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Government Plan 2021-24
Government Plan 2021-2024 (P.130/2020) as amended
On 18th December 2020 the States Assembly approved the Government Plan 2021- 2024 (P.130/2020), as amended.
This document sets out:
The P.130/2020 Proposition and Summary Tables, as amended by the States
Assembly (see Appendix 2).
The Government Plan 2021-24 as amended to include all amendments agreed by the
States Assembly (see Appendix 7) together with any necessary consequential and minor factual changes.
Our purpose
Our purpose as the Government of Jersey is to serve and represent the best interests of the Island and its citizens:
In order to do this, we must:
Provide strong, fair and trusted leadership for the Island and its people
Deliver positive, sustainable, economic, social and environmental outcomes for
Jersey
Ensure effective, efficient and sustainable management of public funds
Ensure the provision of modern and highly-valued services for the public.
How to use the Government Plan 2021-2024
Part One sets out the approach the Government of Jersey has taken in this Government Plan to protect the Island s future. This includes how we will continue to respond to Covid-19, including through heath, social and economic recovery and fiscal stimulus, how we will continue to invest in the Common Strategic Policy priorities, how we have listened to Islanders and how we have taken into account sustainable public finances and sustainable wellbeing, as required by the Public Finances (Jersey) Law 2019.
Parts Two and Three outline how the Government will invest in the five strategic priorities, while continuing to respond to the challenges of the global pandemic. At the same time, how we will continue our progress on modernising and driving efficiency across the Government.
Part Four sets out how the Government will make sure that expenditure is sustainable, using borrowing to support it, and enabling a plan to be delivered to balance the budget in the medium-term, continuing to invest in strategic priorities and preserving our reserves for any potential future shocks to our economy.
Contents
1 CMhinieisf tMeri nfoisrt eTrresafsourreywaonrdd Resources foreword 812
Introduction 14 2 GWeo vweillr npumtcehniltd rPerni ofirrsitt ies 3384
We will improve Islanders wellbeing and mental and physical 46
health
We will create a sustainable, vibrant economy and skilled local 58 workforce for the future
We will reduce income inequality and improve the standard of 68 living
We will protect and value our environment 74
3 MOuor dinevernstimsienngt Government 8872
Non-Ministerial investment 92 Rebalancing Government finances 94
4
4 GFBiunodavgneecret nsmmaetaeas n ugrtle a Fsn icf noe ar 2 n0 c2 e1 s 111000462
Summary of finances 108 Financial and economic context 111 Financial Strategy 117 Guiding Principles 123 Public sector spending 2021-24 125 Capital 2021-24 132 General Revenue Income 145 Budget proposals 151 Progress of tax reviews 157 Government of Jersey Balance Sheet and States funds 161 Key fiscal measures for consideration in 2021 175
Appendices 180
Appendix 1: Key to abbreviations 182 Appendix 2: Proposition and summary tables 184 Appendix 3: New revenue initiatives 194 Appendix 4: Revenue expenditure initiatives in last year s 196
Government Plan
Appendix 5: Administrative tax measures 204 Appendix 6: Managing risk 206 Appendix 7: Amendments to the Proposed Government Plan 210
Council of Ministers
as of 1 January 2021
Senator John Le Senator Lyndon Senator Ian Gorst
FondrØ Farnham
Minister for External Relations
Chief Minister Deputy Chief Minister
Minister for Economic Development, Tourism, Sport and Culture
Deputy Carolyn Labey Deputy Kevin Lewis Deputy Judy Martin
Minister for International Minister for Infrastructure Minister for Social Security Development
Deputy Jeremy Ma on* ConnØtable Len Norman Deputy Susie Pinel
Minister for Children Minister for Home Affairs Minister for Treasury and Housing (elected and Resources
17 November 2020)
Deputy Richard Renouf Senator Tracey Deputy John Young
Vallois
Minister for Health Minister for
and Social Services Minister for Education the Environment
*replaced Senator Sam MØzec, Minister for Children and 6 Housing to 9 November 2020
Assistant Ministers
as of 1 January 2021
ConnØtable Deputy Deputy Richard Buchanan Rowland Huelin Scott Wickenden
Assistant Chief Minister, Assistant Chief Assistant Chief Assistant Minister for Minister Minister, Assistant External Relations Minister for Social
Security
Deputy Deputy Deputy Lindsay Ash Gregory Guida Kirsten Morel
Assistant Minister Assistant Minister Assistant Minister
for Treasury and for the Environment, for Economic Resources Assistant Minister Development, Tourism, Assistant Minister for for Home Affairs Sport and Culture Home Affairs (Appointed
8 December 2020)
Deputy Deputy Deputy
Jess Perchard Hugh Raymond Trevor Pointon
Assistant Minister for Assistant Minister Assistant Minister Environment for Health and Social for Health and Social (Appointed Services, Services
3 December 2020) Assistant Minister for (Appointed
Infrastructure 25 November 2020) Assistant Minister for
Economic Development,
Tourism, Sport and
Culture (Appointed
8 December 2020)
The following were Assistant Ministers during the preparation of the Proposed Government Plan 2021-2024:
Deputy Montfort Tadier , Assistant Minister for Economic Development, Tourism, Sport and Culture and Assistant Minister for the Environment to 9th November 2020
Senator Steve Pallett, Assistant Minister for Economic Development, Tourism, Sport and Culture and Assistant Minister for Health and Social Services to 3rd November 2020.
Deputy Jeremy Macon, Assistant Minister for Health and Social Services, Assistant Minister for Social Security
and Assistant Minister for Children and Housing to 17th November 2020 7
Chief Minister foreword
When we introduced the first Government Plan in November 2019, nobody could have predicted the unprecedented impact that the global Covid-19 pandemic would have on our lives, on our
Senator John Le FondrØ community and on our economy.
