A prison is not a building – it is an institution powered by professionals

This blog, written by Gustav Tallving, Executive Director of EuroPris, examines a critical issue in European prisons – and beyond – and that is of prison staff.  It draws on the work and research of EuroPris and PRI, including in our joint publication of Global Prison Trends 2024 which was published with the Thailand Institute of Justice. The blog provides an in-depth analysis on the issues around prison staff – from recruitment, training and retention to wellbeing.

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In recent years, the recruitment and retention of prison officers and other essential personnel have become increasingly challenging, with countries reporting high vacancy rates, lower application numbers, and a growing need to focus on staff wellbeing. This is not just a workforce issue—it directly impacts safety, rehabilitation efforts, and the overall functioning of prison systems. Part of a 2024 survey conducted by EuroPris and Penal Reform International (as part of the research for Global Prison Trends) set out to explore this issue. 15 EuroPris members responded to the survey, offering insights into their national situations. The respondents included: Austria, Catalonia (Spain), Croatia, Finland, France, Georgia, Latvia, Luxembourg, Norway, Slovakia, Slovenia, Spain, Sweden, the Netherlands, and Ukraine.  

The findings reveal both common trends and country-specific challenges, giving a glimpse of the situation and what is being done to seek solutions. Challenges in staffing are widespread. According to a 2023 report by the Council of Europe’s SPACE I data, staff shortages were reported in over half of the European prison systems, with prison officer-to-inmate ratios varying widely, from 1:2 in some Nordic countries to more than 1:10 in others.  

While some systems, like Luxembourg, report no major vacancies at present, others are facing hundreds—or even thousands—of unfilled positions. In France, for example, nearly 3,000 prison officer roles were vacant as of early 2024, while Sweden and the Netherlands reported around 660 and 640 vacancies, respectively. Ukraine stands out with the largest reported shortage, also partly due to the ongoing aggression from Russia: over 9,000 vacancies across all staff ranks. Countries such as Latvia and Slovakia are also dealing with significant gaps, reporting 446 and 278 open positions, respectively. These numbers paint a clear picture: the staffing crisis in prisons is widespread, affecting both large and small systems, and placing increasing pressure on the services. 

This article summarises the key themes emerging from the EuroPris–PRI survey responses. From recruitment struggles and employer branding to wellbeing and salary conditions, it offers a snapshot of the current staffing landscape in European prisons—and the strategies prison services are adopting to address it. 

1. Recruitment Challenges and Strategies

Recruiting prison officers is shaped by a combination of demographic, social, and economic factors. Many prison services report difficulty attracting candidates due to wage expectations, demanding working conditions, and competition with other security or law enforcement agencies, such as the police or customs. Countries such as France and the Netherlands highlight how broader labour market pressures and talent competition make recruitment particularly tough. In some regions, remote prison locations and strict criteria (such as language skills, psychological screening, or military-style expectations) further limit the candidate pool. While some services report high demand for positions due to a lack of broader job opportunities, several services also cite a lack of attractiveness of the profession itself, with factors such as burnout or a combination of physical and mental stress. 

 

In addition to prison officers, many European prison services reported growing difficulties in recruiting a range of specialist staff. Healthcare professionals — particularly doctors, nurses, psychiatrists, and psychologists — are consistently hard to attract, often due to remote prison locations and less competitive salaries compared to other public or private sector employers. Similarly, roles in social work, education, vocational training, and rehabilitation services are also difficult to fill, despite being vital to prison operations. Several countries, including Croatia, Finland, and the Netherlands, highlight gaps in administrative, IT, and legal positions, which affect not only day-to-day functioning but also strain existing staff. In some systems, internal promotion structures have unintentionally created new shortages at lower levels, while in others, a lack of applicants or an overly demanding recruitment process leaves positions unfilled. These shortages collectively increase the burden on existing staff and risk undermining core prison functions such as treatment, security, and reintegration. 

Across Europe, the ability to match vacancies with qualified candidates remains uneven and often insufficient. While some countries like Georgia report a nearly full match rate (241 hires out of 252 positions), most others face either regional imbalances or shortages in key specialised roles. Croatia sees nearly 4 applicants per position (496 for 133 posts) but struggles to fill roles in remote southern regions. Latvia, by contrast, has a low suitability rate, with only 41.5% of candidates deemed appropriate. In Norway, 679 out of 929 applicants were qualified for 175 school placements — suggesting a strong talent pipeline, but limited slots. Spain manages to fill most roles, except for more highly qualified medical posts, where positions can often go unfilled. Overall, while general roles are usually filled through competitive or internal processes, most systems report an ongoing gap in meeting the demand for qualified staff, especially in healthcare, remote regions, and specialist technical areas. 

