Probation and Parole in the Caribbean region: new developments
6th May 2026
In this expert blog for PRI, Angela Dixon and Leo Tigges explore recent developments in probation and parole across the Caribbean, focusing on the establishment of the Caribbean Association of Probation and Parole (CAPP) to strengthen regional cooperation. Drawing on a mapping exercise, they highlight persistent challenges including prison overcrowding, high imprisonment rates and widespread pre-trial detention, underscoring the need to expand community-based sanctions and reinforce probation and parole systems as part of broader penal reform efforts.
Something remarkable is under way in the Caribbean. Two years ago, the Caribbean Association of Probation and Parole (CAPP) was established. Prior to this, the Barbados Probation Service felt isolated from its regional counterparts, with little or no contact with the probation and parole services in the Caribbean. As a result, Barbados did not feel connected to the shared challenges and emerging solutions within the Caribbean region. However, the Barbados Probation Service continued to draw on international best practice in effective probation.
In 2023, Barbados took the initiative to convene a virtual meeting with countries interested in closer collaboration. This led to the establishment and launch of the CAPP in Barbados in 2024, with eight signatory founding member countries: Anguilla, Antigua and Barbuda, Barbados, Bahamas, Jamaica, St Lucia, Trinidad and Tobago, Turks and Caicos. Two conferences have now taken place, and the next conference will be held in September 2026 in the Turks and Caicos Islands. CAPP has now grown to include 16 member countries.
Mapping exercise
This development coincided with the launch of the EU-funded EL PACCTO 2.0 project on international partnerships on justice and security. In addition to countries in Latin America, the programme has expanded its focus to the Caribbean region, in particular to member states of CARICOM, encompassing 13 Caribbean countries. Within this context, specific attention is given to the prison system and probation services. To promote alternative sanctions, and thereby relieve pressure on the prison system, a mapping exercise was launched. As an initial step towards identifying opportunities to expand the use of alternative measures, a scan of the current situation, as well as the needs and priorities of the participating countries, was undertaken.
Access the resource here.
The main results were as follows:
Imprisonment
- Overcrowding in prisons
In eight countries, prison occupancy rates are around 100%, while in others the situation is significantly more severe. - High prison population rate
The number of people in prison per capita is high across the region. In seven countries, this rate exceeds 300 per 100,000 inhabitants, with some notable exceptions. - High remand rate
In most of countries, the proportion of people on remand exceeds 40%.
Alternative measures and probation
- Legal options
The number of alternative measures legally available varies across the participating countries. In nine countries, the following options are available: conditional suspended sentence with supervision (probation) and community service. In seven countries, conditional release (parole) is available. - Frequency of use
The data show that, despite the availability of probation measures, imprisonment remains the predominant form of sanction. In all countries where probation services exist, they are primarily aimed at less serious offences and to children and young adults. - Reports
The preparation of pre-sentence reports is an important function of probation services in three countries. In five countries, such reports are not produced. With regard to parole reports, six countries do not have a parole system in place. In three countries, advice on parole is provided by the prison service. In the remaining jurisdictions, probation services do prepare parole reports; however, the number of such reports remains limited.
Enabling conditions for the probation service
Most countries report that probation services experience insufficient resources to expand their workforce. Even in cases where financial resources are available, recruiting qualified personnel remains a challenge.
Relationships between probation organisations and the justice system, including prison services, public prosecutor’s offices, and the judiciary, are generally cordial and constructive. However, contact is limited due to the relatively low number of people in contact with probation agencies.
Probation agencies often operate within a penal climate that is not immediately receptive to their role and contributions. Public and political attitudes tend to be punitive, and there may be concern among policymakers about being perceived as ‘’soft on crime.’’ This underlines the importance of clearly demonstrating the effectiveness of alternative measures and communicating their benefits to society at large. Strengthening engagement with the wider community and the media is essential in this regard.
Wishes for assistance
Respondents identified a range of areas where assistance would be valuable. In short, these include:
• Legislative support and policy framework
• Data systems, monitoring and research
• Capacity building of the justice chain, NGO’s and community partners
• Institutional strengthening of probation departments
Regional collaboration
All respondents expressed strong support for expanding the range of alternative measures and emphasised the value of regional cooperation to facilitate knowledge exchange and drawing on promising practices within the Caribbean. A joint effort toward policy harmonisation, alongside the establishment of a regional framework for non-custodial sentencing, was seen as a priority. Suggested initiatives included public awareness campaigns, staff development programmes, and the creation of a regional knowledge centre to collect, analyse, and disseminate cross-country data and good practices. Three countries already have notable experience in this area and could serve as role models for others.
Notably, probation services in the region showed considerable enthusiasm and confidence in the Caribbean Association for Probation and Parole (CAPP), an organisation established by the services themselves.
Conclusion of the mapping exercise
The findings point to considerable potential for expanding alternative measures and reducing reliance on pre-trial detention. Alongside efforts to address delays in case processing, priority should be given to strengthening and expanding the role of probation services.