Chief Minister
It has meant a substantial disruption to the work of Government, impacting on our income and creating a significant increase in our expenditure, as
we moved quickly and effectively to meet the health, economic and fiscal challenges presented by the pandemic.
It forced us to re-examine the delivery of some projects, to re-prioritise how we use our resources, and to re-think how we continue to invest in our Island.
Covid-19 has not altered the determination and commitment of the Council of Ministers to improve Islanders lives through the pledges we set out in the Common Strategic Policy. It has also not changed my determination that we will do what is needed to provide a sustainable and long-term legacy for Jersey.
Nonetheless there is no doubt that since March 2020, dealing with the pandemic has been the priority, and I am proud of the way that the Government has responded.
Led always by expert medical advice, we took the steps necessary
to protect our community. We shielded the most vulnerable, built the Nightingale Wing, integrated the healthcare system with GPs, established an ethical care framework, set up the Personal Protective Equipment (PPE) hub and ran the largest public health awareness campaign ever seen in
the Island.
Subsequently, we developed a testing programme which ranks amongst the most effective in Europe and implemented a comprehensive track and trace program to mitigate the spread of the virus within our community, whilst safely opening our borders.
We have also sought to protect the economic future of the Island. Our initial measures to assist local businesses were announced within 24 hours of Covid-19 being categorised as a pandemic by the World Health Organisation. This included the deferral of GST payments, the deferral of Social Security contributions and, in many cases, the deferral of rent payments for properties where the government acts as landlord. Shortly thereafter, on 18th March, we announced a multi-million pound package support for local businesses ranging from the loan guarantee scheme to the Co-Funded Payroll Scheme.
I believe we have responded well to the impact of Covid-19, and we remain prepared for the effects of a second wave of the virus, should one emerge this winter.
The measures set out in this Government Plan represent the continued ambitions of the Council of Ministers to meet our responsibility to protect Islanders from the pandemic, while ensuing our overarching aims and objectives in the Common Strategic Policy continue to be put first.
Protecting all Islanders, especially those at highest risk from the effects of Covid-19, will remain our priority as we continue to react to the medical and healthcare challenges presented by the pandemic. This includes ensuring the wellbeing of our Island s children; protecting our elderly citizens and those who feel isolated by the pandemic; and supporting those whose livelihoods are threatened.
We will provide investment and extra resilience to essential services, and do what is necessary to suppress the virus until a vaccine can be provided.
We will continue to fund the Nightingale Wing of the General Hospital, we will distribute Personal Protective Equipment (PPE) as and where needed, and we will fund the provision of a vaccine to tackle both flu and Covid-19, when it becomes available for Islanders.
To drive our recovery, we will also continue to provide support to Island businesses through new economic stimulus and growth initiatives. We have already seen the success of early schemes, including direct payment of approximately £1 million to Income Support and Pension Plus recipients, the reduction of employee Social Security contributions by 2%, and an injection of £11 million into the local economy through the £100 Spend Local Card scheme.
A programme of timely, targeted and temporary measures to support
the economy through the remainder of the year and into 2021 will be established, with States Assembly approval, through a new Fiscal Stimulus Fund.
We must be also be prepared to address the long-term impact on our public finances. The cost of the health and economic crises, combined with anticipated reduction in government revenues, has resulted in unprecedented financial deficits in 2020 and 2021. These exceptional circumstances pose a very real threat to the sustainability of our finances.
This plan sets out the prudent and measured steps that Ministers will take to address those deficits, while continuing to provide necessary investment in our essential services, especially health and education, and a longer-term plan to balance budgets by 2024.
To cover the costs of responding to the pandemic, Ministers are proposing borrowing up to a maximum of £336 million next year, in addition to the Fiscal Stimulus Fund of £50 million. Should the States Assembly approve current plans to move to Current Year Basis (CYB) taxation, then the future repayments of the 2019 tax liabilities for Previous Year Basis (PYB)
taxpayers will repay much, if not all, of this debt. Therefore, although Covid-19 has caused some financial challenges, the direct financial cost can be offset without a permanent increase in taxation, consistent with the long-term thinking and prudent approach that Jersey is renowned for.
The commitments made in the Common Strategic Policy, which underpin all of our work as a government, have not been forgotten. We will continue to put children first, to improve Islanders mental and physical wellbeing, to create a vibrant and sustainable economy, to reduce income inequality and improve the standard of living, and to protect and value our environment.
Our Island s children and young people have been particularly impacted by the pandemic, with detrimental effects on their education and personal development. We will be introducing the Covid-19 Schools Catch-up Programme to ensure that we address the loss of schooling suffered
by children at primary and secondary schools, alongside continued investment in mental health and wellbeing, which will have suffered as a result of the lockdown. In total, an additional £50.2million of expenditure will be made available, over the four-year period of this Plan, to support children.
While our Health Care Services have been successful to date in mitigating the impacts of the public health emergency, we must continue our programme of investment and change, ensuring that we have in place a health and care system that is capable of responding to our future needs in a way that is fit for Jersey s future.
From 2021 we will begin to implement the Jersey Care Model, which will enable a shift to a more preventative health service, through community and home-based services, enabling us to better cope with forecast demand from demographic change.
While Jersey businesses have shown resilience and tenacity in the face of the economic challenges of the pandemic, we must continue to support them through recovery and as we look to grow and diversify our economy. With recommendations from the Economic Council due to be received and considered in late 2020, we will develop their recommendations on longer- term economic renewal for consideration by the States Assembly and Islanders during early 2021, and begin implementation with the support of a new economic growth funding allocation.
