Proposed Budget (Government Plan) 2026-2029 (P.70/2025): nineteenth amendment. Extend free school meals

STATES OF JERSEY

PROPOSED BUDGET (GOVERNMENT PLAN) 2026-2029 (P.70/2025): NINETEENTH AMENDMENT

EXTEND FREE PRIMARY SCHOOL MEALS

Lodged au Greffe on 21st November 2025 by Deputy L.M.C. Doublet of St. Saviour Earliest date for debate: 9th December 2025

STATES GREFFE

2025  P.70 Amd.(19)

PROPOSED BUDGET (GOVERNMENT PLAN) 2026-2029  (P.70/2025): NINETEENTH AMENDMENT

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1  PAGE2, PARAGRAPH (b)(viii) –

After the words "Appendix 2 – Summary Tables 5(i) and 5(ii) of the Report", insert the words –

 ", except that, in Summary Table 5(i), the Head of Expenditure for the Cabinet Office should be reduced by £250,000 and the Head of Expenditure for Education and Lifelong Learning should be increased by £250,000 to allocate funds to a pilot  scheme  intended  to  extend  free  primary  school  meals  to  additional households, with any consequential amendments to be reflected as necessary throughout the Budget".

2 PAGE 3, PARAGRAPH (b)(xii) –

After the words "Appendix to the accompanying Report", insert the words ", except that on page 45, after the words "to all 2–3-year-olds", there should be inserted a new paragraph as follows –

"The Budget allocates funds from the Chief Minister's funding for pilot schemes, to a pilot scheme intended to extend free primary school meals to additional households, including, but not limited to, single-parent families and, if feasible, households that would otherwise qualify for Income Support were they not owner-occupiers of a mortgaged residence.

During 2026 the Minister for Education and Lifelong Learning will also utilise the additional data provided by the pilot scheme to explore the feasibility of provision of free school meals to all non-fee-paying primary schools, reporting to the Assembly prior to the end of 2026.".

 DEPUTY L.M.C. DOUBLET OF ST. SAVIOUR

Note:  After this amendment, the proposition would read as follows –

THE STATES are asked to decide whether they are of opinion

1. In accordance with Article 16 of the Public Finances (Jersey) Law 2019 (the Law) to approve an amendment to the Government Plan 2025 – 2028 (entitled "Budget 2025 – 2028") to a reduction in the 2025 head of expenditure "Grants to States Funds" as included in Table 5(i) Revenue Heads of Expenditure of that Government Plan from £119,821,000 to £69,821,000.
2. To receive the Government Plan 2026 – 2029 (entitled "Budget 2026-2029") specified in Article 9(1) of the Law and specifically –

1. to approve the estimate of total States income to be paid into the Consolidated Fund in 2026 as set out in Appendix 2 – Summary

Table 1 to the Report, which is inclusive of the proposed taxation and impôts duties changes outlined in the Government Plan, in line with Article 9(2)(a) of the Law.

2. to refer to their Act dated 24th June 2003 in which they approved that no new user pays' charges be introduced without any such charge receiving prior in principle approval by the States Assembly and accordingly to approve the introduction of two new charges, to be levied by Health and Care Jersey to promote appropriate use of the  Emergency  Department  and  for  repeated  non-attendance  of outpatient  appointments,  detailed  in  the  section  entitled "Departmental Income Sources" as set out in the Appendix to the accompanying Report.
3. to  approve  the  proposed  Changes  to  Approval  for financing/borrowing for 2026, as shown in Appendix 2 – Summary Table 2 to the Report, which may be obtained by the Minister for Treasury and Resources, as and when required, in line with Article 9 (2)(c) of the Law, of up to those revised approval amounts.
4. to approve the transfers from one States fund to another for 2026 of up to and including the amounts set in Appendix 2 – Summary Table 3 in line with Article 9(2)(b) of the Law.
5. to approve a transfer from the Consolidated Fund to the Stabilisation Fund in 2026 of up to £50 million, subject to a decision of the Minister for Treasury and Resources based on the availability of funds in the Consolidated Fund as at 31st December 2025 in excess of the estimates provided in this plan, or from budgeted underspends identified before 31st December 2026.
6. to approve a transfer from the Consolidated Fund to the Agricultural Loans Fund in 2026 of up to £5 million, subject to a decision of the Minister for Treasury and Resources based on availability of funds in the Consolidated Fund as at 31st December 2025 in excess of estimates  provided  in  this  plan,  or  from  budgeted  underspends identified before 31st December 2026;
7. to approve each major project that is to be started or continued in 2026 and the total cost of each such project and any amendments to the  proposed  total  cost  of  a  major  project  under  a  previously approved Government Plan, in line with Article 9(2)(d), (e) and (f) of the Law and as set out in Appendix 2 – Summary Table 4 to the Report.

