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Two more republican terror suspects - so-called On the Runs - were mistakenly issued secret letters, a review of the scheme has found.
A senior judge found that secret letters assuring fugitives they were no longer wanted were not an amnesty.
Lady Justice Hallett's review, ordered by PM David Cameron, found "significant systemic failures" in how it operated.
The scheme was made public when the trial collapsed of a man suspected of the 1982 IRA Hyde Park bombing.
Police in Northern Ireland mistakenly told John Downey in 2007 that he was no longer being sought by Scotland Yard.
Although police soon realised they had made a mistake, the assurance to the County Donegal man was never withdrawn.
The report, published on Thursday, found that letters were issued in error to two other republican terror suspects.
Lady Justice Hallett's review was commissioned following a political outcry, with Mr Cameron calling it a "dreadful mistake" and Northern Ireland First Minister Peter Robinson threatening to resign.
The terms of reference of Lady Justice Hallett's review were to produce a full public account of the operation and extent of the scheme, and to determine whether any letters contained errors.
The judge did not have the power to compel witnesses to give evidence.
Her findings were outlined in parliament by Northern Ireland Secretary Theresa Villiers.
Early releaseMr Downey denies any involvement in the bombing that killed four soldiers. The judge's review will not affect the attorney general's decision against appealing the case.
The Northern Ireland Good Friday Agreement of 1998 meant anyone convicted of paramilitary crimes was eligible for early release from prison.
However, this did not cover those suspected of such crimes, nor did it cover people who had been charged or convicted, but who had escaped from prison.
Sinn Féin sought a scheme that would allow escaped prisoners and those who were concerned they might be arrested to return to the UK, but a formal legal solution proved difficult to establish in the face of strong unionist opposition.
In addition to the Hallett Review, MPs at Westminster's Northern Ireland Affairs Select Committee have been holding public evidence sessions to look at the scheme.
Witnesses who have appeared before the committee include former Northern Ireland secretaries Peter Hain and Paul Murphy, current and former senior police officers, former detectives involved in administering the scheme and relatives of victims of the Troubles.
Separately, police in Northern Ireland are reviewing the process that led to the issuing of the letters.
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