Voices in Justice: Parole Reform in Scotland: Consultation Analysis

1. Introduction

1.1 The Scottish Government has carried out a public consultation on reforming the parole system. This report presents the findings of an independent analysis of the responses to the consultation.

Policy context

1.2 Parole is an important part of the justice system in Scotland. The parole system enables offenders given custodial sentences to be released from prison to serve the remainder of their sentence in the community on licence under the supervision of a justice social worker. While parole policy is set by the Scottish Government, individual parole cases are considered by the independent Parole Board for Scotland. The Parole Board has a number of statutory functions, largely set out in the Prisoners and Criminal Proceedings (Scotland) Act 1993. The procedural rules that govern the parole process are set out in secondary legislation, the Parole Board (Scotland) Rules 2022 (the Parole Rules).

1.3 The Scottish Government’s aim is to establish a parole system that is ‘person-centred, balanced, and trauma-informed’ – one that hears victims, supports rehabilitation, protects the public, and respects the rights and needs of all involved.

1.4 The parole system has undergone change in recent years, particularly with regard to strengthening the voice of victims in the process. A 2019 consultation, Transforming Parole in Scotland, led to a series of reforms including the establishment of a dedicated team at Parole Scotland^[1] who provide guidance and support to victims throughout the parole process and a system for enabling victims to attend and observe parole hearings. Additionally, the Victims, Witnesses, and Justice Reform (Scotland) Act 2025 includes provisions relating to the parole system, such as the requirement for Parole Board panels to consider specific factors in reaching decisions about release.

About the consultation

1.5 The Scottish Government’s Programme for Government 2025-26 included a commitment to consult on further reforms to the parole system. The consultation, Voices in Justice: A Consultation on Parole Reform in Scotland, took forward that commitment.

1.6 The questions set out in the consultation paper were informed by engagement with a range of partners, stakeholder groups and individuals with knowledge and experience of the parole system. There was also engagement with counterparts in other countries (UK and worldwide) to learn from experience in other jurisdictions.

1.7 The consultation paper contained 43 questions in two thematic sections:

• Transparency and communication: Questions 1 to 14 considered how communication and access to information could be improved to enhance understanding, trust, and wellbeing for victims, people in custody and others involved in the parole system.
• Parole process, licence conditions and recall: Questions 15 to 42 considered how the parole system could better support rehabilitation, public safety, and fairness.

1.8 The consultation specifically sought the views of those affected by – or with an interest in – the parole system, including (i) victims of crime, their families and the organisations that support them; (ii) people in custody, their families and support organisations; and (iii) professionals such as Parole Board members, justice social workers, prison staff and others working in the justice system.

1.9 A final question (Question 43) asked respondents to select a category (from 11 offered) that best described their situation. The answer to this question was intended to provide a context for the response. See Chapter 2 for further information about how the responses to this question were used in the analysis.

1.10 The consultation paper was published on the Scottish Government’s online consultation platform (Citizen Space), with a closing date for responses of 11 November 2025.^[2] Respondents could complete an online questionnaire or submit a response by email or post.

1.11 In addition, a simplified version of the consultation questionnaire was printed and distributed to all of Scotland’s 17 prisons. One of the aims of the consultation was to ensure that all those with an interest in, or experience of the parole process, had the opportunity to give their views. The simplified questionnaire was intended to facilitate this for people currently in custody. This questionnaire was made available in prison libraries and halls – pens and envelopes were also provided to support confidential submissions. Scottish Prison Service staff, and those in their care, were informed about the consultation through internal notices. The consultation was also promoted through posters and local communication channels, including in-house TV systems where available. Altogether, 1,350 copies of the simplified consultation questionnaire were distributed throughout the prison estate.

The report

1.12 The remainder of this report is structured as follows:

• Chapter 2 presents information about the data preparation and analysis process.
• Chapter 3 presents information about the respondents to the consultation.
• Chapters 4 to 17 present an analysis of the consultation responses.

1.13 In addition, this report includes three annexes. Annex 1 contains a copy of the questionnaire made available in prisons. Annex 2 contains a list of organisational respondents. Annex 3 sets out the response rates for each of the consultation questions, with a breakdown by respondent type.