viii.  to  approve  the  proposed  amount  to  be  appropriated  from  the Consolidated Fund for 2026, for each head of expenditure, being

gross  expenditure  less  estimated  income  (if  any),  in  line  with Articles 9(2)(g), 10(1) and 10(2) of the Law, and set out in Appendix 2 – Summary Tables 5(i) and (ii) of the Report, except that, in Summary Table 5(i), the Head of Expenditure for the Cabinet Office should be reduced by £250,000 and the Head of Expenditure for

Education and Lifelong Learning should be increased by £250,000 to allocate funds to a pilot scheme intended to extend free primary school  meals  to  additional  households,  with  any  consequential amendments to be reflected as necessary throughout the Budget.

9. to approve the estimated income, being estimated gross income less expenditure, that each States trading operation will pay into its trading fund in 2026 in line with Article 9(2)(h) of the Law and set out in Appendix 2 – Summary Table 6 to the Report.
10. to approve the proposed amount to be appropriated from each States trading  operation's  trading  fund  for  2026  for  each  head  of expenditure in line with Article 9(2)(i) of the Law and set out in Appendix 2 – Summary Table 7 to the Report.
11. to approve the estimated income and expenditure proposals for the Climate Emergency Fund for 2026 as set out in Appendix 2 – Summary Table 8 to the Report.
12. to  approve,  in  accordance  with  Article  9(1)  of  the  Law,  the Government  Plan  2026-2029,  as  set  in  the  Appendix  to  the accompanying Report, except that on page 45, after the words "to all 2–3-year-olds", there should be inserted a new paragraph as follows –

"The Budget allocates funds from the Chief Minister's funding for pilot schemes, to a pilot scheme intended to extend free primary school meals to additional households, including, but not limited to, single-parent  families  and,  if  feasible,  households  that  would otherwise  qualify  for  Income  Support  were  they  not  owner- occupiers of a mortgaged residence.

During 2026 the Minister for Education and Lifelong Learning will also utilise the additional data provided by the pilot scheme to explore the feasibility of provision of free school meals to all non- fee-paying primary schools, reporting to the Assembly prior to the end of 2026.".

REPORT

The introduction of school meals has been a huge success, and is something that the Government and Assembly can be proud of. Once seen as an aspiration and not easily achievable, we now know it is possible and hundreds of our children are accessing healthy hot lunches in their schools.

The intention of this amendment is to keep momentum on the programme, initiating a pilot to reach those who are not on income support but still in great need of help, before looking at the feasibility of free school meals for all primary aged children.

• Providing free or subsidised healthy school meals to all primary school children in Jersey has multiple benefits: improving children's health, educational attainment, reducing inequalities, and helping families with cost-of-living pressures.

• Evidence from research (both local and international) supports that universal, healthy meals reduce obesity, improve academic outcomes, and provide financial relief for households.

• Based on the current cost of meals in Jersey (£2.50/day), supporting or subsidising these meals could save families hundreds of pounds per year.

