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Check your transfer settings, by default it demands they fit all requirements to transfer. So not being a gang member, passing a program, low reoffending rate, etc.
You can fine-tune the settings for each prisoner category if you want more transfers. For example, I don't allow Super Max to do any programs, so I removed that requirement, and also allow gang members to go from SM to Max so I removed that requirement. Conversely, for Normal to Min I require they pass at least two programs, so I upped that.
 
I don't think its that...... I have gangs unchecked and they only have to check 3 things to move. easily 3 things in incidents but still dont move even if incident free for over what i have it at.
Does it work on the basis that one thing has to be a program? I have them to pass 1 program, so is that why?