Islanders whose employment and income have been impacted by the pandemic will continue to be supported, to ensure that disparities in income inequality and standards of living do not worsen. We will also remain committed to helping unemployed Islanders find work with the support of targeted Back to Work programmes.
We will ensure that we provide a home fit for the next generation and all those that follow with our new Island Plan, which will be changed to cover a shorter bridging timeframe, and enable us to live up to our commitment to the Island s environment.
This Government Plan also accounts for the continued improvements to organisation-wide change within the Government of Jersey to enable its continued transformation into a modern and innovative public sector which meets Islands needs.
The pandemic has demonstrated the importance of working together as One Government and using new technology to respond flexibly and at speed. In 2021, we will continue to invest in public-sector employees, reform our workforce and modernise how we work. This will enable the organisation to deliver better outcomes and more efficient services.
I know there will be yet more challenges facing our Island in 2021. While some, like the pandemic, will be unpredictable, there are many that we can anticipate and are prepared for - including the potential risks to the Island from a No Further Negotiated Outcome relationship between the UK and EU.
Detailed contingency planning is already underway and takes into account the range of possible outcomes from existing EU/UK future scenarios. We are adaptable and agile. We will meet the challenges of Brexit in the same way that we met the challenges of Covid-19, and with the same success.
The resolve of Islanders and their commitment to follow health guidelines and tackle the pandemic as a community has put us in our current good position. With this community spirit, I am confident that we can enter 2021 with the same resolve that has allowed us to successfully meet the challenges to our Island in 2020.
Finally, I would also like to take this opportunity to once again thank all of my Ministerial colleagues and the dedicated employees working across the public sector, not only to keep Islanders safe through the duration of the pandemic, but for their continued commitment to our Island, both in their day-to-day roles and in the production of this plan.
It is a testament to their work that we can propose the measures set
out in this document. A vision that will see Jersey safely through any coming challenges and provide the lasting legacy that all of the Council of Ministers are committed to achieving.
Minister for Treasury and Resources foreword
In this year s Government Plan, we seek to keep Jersey on a responsible and stable course
through what has been a turbulent year as we faced a global pandemic and economic downturn.
Deputy Susie Pinel
Minister for Treasury Following the lifting of many of the lockdown restrictions earlier this year, and Resources we have achieved a balance between protecting the Island s immediate
health from Covid-19 and making sure we protect our future health and wellbeing through appropriate economic support and investment.
As Minister for Treasury and Resources, I am also clear we need to protect our future finances. I have responsibility for making sure the Government prioritises the long-term financial sustainability of our Island. This means that we must respond, in the short-term to the effects of Covid-19 by funding the essential public services needed to respond to the pandemic, in the medium-term by supporting the wider economic recovery, and
the long-term by continuing to invest in our future by delivering on the priorities like education and healthcare.
This plan sets out the expected costs for us to manage the virus in
Jersey, without limiting, unnecessarily, normal economic activity. This
is the prudent course of action that protects the health and wellbeing
of Islanders and preserves their livelihoods and businesses. We are conscious of the balance of risks - the risk of a second wave in Europe
and the UK and a sharp slowdown in the world economy as a result of Covid-19, against the risk that we cause irreversible damage to our and our children s future by implementing costly and punitive restrictions on our economy during a recovery period.
This Government Plan includes a strategy of running deficits to support spending and investment in the coming years, with a return to balanced budgets by 2024. It is a plan that gives Jersey a consistent long-term framework for both economic and fiscal policy with the capacity to respond, in the short-term, to Covid-19 pressures. It forms part of the strategy that Ministers have put in place to reduce the impact on the economy while maintaining investment in education and skills, and a world class health care model.
Last year s Government Plan established the fiscal guidelines that this Government would borrow only to finance investment except under times of economic duress and would monitor the impact on net financial assets. This guideline is as relevant now as it was then. Nevertheless, considering the unprecedented nature of dealing with two global emergencies (a pandemic and a recession), the Council of Ministers has had to balance these two competing pressures.
The 2021-2024 Government Plan, in line with recommendations of the independent advice of the Fiscal Policy Panel, uses borrowing to fund the cost of the pandemic response and protects the strength of our reserves. I and the rest of my Ministerial colleagues have a clear and strong belief that the Strategic Reserve should be maintained in these uncertain times. We may not be through the worst of the pandemic or the economic recession and, with a likelihood that the cost of debt will be far lower than the long-term returns on our reserves, it is a responsible measure to protect the Island s permanent reserve.
Furthermore, and if the States Assembly agrees to my plans to move all Islanders to Current Year Basis, we can repay the short-term loss of the outstanding 2019 tax owed, over the 15 years from the future payments
of the 2019 Prior Year Basis tax. These payments would be time limited and avoid the need to raise taxes on Islanders working hard to preserve their livelihoods following the necessary lockdown measures. It would also make sure that the debts we incur to protect the Island from the effects of Covid-19 now, do not become a long-term issue for the next generation of Islanders and that we do our best to protect their future.
Part one Introduction
- WPhreon toeurcptuibnlicgh eoaluthre xIspelartsn wde r se fi fr ust ta ule rrt eed to the threat of a Introduction
Coronavirus pandemic in February, we, like other Governments around the world, immediately turned our attention to establishing the measures, processes and powers needed to respond to protect Islanders lives, livelihoods and wellbeing. At the same time, we had to continue to deliver essential services and as many other business-as-usual services as possible, while continuing to make progress with multiple Government Plan initiatives.
The stay at home and physical distancing restrictions, the closure of schools, Government and community facilities, and the public health measures put in place in the hospital all impacted on both how we have delivered public services this year and also on our ability to deliver many planned new initiatives set out in the 2020 four-year rolling Government Plan.