Jersey's existing School Meals Programme

As of December 2024, all states funded primary schools in Jersey now offer hot school meals daily. The meals cost £2.50 per meal, for a balanced main course plus dessert. Some pupils are already eligible for free meals [1]- children who are looked after, from households recently claiming or receiving Income Support, from households with 'Registered' status qualifying for Income Support if resident in Jersey for five years, or with a parent or guardian serving in the Jersey Field Squadron.

Cost-of-Living implications

The intention of the Pilot scheme is to target those families in need, whose children are not currently eligible for funded meals. These may be families who are not receiving income support, but who are nevertheless struggling with the impact of the increasing costs of living. There are many families who are paying mortgages and therefore not eligible for full income support. These families may have a very similar level of income and expenditure to an income support household, but do not have the same access to support. The Jersey Opinions and Lifestyle survey 2024 also shows that 82% of single- parent households found it difficult to cope financially in 2024. I have targeted these 2 types of families initially, but the coordinating Minister would be free to set their own criteria beyond this if they see fit, for the purpose of the Pilot.

Relieving Pressure on Families

Based on 190 school days a year, the scheme could save parents £475 per child over the course of a year, or around £158 per term. Given that healthy packed lunches cost, on average, 45% more than less healthy ones,[2] subsidising school meals is especially cost- effective for parents who struggle to afford nutritious individual lunchboxes.

Economic Return on Investment

Research indicates a positive return on investment (ROI): for every £1 spent on universal free school meals, returns of between £1.38 and £1.71 have been estimated, depending on the model3. These returns come via reduced healthcare costs, better educational outcomes, and broader economic productivity gains.4

Reducing Inequality

Increased or even universal provision helps reduce stigma (because all children receive the same meal) and ensures that children who are not eligible under means-tested schemes still benefit. Evidence suggests universal schemes increase take-up for example, in England, when free meals were made universal, uptake rose even among previously eligible children5.

Health and Wellbeing Benefits

The health benefits to children are well-documented and can be read about in detail within the Children's Rights Impact Assessment for this Amendment.

Conclusion

Funding healthy school meals for primary children in Jersey is not just a welfare measure, but a long-term investment in the health, education, and equality of our Island's children. The evidence from academic research strongly supports that school meals –

• Improve child health and diet quality, especially reducing obesity.

• Boost educational attainment, especially reading progress.

• Help families by reducing their food expenditure, which is especially important in a cost-of-living crisis.

• Provide  societal returns that likely outweigh the  cost, through health and productivity gains.

Given the existing infrastructure, we have the opportunity to extend this scheme and to help more families during the cost-of-living crisis. This programme would therefore align with both social equity and public health goals.

My  preference would be for a school meals  programme  which  provides healthy, balanced meals at no cost to all children, in all non-fee paying schools. The research evidence locally, nationally and internationally shows that this would be a prudent investment. However I recognise that this is a goal to be worked towards, and therefore I present this phased approach to Members for their consideration.

3 At What Cost - the impact of the cost of living crisis on children and young people.pdf

4 Expanding free school meals: a cost benefit analysis - Impact on Urban Health

5 Free school meals cut obesity and help reading skills' in England, study finds | Children's health | The Guardian

Financial and staffing implications

Part of the reason this is posed as a pilot scheme is lack of data. Whilst trying to access figures of low income owner occupied families, it became readily apparent that this was not a simple calculation. In the same vein, the number of single parent families who are not on income support is difficult to ascertain.

The  pilot  therefore  sets  out  costs  for  approximately  500  children,  based  on  the subsidised cost of the meals. Without the unsubsidised cost it is difficult to ascertain how many children this will assist but it is considered that this would be between 350- 500 children.

It is appreciated that there would be additional staff time required to liaise with Statistics Jersey, Social Security and parents.

Children's Rights Impact Assessment

A Children's Rights Impact Assessment (CRIA) has been prepared in relation to this proposition and is available to read on the States Assembly website.

[1] Flourish (Primary) Caring Cooks Of Jersey

[2] Healthy packed lunches cost on average 45% more than unhealthy options | Food Foundation