2. Building a More Attractive Employer Brand

Prison services in Europe are beginning to invest actively in employer branding to make the profession more visible, respected, and appealing — though progress varies. Countries such as Finland, France, Norway, Latvia, and Sweden have launched targeted campaigns to shape a more positive image of prison work, emphasising purpose, stability, and the human element of the job. Tactics include employer promises, branding videos, interactive campaigns, and symbolic visibility (e.g. staff presence at public parades in France or mobile prison cell trailers touring Sweden). Others, such as Georgia, Slovakia, and Latvia, focus on storytelling — using social media, employee testimonials, and national media to portray meaningful careers and real-life impacts. Meanwhile, some services, such as those in Spain, have yet to formally develop employer branding strategies, but they acknowledge the potential. Overall, there is growing recognition that branding is not just a luxury, but it could be a key tool in countering stigma, improving public perception, and boosting recruitment. Moreover, it increases public awareness about the prison system and its role in criminal justice and social rehabilitation. 

Advertising and Recruitment Channels: Diversifying the Message 

Recruitment strategies across Europe increasingly combine traditional civil service platforms with modern outreach tools. Common channels include (and are not limited to):  

• social media 

• national job boards 

• government portals 

• and direct campaigns in universities, schools, and public spaces.  

Countries like France, Slovakia, and the Netherlands have adopted multi-channel media campaigns that incorporate television ads, YouTube videos, cinema ads, and keyword-based online targeting, alongside job fairs and in-person events. Some services, such as those in Croatia and Latvia, collaborate with Ministries of Justice, Defence, and even Employment to broaden their recruitment reach. Others implement interactive or incentive-based approaches, highlighting Slovakia’s “recommend a friend” programme offering a reward for successful referrals. Whereas in Spain, services rely on more formal civil service application procedures, forgoing advertising due to an already high demand. These varied approaches reflect differing needs and market pressures, but the trend points toward greater investment in proactive, multimedia recruitment as a response to staffing gaps. 

3.  Training and Retention

Attracting new staff is only part of the solution—ensuring they are properly trained and retained over time is equally important. The effectiveness of initial training programmes, along with staff turnover rates, provides valuable insight into the stability and sustainability of prison services. Dropout rates during training or significant turnover can signal broader challenges, such as job dissatisfaction, the need for more staff support, or demanding working conditions. Based on the survey results, this section provides a glimpse into how prison services are equipping new staff for the role and how successful they are in retaining personnel over time. 

When it comes to initial training, most prison services report relatively low dropout and exclusion rates, suggesting that the majority of recruits complete their programmes. In Croatia, nearly 95% of candidates have graduated from training over the past four years. Ukraine noted a 5% dropout rate in 2023 for initial training, with a full 100% completion rate for higher education programmes at its Penitentiary Academy. Some countries, such as Latvia and Georgia, report that dropouts are rare or non-existent. However, several services, including Spain and Slovenia, note that exclusions are often due to medical absences rather than training failures, with affected staff typically rescheduled rather than dismissed. These findings point to broadly stable training outcomes—but raise further questions about how training quality translates into long-term retention, which we explore next. 

Staff Turnover: A Growing Challenge Shaped by Working Conditions, External Pressures, and Demographic Shifts 

Staff turnover across European prison services reveals a mixed picture, with several jurisdictions experiencing notable challenges in retaining personnel. In Sweden, for example, turnover reached 15% in 2023, continuing an upward trend attributed to broader labour market shifts post-COVID-19, prison overcrowding, and negative perceptions of working conditions such as scheduling and pay. Similarly, Ukraine reported a 13.2% turnover rate in 2023, though this marks an improvement from previous years; their figures are significantly shaped by the ongoing war and the need to retain staff in occupied or conflict-adjacent areas. Finland observed a reduction from 8.4% in 2022 to 6.5% in 2023, while Norway noted a rise to around 10%, which it considers high relative to past years. Some services, like Catalonia, reported a 2.5% rate primarily driven by retirements or long-term leave, and Slovenia recorded 6.8% turnover, with 17 of 38 departures due to retirement. Several services cite external job opportunities, internal working conditions, and demographic factors such as retirement as key influences. These findings underscore the importance of addressing both structural and occupational factors in any strategy aimed at improving retention. 

4. Employment Conditions and Status

One of the key factors shaping the role and perception of prison officers is their legal status. The survey reveals that in the vast majority of responding countries, prison officers are employed as civil servants. This is the case in Austria, Croatia, Finland, France, Luxembourg, Norway, Slovakia, Spain, Sweden, and the Netherlands. In most of these countries, the civil servant status reflects both the permanent nature of the role as well as the recognition of prison work as a public service, which is often under the authority of the Ministry of Justice.  

Variations: Special Ranks, Contractual Staff, and Public Servants 

However, there are variations to understand. In Latvia, prison officers are considered officials with a special rank, suggesting that it is within a system where rank plays a more formalised role. Similarly, Ukraine distinguishes between special rank staff, civil service specialists, and other contract-based employees, suggesting a more complex staffing structure. Georgia classifies prison officers as public servants, which may differ in rights or obligations from civil servant status in other countries, depending on national legal frameworks. 