Public services, public finances and Government and legislative work have all been significantly disrupted by the pandemic. An urgent re-think was needed about how we continue to provide services and invest in
our Island, while at the same time developing and implementing plans to recover from the severe economic impact of the pandemic.
However, while there is a need to adjust what we do and how we do it, there is no change to the Government s core priorities, which were set out in the Common Strategic Policy in 2018. We will continue to focus on the things that matter most to protect our Island s future, and those strategic priorities again form the foundations for this revised Government Plan.
Our plan for 2021-24 has been formed by listening to Islanders and Scrutiny Panels, being agile in refocusing our strategy and building on the flexibility and improved working of our OneGovernment modernisation programme.
Listening carefully to the feedback we have received, and looking to the challenges and opportunities ahead, our focus in 2021 will be to protect our Island s future by:
Responding to the ongoing health and wellbeing challenges of Covid-19
and protecting our health services
Investing in our economic recovery Rebalancing the public finances
Investing in our future healthcare and education to protect the future of
Islanders.
Focusing on these core areas of strategic importance means that difficult decisions have needed to be made to defer the delivery of some initiatives as resources continue to be diverted to our Covid-19 response and securing our future.
Part 1 - Introduction
In preparing this Government Plan, we have had to face some difficult choices and make some tough decisions on behalf of the Island. It sets out how we will continue to work towards our strategic aims and invest for the future, while making sure that we can continue to provide the level of public service that Islanders expect. At the same time, it outlines a plan to rebalance our public finances by repaying the debt incurred to fund our response to the pandemic while maintaining our reserves so that Jersey is protected and ready to respond to any further economic challenges.
Protecting our future by responding to the financial and economic impact of Covid-19
There is no doubt that the Island is dealing with a severe test of its financial and economic resilience. With the global economy expected to fall by more than 5% this year, the pandemic still poses a significant global threat, and with ongoing uncertainty over the impacts of Brexit for the UK and the Crown Dependencies, measures will be needed to help Jersey navigate through this crisis and set it on the road to recovery.
Independent forecasting in August from the Fiscal Policy Panel1 predicts
a severe recession for 2020, in common with other countries around the globe, with a long-term effect on the economy from which lost ground
in 2020 may take many years to make up. Recovery could be slow, and spread across several years, meaning that Government revenues will
be lower than forecast as the impact of the pandemic is felt in every household. While the immediate outlook remains challenging, with careful planning and targeted investment response in the right economic areas, Jersey can emerge from this crisis in a much stronger position.
Protecting our future by maintaining sustainable public finances
We must, as required by the Public Finances Law 2019, maintain long- term financial sustainability to make sure that Jersey remains a vibrant, prosperous and safe place to live, both now and for future generations.
In the last Government Plan, our focus was to put any additional funds
into the Stabilisation Fund to rebuild it, in line with the Fiscal Policy Panel s recommendations at the time. This was in order to maintain Jersey s strong balance sheet and comparatively large reserves, protecting the Island against unforeseen economic pressures.
Since the publication of that plan, Covid-19 caused a major deterioration in Jersey s public finances. Both the cost pressures of the health emergency and economic crisis, combined with the anticipated falls in Government revenues, have resulted in unprecedented financial deficits in 2020 and 2021, with deficits continuing throughout the period if no action is taken. These exceptional circumstances potentially pose a very real threat to the sustainability of our finances if no action is taken.
In this autumn s economic assumptions, the Fiscal Policy Panel recommended that, in the short-term, the Government should not put
1 gov.je/FiscalPolicyPanel
up taxes or make large cuts to spending to cover this deficit. Instead it recommended running deficits in the short-term to support the economy and longer-terms plans to balance budgets by 2024, with flexibility to adjust to a changing and uncertain global financial environment during that period.
Our financial planning takes this recommendation into account, with deficits in the short-term and a longer-term plan to balance budgets by 2024. This will encourage the Island s economy to recover, support and stimulate broader investment and consumption and build confidence, minimising the impact on local jobs and livelihoods.
The latest income forecast is for £96 million less income in this year, compared to the forecast a year ago, with sizeable reductions across all years. In addition, across the next four years, we anticipate the costs of tackling Covid-19 and its wider impacts to be in excess of £400 million.
It has been possible to finance emergency expenditure and the wider impacts through drawing down the Stabilisation Fund and the balances held in our current account, which were intended for capital expenditure over the coming years.
It is our view that, in these uncertain times, we should not plug this hole by making damaging cuts to expenditure or by drawing down the Strategic Reserve. This would leave the Island with little financial resilience to deal with potential future shocks or further after-shocks to the economy arising from the current global crisis. This is consistent with the recommendation of the Fiscal Policy Panel.
Instead, we propose that we borrow to finance the impacts of Covid-19. The strength of our balance sheet, low debt levels and high credit rating going into this crisis have made borrowing possible. This is in line with Fiscal Policy Panel advice and maintains the strength of our reserves, our financial resilience and enables us to respond to potential future shocks to the economy.
In the longer-term, we will need to restore public finances with renewed attention on strengthening resilience and funding public investments, while supporting Islanders sustainable wellbeing.
Future Government Plans will consider how to rebuild the Stabilisation Fund as soon as the economic situation and public finances allow. This
is key to the Island s management of financial risk and uncertainty. This will include tight control over unspent funds, making sure they are used, first and foremost, to reduce our debt. This approach to borrowing means that, in spring next year, the States Assembly will make the final decision to approve the budget and funding of the Our Hospital project, which will include proposals to fund this through long-term debt.
Whilst the pandemic has had an unprecedented impact on our finances in the short-term, we have presented a plan, based upon sound economic advice, to bring forward measures in future Government Plans, that return us to balanced budgets and thereby minimising the impacts upon our reserves and enabling longer-term sustainability to public finances.
