous quarter and decreased by 3% compared to the same quarter in the previous year. Additionally, over the latest quarter, there was a decrease of 6% in the number of offenders starting pre-release supervision compared to the previous quarter (from 16,554 to 15,579) and an increase of 5% compared to the same quarter in the previous year.

Figure 4: Number of offenders starting supervision under the Probation Service, July to September 2020 to April to June 2023 (source: Table 6.1 from January to March 2023, Table 4.1 prior to January to March 2023) [footnote 8]

Between April and June 2023, 24,242 requirements started under COs and 14,360 requirements started under SSOs, representing decreases of 2% and 1% respectively compared to the same period in the previous year. Over the same period, rehabilitation requirements started under COs increased by 1% to 10,587 but were broadly equivalent at 6,546 under SSOs; this remains the most common requirement included within a CO or SSO.

Under COs, there were increases across most requirement types compared to the same quarter in 2022. The most notable increases under COs were electronic monitoring (by 228% to 844), mental health requirements (by 60% to 509), and alcohol abstinence and monitoring (by 14% to 777). However, curfew requirements decreased by 98% to 23. Under SSOs, around half of the requirement types increased. The most notable increases were also in electronic monitoring (by 236% to 565), mental health requirements (by 43% to 258), alcohol abstinence and monitoring (by 13% to 414), and drug treatment requirements (also by 13% to 659). However, curfew requirements decreased by 97% to 21.

The substantial increase in electronic monitoring in recent quarters, and decrease in curfew requirements, across COs and SSOs is likely due to a change in recording practices following the introduction of updated recording instructions to probation staff, rather than any real change in the imposition of these requirements. Specifically, from October 2022, the recording of curfew requirements (with and without electronic monitoring) has been reformed to more specifically, and correctly, categorise these as such.

The increase in mental health treatment requirements (MHTR) within COs and SSOs over recent quarters is linked to a scaling up of the availability to sentence to this requirement across the criminal courts of England. This follows the introduction of new MHTR services provided by NHS England and is part of an initiative[footnote 9] that aims to reduce reoffending and short custodial sentences by addressing the underlying mental health issues which may be contributing towards offending behaviours.

Regarding some of the most frequently used combinations of requirements, rehabilitation requirements combined separately with drug treatment, alcohol treatment, and alcohol abstinence and monitoring requirements increased by 23%, 21% and 7% respectively under COs in April to June 2023 compared to the same period a year ago. Under SSOs, rehabilitation requirements combined separately with mental health treatment, alcohol abstinence and monitoring, and drug treatment requirements increased by 37%, 16% and 8% respectively.

Terminations

Of the 14,790 COs and 7,569 SSOs terminated between April and June 2023, 73% and 80% respectively were terminated successfully, i.e., ran their full course or were terminated early for good progress.

Pre-sentence reports

In the quarter April to June 2023, the total number of pre-sentence reports (PSRs) prepared by the Probation Service decreased by 4% to 22,214 compared to the previous quarter and increased by 11% compared to the same quarter in 2022.

The number of SSOs proposed in PSRs has been steeply declining since 2018. This decline is associated with the change in 2018 of the guidelines to probation staff on recommending suspended sentence orders in PSRs[footnote 10]. As a result, concordance rates for SSOs should be interpreted with caution. In the year ending June 2023, 88% of immediate custodial sentences proposed in PSRs resulted in that sentence being given, representing the highest concordance between sentence proposed and sentence given, excluding SSOs.

Further information

This publication presents quarterly data trends.

Our statisticians regularly review the content of publications. Development of new and improved statistical outputs is usually dependent on reallocating existing resources. As part of our continual review and prioritisation, we welcome user feedback on existing outputs including content, breadth, frequency and methodology. Please send any comments you have on this publication including suggestions for further developments or reductions in content.

Accompanying files

As well as this bulletin, the following products are published as part of this release:

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Next update: 25 January 2024

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  1. Further contextual information regarding the impact of the Criminal Bar Association action on court cases can be found in the most recent Criminal Court Statistics publication here:‘https://www.gov.uk/government/statistics/criminal-court-statistics-quarterly-october-to-december-2022’

  2. ‘https://www.gov.uk/government/news/new-non-fatal-strangulation-offence-comes-into-force’

  3. The sharp fall (-61% compared to September 2022) in the summary non-motoring immediate custodial sentence population is primarily the result of data quality improvement work which has updated the offence group for some prisoners that were previously recorded in this category. 

  4. ‘https://hansard.parliament.uk/Commons/2022-11-30/debates/520966EF-BB43-4380-8800-21C46222BE00/PrisonCapacity’

  5. Total caseload as at 31 December 2019 (i.e. the last reporting period prior to the pandemic) stood at 247,759. ‘https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/981212/Probation_Q4_2020.ods’

  6. This included temporary court closures 

  7. The number of offenders on the probation caseload in 2020 was substantially reduced as a result of the operational restrictions that were put in place on the 23 March 2020 in response to the COVID-19 pandemic. While the impact of these operational restrictions continued into subsequent periods, figures in more recent periods have recovered to pre-pandemic levels. 

  8. Between April and June 2020, the number of cases processed at the criminal courts was substantially reduced as a result of the operational restrictions that were put in place on 23 March 2020 in response to the COVID-19 pandemic. While the impact of these operational restrictions continued into subsequent periods, figures in more recent periods have recovered to pre-pandemic levels. 

  9. The initiative started in 2017 in five areas, with a national roll out to be completed by mid-2024. 

  10. The Sentencing Council guideline, effective from 1 February 2017, provides guidance for sentencers on the imposition of community and custodial sentences, and is available at:‘https://www.sentencingcouncil.org.uk/overarching-guides/magistrates-court/item/imposition-of-community-and-custodial-sentences/’