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Zahid Mubarek Inquiry

Completed
Chair Mr Justice Keith Judge / Judiciary
Established 01 Sep 2004
Final Report 29 Jun 2006
Commissioned by Home Office

Public inquiry into the murder of 19-year-old Zahid Mubarek at Feltham Young Offender Institution on 21 March 2000 by his racist cellmate Robert Stewart. Justice Keith found the death entirely preventable and identified multiple systemic failures in prisoner risk assessment, allocation and monitoring. Made 88 recommendations to improve prison safety, risk assessment procedures and staff training.

Historical inquiry (pre-Inquiries Act 2005). Listed for reference — recommendation progress is not actively tracked.
Legacy & Impact
The Zahid Mubarek Inquiry examined the circumstances surrounding the murder of 19-year-old Zahid Mubarek by his cellmate Robert Stewart at Feltham Young Offender Institution on 21 March 2000. The inquiry, chaired by Mr Justice Keith, found that Stewart's history of violence and racist behaviour had not been properly assessed, and that information about his risk profile had not been shared between establishments. The inquiry made 88 recommendations addressing cell-sharing procedures, management of racist prisoners, and information-sharing between agencies.

The inquiry's findings contributed to several documented reforms. The Cell-Sharing Risk Assessment system was introduced across the prison estate, with procedures set out in Prison Service Instructions. The Offender Management Act 2007 incorporated provisions relating to cell-sharing risk assessment. A Violence Reduction Strategy was established requiring all prisons to develop local approaches to managing violent prisoners. The Racist Incident Reporting Forms system was introduced to standardise the recording and investigation of racist incidents.

HM Inspectorate of Prisons' thematic review in 2009 found that cell-sharing risk assessment procedures had been revised following the inquiry, though it noted that racist bullying remained a significant issue and information-sharing between establishments continued to present challenges. The inquiry sits alongside other examinations of racism in the criminal justice system, including the Commission for Racial Equality's 2003 formal investigation into the Prison Service. While specific procedural reforms are documented, the inquiry's central objective of eliminating enforced cell-sharing remains unrealised according to inspection reports.
Lasting Reforms
• Cell-Sharing Risk Assessment (CSRA) system introduced across the prison estate, with revised procedures documented in Prison Service Instruction 20/2015
• Offender Management Act 2007 included provisions strengthening the Prison Service's duty to assess and manage risks in cell-sharing
• Violence Reduction Strategy introduced requiring all establishments to have local strategies for managing violent prisoners
• Racist Incident Reporting Forms (RIRFs) system established across all prisons
• Enhanced vetting procedures for prison staff introduced following inquiry recommendations
• Mandatory diversity training for all prison staff incorporated into Prison Officer Entry Level Training
Unfinished Business
• Elimination of enforced cell-sharing - the inquiry's primary objective (recommendation ZAHI-1) remains unachieved according to HM Chief Inspector of Prisons annual reports
• Dedicated accommodation for young adults separate from adult prisoners - mixed wings continue to operate in many establishments
• Comprehensive information-sharing system between criminal justice agencies - HM Inspectorate reports continue to identify gaps in information transfer between establishments
Generated 18 Mar 2026 using claude-opus-4. Assessment is indicative, not authoritative.
Key Legislation
Offender Management Act 2007 (Cell-Sharing Risk Assessment provisions)
Strengthened the Prison Service's duty to assess and manage risks in cell-sharing, informed by the Zahid Mubarek Inquiry's findings.
Implementation Reviewed By
HM Inspectorate of Prisons (thematic review) (Jan 2009)
Thematic review of race equality in prisons. Found that cell-sharing risk assessment procedures had been improved following the inquiry, but that racist bullying remained a significant problem and information-sharing between establishments was inconsistent.
Influence & Connections
Led directly to Prison safety and racial equality
The inquiry led to reformed cell-sharing risk assessment procedures and contributed to the broader anti-racism agenda within the criminal justice system, alongside the CRE's formal investigation into Prison Service racism (2003).
1 year, 10 months Duration
Inquiry Report
Final Report Published 29 Jun 2006

We are not currently tracking individual recommendations for this inquiry.