Borrowing
We are proposing to borrow up to a maximum of £336 million next year, in addition to the Fiscal Stimulus Fund (£50 million) to cover the costs of responding to the pandemic. This will provide flexibility and allow further work to proceed to minimise the scale of longer-term debt, required to replace the short-term facility in next year s Government Plan.
The annual financing costs of this debt have been included in the Government Plan, but debt has to be repaid and Ministers propose that, should the States Assembly approve plans to move to Current Year Basis (CYB) taxation, the future repayments of the 2019 tax liabilities for Previous Year Basis (PYB) taxpayers will be paid into a ring-fenced sinking fund to repay much, if not all, of this debt.
This will support the actions we are taking to restore public finances, while maintaining the strength of our reserves in order to respond to future shocks.
We will prioritise the application of any unspent funds in 2020 and 2021, be these in respect of spending related to COVID-19, departmental revenue expenditure or capital expenditure, to be returned to the Consolidated Fund, and used to minimise the borrowing requirement from the revolving credit facility.2
The Council of Ministers will agree an estates strategy in sufficient time for the next Government Plan (2022-25) to include a list of potential sales, in order for any funds raised to be prioritised for use to minimise any future borrowing.2
Social Security Fund
The Social Security Fund receives contributions from employers and working-age adults and, in normal times, an annual States Grant. The fund supports the wellbeing of Islanders by providing old age pensions and a range of working age benefits.
Following a States debate in 2020, it was agreed that no grant would be paid into the Social Security Fund in 2020 to allow £65.3 million to be allocated to support Covid-19-related financial pressures. Additionally, due to the exceptional financial pressure being faced by the Government as a consequence of the pandemic, it is being proposed that the States Grant
is not paid in 2021, 2022 and 2023, allowing an additional estimated £235 million to be allocated to urgent financial pressures. This critical element will support the Government in managing the lost income and additional costs associated with the pandemic and help to fund our capital and revenue expenditure programmes, whilst we implement a plan to return to balanced budgets by 2024.
For the purposes of this Government Plan, the Minister for Social Security will only be proposing a change to the Social Security Law to remove the States Grant for 2021. Further changes to the value of the Grant will be proposed during 2021 following agreement on the outcome of the review of the Social Security scheme.
2. See Appendix 7 (11)
In addition to the removal of the States Grant, the Social Security Fund has made a considerable contribution to our response to Covid-19:
Maintaining pension and benefit payments in the face of reduced
income from contributions due to the economic downturn
Reducing workers Social Security contributions by 2% from October
2020 to June 2021 as part of the Fiscal Stimulus programme
Enabling businesses and self-employed people to defer Social Security
contributions payable in the first two quarters of 2020.
In 2020, the Social Security Minister managed these pressures by transferring resources from the Social Security Reserve Fund. The Reserve has substantial financial assets, which have built up over a number of years. Additional transfers from the Reserve Fund, estimated at £263 million, will be needed over the next three years to maintain pension and benefit payments.
At the end of 2019 the assets held in the Social Security Funds represented more than seven years of fund expenditure. These assets form an important part of the overall financial stability of the Island and play a significant role in our credit rating.
By the end of 2024 the value of the funds is estimated to hold just under six years of fund expenditure. This still represents a significant investment in the pension provision of future generations of Islanders and is in excess of the target of five times spend established 20 years ago.
Ministers are determined to make sure that the fund continues to serve future generations and, as a priority, will undertake a full review of the various components of the Social Security scheme ahead of the next Government Plan to ensure the future balance is maintained at a fully sustainable level.
Last year s Government Plan identified the need for a review of the future balance of funding between the States Grant, employer contributions
and employee contributions. This work has been delayed in 2020 due to Covid-19 and this will now form an important part of the proposed review of the Social Security Scheme, as well as considering the burden of overall Government levies (taxes and contributions) on individuals, workers, businesses and employers.
The review will build on the public consultations previously conducted in 2016 and 2017 and will lead to proposals to be brought to the States Assembly during 2021 or incorporated into the next Government Plan.
Health Insurance Fund
The proposed Jersey Care Model will transform the way we deliver our healthcare in the Island. It is intended that some of the costs of the initial investment in the model and the digital care strategy will be met from the current balance in the Health Insurance Fund (HIF) over the next
four years.
The HIF receives allocations from Social Security contributions from
employers and working-age adults and supports the wellbeing of Islanders by subsidising GP visits, the cost of prescriptions and other primary care services.
We will also extend the use of the HIF next year to fund a scheme to improve access to GP-led primary care services for financially vulnerable groups.
The HIF has supported the Covid-19 response in 2020, providing
more than £5 million of funding, including covering the costs of directly employing the Island s GPs during the lockdown measures.
The combination of underlying demographic pressures, funding of Covid-19 related healthcare schemes, the proposed transfers to support the JCM and the health digital strategy, and the funding of the new financially vulnerable access scheme are projected to reduce the value of the HIF significantly over the next four years. This is anticipated to result in the HIF holding £35 million at the end of 2024, representing well under one year s worth of expenditure.
In order to integrate the health and social care system we will need to take a different approach to funding and financial management across the system. A one system, one budget approach will need to be taken in order to truly integrate services. A review of the system financial sources, income, process and structures will be required over the next four years in order to create a sustainable, efficient model for health and care in the Island.
The investment in the Jersey Care Model and the health digital strategy
is absolutely essential and will help to contain the growth in the long-term costs of our health care. After investments, the JCM is forecast to save £23 million per year by 2036. However, it brings forward the need to deliver
a solution to make sure that health costs are funded sustainably and we will undertake a full review which will include taking proposals to the States Assembly - ahead of the next Government Plan to determine an appropriate model for future health funding.