If reducing overcrowding is a central objective, consideration should be given to broadening the current focus of probation services beyond children and minor offences to include adults and those convicted of more serious offences. Experience in other regions demonstrates that such expansion can contribute significantly to lowering imprisonment rates. A key prerequisite for this development is the reinforcement of the probation service’s advisory role, particularly in relation to pre-sentence reports and parole advice, both in terms of quantity and quality.
While relationships between probation services and justice system partners are generally positive, the envisaged expansion of probation services will require clear agreements on timeframes, procedures, performance standards, and communication protocols. This will demand a strong and sustained commitment from all stakeholders involved.
Recommendations
Based on the findings of this stocktaking exercise, several recommendations can be formulated across different thematic areas.
A. Policy and legislative recommendations
• Each country should carry out an independent assessment of the current state of alternative measures and probation. Conducting such analyses across the justice chain can foster a broader understanding of the importance of probation and generate political and societal support for tailored development plans.
• Drawing on their own national analyses and the data presented in this scan, participating countries are encouraged to jointly design a strategic plan. Such a plan should define priorities for strengthening alternative measures and probation, and outline strategies for the application of non-custodial sanctions, with particular attention to specific target groups.
• Promote harmonisation of legislation and policies on alternative measures within the region through collaborative approaches. Determine which initiatives can be undertaken jointly and which require national adaptation.
B. Capacity building
• Invest in the justice chain and in increasing political support.
• Invest in the development and professionalisation of probation services.
• Develop and implement standardised training modules and certification programmes for probation staff, preferably coordinated at the regional level.
C. Data, monitoring, and evaluation
• Systematic data collection, alongside consistent monitoring, and evaluation mechanisms should be established. Clearly identifying probation activities and the caseload of probation services would provide essential insights for policymakers, the public, and justice chain stakeholders.
• Stimulate (empirical) research into the effectiveness and social impact of alternative measures.
D. Cooperation and participation
• Facilitate the regional exchange of knowledge and experiences on probation and parole practices through dedicated platforms such as the Caribbean Association for Probation and Parole (CAPP).
• Involve civil society organisations, municipalities, and the private sector in the implementation of probation and parole measures through public-private (community) partnerships. Strengthen the role of universities as partners and observers. They can become critical allies.
E. Communication and public perception
• Develop a joint communication and information strategy on alternative measures, aimed at public acceptance and reducing stigmatisation.
Some final thoughts
In 2012, the United Nations Development Programme (UNDP) published the Caribbean Human Development Report: Human Development and the Shift to Better Citizen Security. This report highlighted enduring challenges within the region’s criminal justice systems, including prison overcrowding, limited alternatives to imprisonment, delays and backlogs in case processing, and weak statistical infrastructure. Since then, the emergence of probation as a cornerstone of criminal justice reform represents a meaningful and positive development. In several Caribbean countries, this area has gained both visibility and measurable progress. Notably, the establishment of the Caribbean Association of Probation and Parole (CAPP) stands as a significant milestone, providing a regional platform dedicated to advancing the development and effectiveness of alternative measures.
The next phases of EL PACCTO 2.0 should therefore be implemented in close partnership with the CAPP, and in coordination with key regional institutions such as the ECSC and CARICOM IMPACS.
More about CAPP
This organisation aims to encourage exchanges of probation professionals to empower them and promote acknowledgement of the role of probation and parole organisations. It is committed to strengthening probation and parole services across the Caribbean and currently includes members from Antigua and Barbuda, Anguilla, Turks and Caicos, Trinidad and Tobago, Jamaica, Grenada, The Bahamas, Bermuda, Montserrat, Cayman Islands, and the Caribbean Netherlands, Barbados, British Virgin Islands, Dominica, St Kitts and Nevis, and St Lucia.
On the CAPP’s website, four principal initiatives are outlined, each aimed at strengthening probation and parole systems across the Caribbean. These include the standardisation of probation practices to ensure consistency and efficiency throughout the region, alongside a strong emphasis on professional training and development through access to resources, webinars, and certification programmes that support continuous growth. The organisation also prioritises collaboration and knowledge exchange by bringing together practitioners to share best practices and expertise, while actively engaging in advocacy and policy reform to promote progressive changes that enhance rehabilitation efforts.
In September 2025, the second annual conference of the CAPP was held in Saint Lucia under the theme Exploring Evidence-Based Practices for Sex Offender Management and Working with Gang-Involved Clients. Discussions focused on pressing issues such as responses to sexual offending in the face of troubling data trends, strategies for addressing criminal justice challenges, and the role of mediation and best practices in reducing crime while strengthening probation and parole systems. During the conference, EL PACCTO 2.0 presented the initial findings of the present survey on alternative sentencing and probation and parole practices.
In summary, although alternative measures and probation are formally available in many jurisdictions, their use remains limited in practice, with imprisonment still the dominant response. This reflects both structural constraints – such as limited resources and capacity – and a wider penal climate that favours punitive approaches. Strengthening probation services, improving data and policy frameworks, and more clearly demonstrating their practical value may support a more balanced and effective use of these measures.