In France, while most supervisors are civil servants, contractual assistant supervisors may be recruited from mid-2024. They can be recruited on a 3-year contract, renewable once, and will be able to join the corps via a dedicated route, with a pathway to eventually join the civil service. This flexible approach aims to broaden recruitment options while maintaining long-term professional standards. In Catalonia, there is another nuance: although prison staff are career civil servants, they are not considered authority bodies in the same way as police officers. Additionally, temporary staff can be recruited for short-term needs, reflecting operational flexibility. 

While civil servant status is predominant, the specific legal framework and professional status of prison officers can vary. Some countries recognise prison officers with special ranks or offer contractual entry routes. These distinctions affect not only employment conditions but also the professional identity and recognition of prison staff within the broader public sector. As prison services face changing workforce needs and recruitment challenges, these models reflect both traditions and modern innovations in employment practices across Europe. 

5. Wellbeing and Working Conditions

Prison services across Europe face a range of challenges related to staff wellbeing, many linked to the demanding and unique environment of prisons. Several EuroPris members, including Croatia and Spain, highlight issues such as overcrowding, safety concerns, and the ongoing need for training and professional development to adapt to evolving workplace demands. Finland and Slovakia report organisational challenges such as limited resources, understaffing, and the impact of new systems, which place additional strain on officers. Meanwhile, Norway and the Netherlands underscore the psychological toll on staff, pointing to rising psychiatric issues and psychosocial work pressures often tied to staff shortages and high workloads. 

Addressing Wellbeing Challenges: How Prison Services Support Staff Amidst Pressures 

In response to wellbeing challenges, several prison services have implemented measures to support staff resilience and safety. For example, Spain offers annual self-defence and social skills training designed to help officers manage potential aggression and reduce the risk of burnout. Their work schedules also aim to balance operational demands with staff’s wellbeing by allowing sufficient recovery time. In Sweden, the impact of high occupancy and staff shortages has led to a significant rise in sick leave, particularly short-term absences, reflecting the physical and mental toll the work may cause on staff. The Dutch Custodial Sanctions Agency (DJI) faces similar challenges, where psychosocial strain is a leading cause of absenteeism. DJI is actively working on both preventive strategies, focusing on empowering employees through increased awareness and resilience training to better manage work-related stress. 

By contrast, Ukraine presents a more concerning picture, with prison officers facing a lack of adequate financial support, uniform provision, and essential medical and sanatorium services. Additionally, the absence of effective social benefits, such as service housing and travel allowances, compounds the difficulties in maintaining staff wellbeing. These disparities highlight how wellbeing support varies widely across European prison services, reflecting differing resource levels, institutional priorities, and external pressures. 

Supporting Staff Wellbeing: Measures and Benefits Across European Prison Services 

Diving deeper into prison services’ initiatives to implement a variety of measures to support the overall wellbeing of frontline staff, it is clear to suggest that services are understanding and recognising the demanding nature of prison staff’s roles. Common initiatives include providing specific working conditions negotiated with trade unions, enhanced annual leave entitlements, and access to psychological support. Continuous training plays a key role, with many jurisdictions offering both general and specialised courses to help staff manage stress and improve their skills. Additionally, some countries, like Georgia, have introduced improved food provision programmes, health insurance, transport services, and access to fitness facilities to promote a healthier work-life balance. 

Financial and social benefits are also an important aspect of wellbeing strategies. Many prison services offer bonuses tied to years of service, special allowances, and paid healthcare. Efforts to improve communication and engagement with staff are evident in countries like Norway, where managers hold regular wellbeing conversations and local unions actively represent employee interests. In Ukraine, wellbeing support extends to material assistance, cultural activities, and even pastoral care, demonstrating a broad approach that includes both practical and emotional support for personnel. These diverse initiatives highlight the importance placed on fostering a positive work environment despite the challenges faced. 

From Recruitment to Retention: Creating Sustainable Change for Prison Staff 

The European prison sector faces a complex and evolving set of challenges related to staff recruitment, retention, and wellbeing. Persistent staff shortages and rising turnover rates in several jurisdictions underscore the urgent need for effective measures to attract and retain personnel. At the same time, varied recruitment approaches and benefits highlight that no single solution fits all contexts, and tailored responses are necessary to meet diverse labour market conditions and organisational needs. 

Equally important is the focus on improving working conditions and supporting staff wellbeing. The demanding nature of prison work, combined with factors such as overcrowding and safety concerns, affects staff morale and health, which in turn influences retention.  

Across Europe, prison services are developing innovative programmes to address these challenges, including psychological support, professional development, flexible working arrangements, and enhanced benefits. These combined efforts form the foundation for a more resilient, motivated workforce—one capable of meeting the complex demands of modern prison services. Sustained investment in recruitment, retention, and wellbeing initiatives is vital for strengthening prison staff capacity across the continent. By continuing to adapt and prioritise the needs of frontline staff, European prison services can foster safer, more effective institutions that benefit both employees and society as a whole.