The Minister for Social Security will bring forward legislation to create a transfer of £11.3 million from the Health Insurance Fund to support the Jersey Care Model and the Digital Health and Care programme budgeted for 2021.
The reviews of health and social security funding, as well as reviews of revenues collected to support other areas of government expenditure, will be co-ordinated to make sure the overall impact on individuals and businesses is fully considered.
Managing risk
The challenges and opportunities we are facing in 2021, especially as a result of our response to Covid-19, are key to enabling us to continue to support the Island s future prosperity.
As the impacts of Covid-19 continue to be understood then it is likely that additional risks and opportunities will be exposed. We will continue to
develop and refine our approach to managing these, and other, risks to enable us to be as responsive as possible to the future needs of the Island and its community.
Alongside the obvious organisational risks, we constantly track and review anything which may impact our Island community, which includes physical, environmental and global risks.
Not only does this improve the delivery of services and achieve value for money, but it also reduces any unwelcome surprises and contributes to the sustainability and prosperity of our Island. Managing risks will continue to form part of all Government decision-making processes.
More information on the risks that we track and manage can be found at Appendix 6.
Protecting our future through economic recovery and fiscal stimulus
Responding to the economic and financial impact of Covid-19 will be a significant focus of our work and resources during 2021 and we will invest
in a range of projects to support the economic recovery.
During the next three years we will fund new economic growth initiatives to drive the recovery. This will be informed by recommendations made by the Economic Council, and future measures will be agreed for implementation by the Council of Ministers.
Provision is made for the gradual phasing out of the co-funded payroll scheme by March and for continued sector-specific support across the winter. In order to make sure that we are targeting investment in the economic growth initiatives which will have the most impact, each initiative will be supported by a robust business case and require the formal support of the Economic Recovery Political Oversight Group before agreement by the Minister for Economic Development, Tourism, Sport and Culture (for more information see Part Two - Economy and Skills).
In addition, we will continue to provide a timely, targeted and temporary financial stimulus to our economy throughout next year.
Fiscal stimulus initiatives in 2020 included:
Direct payments - making direct transfers to Income Support and
Pension Plus recipients
Spend Local cards - issuing time-limited prepaid debit cards to be spent
with local businesses
Social Security changes - reducing Social Security contributions by 2%
for nine months.
Subject to approval by the States Assembly in Autumn 2020, we will establish a Fiscal Stimulus Fund to support the economy through the remainder of the year and into 2021.
These economic support initiatives should quickly take effect and aim to: Maximise consumer spending in Jersey
Have a defined end date to avoid promoting structural budget deficits
and creating permanent distortions or subsidies in the economy
Reduce falls in output and employment in the short-term
Reduce the structural impact on the economy in the medium to
long-term.
Examples of future economic support might include, for example, investment to support construction, funding for skills and training, and further investment in technology.
Protecting our future by continuing to respond to Covid-19
Our on-going response to Covid-19 will remain our priority as we go into 2021, making sure we continue to protect Islanders lives and livelihoods, provide support where it is most needed, and suppress the virus until
a vaccine can be provided. This will continue to place all areas of
Government under unavoidable financial pressure and we will need to use public finances to:
Target funding at those essential public services needed to respond to
the pandemic
Support the immediate economic response to the crisis and wider
economic recovery
Compensate for shortfalls in usual income streams across the public
sector.
This plan makes the necessary provision for expected costs over the coming year and the financial impacts over the next three years, based upon being able to keep the virus to very low levels and limit restrictions to normal activities, without the need to use emergency States Assembly powers. These expected costs include:
Maintaining the Test, Trace and Contact programme to support
Islanders safety into 2021
Continuing to fund the Nightingale Ward so that we have sufficient
hospital capacity through to at least March 2021
Making sure that we can effectively and efficiently distribute Personal
Protective Equipment as and when needed
Funding the provision of a Covid-19 vaccine to tackle the pandemic,
when it becomes available.
To enable funding to be provided centrally and more efficiently, and to
build on the OneGovernment approach, a Covid-19 Head of Expenditure will be established. This will make it simpler for Islanders and the Assembly to understand the total cost of the Government s response, thereby supporting good financial management control.
In addition, provision will also be made within the General Reserve to enable additional funding, if needed. As a general principle, this additional funding should only be accessed if the underlying public health position deteriorates over the next year, in order to ensure a continued focus on good financial controls. We also anticipate that other jurisdictions will increasingly seek to move some aspects of Covid-19 costs onto a more sustainable basis, such as charging some travellers for testing services. Jersey is likely to follow suit as this becomes the norm.
Further information on this funding can be found at Part Two Our Priorities.
Protecting our future through priority investment
Whilst Covid-19 has created demand for some immediate and short-
term funding to meet unforeseen costs, this Government believes we
must continue to invest in our future by delivering on the priorities set
out in the Common Strategic Policy 2018-22. These include those new initiatives funded in this plan, continuing the initiatives identified in the last
Government Plan, and through modernising the essential public services that we provide to Islanders.
In particular, in 2021 we will focus on a number of key initiatives that are of importance to the long-term sustainable wellbeing of Islanders. We will therefore:
Embark on an ambitious three-year reform programme of our education
system to drive long-term, sustainable improvement in educational outcomes for all children and young people (see Part Two Putting Children First)
Implement the new Jersey Care Model, which will support the move to
a more preventative-focussed and community-based health service, enabling it to cope better with forecast increased demand from demographic change. This will be supported by funding from the Health Insurance Fund (see Part Two Wellbeing and Mental and Physical Health).
Remain focussed on delivering a new hospital for Jersey, ensuring
Islanders have access to a world-class healthcare facility which meets modern standards and the needs of Islanders both now and into the future. A full planning application for the new hospital will be submitted in September 2021, subject to the preferred site being agreed by the States Assembly in November 2020 (see Part Two Wellbeing and Mental and Physical Health).
