//Does she mean ‘not given bail’?//
That might make sense, Zacs, if she's simply talking about decisions whether to remand somebody in custody or release them on bail until the completion of proceedings. If she is, she (or at least her advisors) should be aware that, apart from exceptions in one or two very limited circumstances, the likelihood (or not) of a custodial sentence is not a factor which judges or magistrates should consider when deciding whether or not a defendant should be released on bail.,
It's difficult to make out what she is really suggesting from the Mail's report but I believe her proposals go a bit further than that. For my part, leaving aside Bail Act decisions, I believe it is vanishingly unlikely that anybody in the UK would be sentenced to custody when it is not warranted under the sentencing guidelines.