Subject to States Assembly approval of the Council of Ministers
migration control policy, we will, in 2021, design new Control of Housing and Work Law permissions and structures, bring the required law changes to the States Assembly for approval and begin implementation of the agreed changes. In 2022, we will continue this work to fully implement the new migration controls policy (see Part Two - Economy and Skills).
Continue our important work on tenants rights, including implementing
a new Housing Advisory Service and developing rent stabilisation measures and homeless services. In addition, we will build on the work of the Housing Policy Development Board, including improving the strategic alignment of Government-owned housing delivery bodies (see Part Two - Income Inequality and Standard of Living).
Intensify our journey towards carbon neutrality and sustainable
transport, recognising that the climate emergency has not diminished and build on the changes that Islanders have made and benefited from during the pandemic (see Part Two - Environment).
Continue our drive to modernise the public service by further embracing
our move towards digital working and service delivery something which has been crucial during the pandemic. Strengthening our
commercial services, which are essential to delivering better value for the public purse as we seek to rebalance the public finances. Rationalising our office and property estate to release more land for affordable housing (see Part Three - Modernising Government).
Review the funding mechanisms that support Health and Social Security
spending to ensure that sustainable funding streams are in place to aid recovery from the economic impact of the pandemic and to support
the extra costs that we will face as the proportion of older people in
the population rises steadily over the next decade (see Part Four Government Finances).
Protecting our future by enhancing our island identity and international personality
The Chief Minister established the Island Identity Policy Development Board in October 2019. Its aim has been to examine how Jersey s distinctive qualities can be recognised as fresh, protected, celebrated, nurtured and utilised for the benefit of the Island and Islanders.
The Board produced an interim report to provide an update for Ministers in July 2020, and it was agreed, in principle, that Jersey s National and International Identity, once finalised and approved by the Council of Ministers, should be included as a significant theme in the Government Plan, and that the recommendations of the Island Identity Policy Development Board should, as far as possible, be integrated into the Government Plan.
The report contains more than 60 recommendations, but also offers
a series of early recommendations for how, in a practical way, the Government can begin the work of nurturing and building a Jersey Identity.
These include ways to improve Islanders understanding and appreciation of Jersey s distinctive history, heritage and culture, and helps clarify the language best deployed to reflect Jersey s unique constitutional status as
a small island nation with national institutions, whilst remaining proudly British.
The report also examines ways to deepen its historic and more recent ties to continental Europe, and to continue to develop its unique international personality.
It also provides a discussion piece for Ministers about what it means to be Jersey both in terms of how we see ourselves and how others see us, which will help to spark an important debate about the centrality of Jersey s national identity to the work of the Government.
Overall, it makes the case for Island Identity as a crucial factor in the development of future policy; signposting the longer-term work that will need to be undertaken to achieve the objectives set by the Chief Minister; and outlines the process to be undertaken within the Island Identity Programme between now and the publication of the action plan in 2021.
The next step is to refine the practical suggestions made by the Board so that, over the coming Government Plan period, departments can then incorporate the work of the Island Identity Policy Development Board into appropriate aspects of future Government policy direction.
Listening to Islanders
Islanders voices, and especially those of children and young people, are essential to building our shared future. We listen to those voices through a range of engagement, surveys and consultation exercises[3] which, together with official statistics, audit and Scrutiny Panel recommendations and decisions by the States Assembly, have helped to inform and shape this Government Plan.
For example, earlier in the year, the Office of the Children s Commissioner for Jersey and the Department for Children, Young People, Education
and Skills, undertook a joint survey of children and young people to help understand the impact of Covid-19 on key elements of their lives. The results informed the initial children s rights impact assessment that was undertaken to inform the re-opening of schools.
Given the dramatic impact of the pandemic, two specific surveys have been undertaken. Almost 4,000 Islanders participated in both the Jersey Opinion and Lifestyle Survey[4] and the Government Plan 2021-2024 Survey, with more than 3,000 comments received through the Government
Plan Survey5. Islanders provided views on their own lives, their social, economic and environmental issues, and what they think the focus of our Government priorities should be.
4 gov.je/OpinionsAndLifestyleSurvey 28 5 gov.je/GovernmentPlanSurvey
Key points from the two surveys include:
Relative importance of priorities Improving Islanders wellbeing and
mental and physical health (68%) and Creating a sustainable, vibrant economy and skilled workforce for the future (60%) received the highest ratings on being more important now than before the pandemic.
Children and Education a majority of participants were more
concerned about investment in schools, sports facilities and youth centres (53%), educational outcomes in secondary schools (50%) and the protection of and support for vulnerable children and children in care (51%). In general, 50% of adults are worried about the education and wellbeing of children in Jersey as a result of the pandemic.
Wellbeing and Mental and Physical Health - participants were mostly
concerned with having access to good mental health and support services (67%), and access to hospital services (63%). 70% said that investing in a new hospital should be the Government s priority. One- in-four households delayed seeking medical treatment or advice due to the Coronavirus outbreak and 62% said that they were somewhat
or very worried that they or their family will be infected by Coronavirus. The results also show that Islanders were smoking and drinking alcohol more often since the outbreak of the pandemic, however, they were
also physically more active.
Economy and Skills - participants were most worried about reduced job
security (68%), being financially independent in old age (69%), being supported if they became unemployed (61%), and the impact of the new UK-EU relationship after Brexit. Supporting the economy through fiscal stimulus projects was seen as more important by 59%.
Income inequality and standard of living A key recurring theme from
the many comments received as part of the Government Plan survey were the importance of affordable housing and the development of a new migration policy.
Environment - making Jersey carbon neutral was seen by almost 80%
of participants as either more important or as important as before
the pandemic. An increasing or unchanged support for exploring environmental charges to improve carbon neutrality was expressed by 78% of participants. 49% were more concerned about improving public transport and prioritising active travel. 54% saw the update of the Island Plan to explain how we protect Jersey as more important.
This plan seeks to address these key points by both responding to the economic and financial impact of the pandemic, whilst also investing in our long-term future and delivering on the priorities set out in the Common Strategic Policy.
Sustainable wellbeing
Protecting our future in this Government Plan has meant focusing on the key sustainable wellbeing challenges faced by the Island.
In responding to Covid-19, protecting Islanders health and wider wellbeing, now and for the future, has become a major focus for the Government. Resources were quickly re-allocated to respond to the threat of the pandemic and minimise the effects of the lockdown on Islanders wellbeing. One of the most important roles for the Government has been to respond quickly to the rapidly changing health, economic and financial situation and to protect Islanders lives and livelihoods through the pandemic.
Embedding sustainable wellbeing
In embracing sustainable wellbeing, we are transforming how we plan and focus public services. We have made real progress, and within the next two years sustainable wellbeing will be at the core of all policy making and important investment decisions. Whilst other governments around the world are also on this journey, we are well advanced to being a leading jurisdiction. This can be seen through the:
Public Finances (Jersey) Law 20196 - which introduced the requirement
for the Council of Ministers to consider the sustainable economic, social, environmental and cultural wellbeing of Islanders over successive generations in preparing the Government Plan
Common Strategic Policy 2018-2022 - which set out our five overarching
wellbeing priorities for the Island for this term of office and which
we are delivering through each Government Plan and Departmental Operational Business Plans.
Development and implementation of Jersey s Strategic Framework7
which helps us to align long-term sustainable wellbeing Island Outcomes with our priorities, organisational objectives and with accurate measures of success through Jersey s Performance Framework. It is our ambition by the next election to have fully- implemented Jersey s Strategic Framework and to use it to continuously inform and improve everything we do.
Development and implementation of Jersey s Performance Framework8
- which includes a variety of metrics against the Island Outcomes
to show how each one has developed. This framework consists of objective metrics (those that include data and figures) and subjective metrics (those that include what people think and feel). We will use the data provided by this framework to inform our decisions by helping
us to understand where we are and where we need to improve. This framework is for all of Jersey, not just Government, by helping us to engage with charities, businesses and communities who also have an important role to play in supporting the achievement of sustainable wellbeing for Islanders. We will continue to implement, develop and improve it through 2021 and beyond.
6 Article 9(9) Public Finances (Jersey) Law 2019, jerseylaw.je 7 gov.je/StrategicFramework
30 8 gov.je/PerformanceFramework
Development and integration of sustainable wellbeing approaches into
the business planning process when allocating additional funding for 2021 (see Part Two Our Priorities) and identifying efficiencies and other rebalancing measures (see Part Three Modernising Government), we have introduced a simple sustainable wellbeing impact assessment.
It challenges us to consider the impact of initiatives, positively or negatively, on the sustainable wellbeing of Islanders over successive generations. In 2021 we will review and refine the sustainable wellbeing impact assessment, and develop other approaches that will support
us in taking sustainable wellbeing into account when making decisions about resource allocation, and embedding wellbeing fully into the processes of government.
Sets out the long-term community vision expressed by Islanders.
JERSEY'S PERFORMANCE FRAMEWORK
Shows how Jersey is doing on the journey to achieving sustainable wellbeing
Sets out the plan for the Island's positive growth over the next ten years and the framework against which planning decisions are made
Sets out the high-level priorities of the Government of Jersey during this term of office
GOVERNMENT PLAN
Sets out the activities to be delivered
and associated income and expenditure
to deliver the Government of Jersey's DEPARTMENTAL OPERATIONAL priorities over the next four years
BUSINESS PLANS
Translates the activities set out in the
Government Plan into actionable
departmental tasks and measurable MY CONVERSATION activities, together with accompanying MY GOALS
detail of a wider set of services and
deliverables
A government-wide process, requiring regular discussions between employees and their line manager about individuals' performance against agreed goals
PERFORMANCE MANAGEMENT AND BUSINESS PLANNING STANDARDS AND PRINCIPLES
PUBLIC FINANCE (JERSEY) LAW 2019
Sustainable Wellbeing Sustainable Finances
Figure 1 - Jersey s Strategic Framework
L
A
T Built Children EN environment
M
N Health and O wellbeing
R
I
V Natural
N environment
E
Safety and Jersey's security
Performance
Sustainable Framework Vibrant and resources inclusive community
Affordable Jobs and
living growth
Business environment
NOMIC
Figure 2 - Jersey s Performance Framework
Part two Our priorities
Part 2 - Government Priorities
- ITnhitsr Poardtouf cthtei oGonvernment Plan should also be read in the context of: The Government Plan 2020-239
The Island Outcomes set out in the Jersey Performance Framework10
that describe the population-level wellbeing conditions that Islanders would like to see in the future
What this Council of Ministers has achieved since taking office in June
2018 which is set out in: the Annual Report and Accounts 2018 (June 2018 onwards)11; the Annual Report 201912; and the Government Plan Six Month Update Report13 published on 28th August 2020.
Common Strategic Policy Priorities
For each Common Strategic Policy (CSP) priority, we have set out the following:
A brief overview of the opportunities and challenges we face in 2021
(see Introduction); the total revenue and capital investment in supporting the CSP Priority (see Funding this priority); and the Island Outcomes and Indicators that we will use in the Jersey Performance Framework to measure our sustainable wellbeing impact (see How we will measure our sustainable wellbeing impact).
A summary of new initiatives we will invest in for the first time in 2021
that contribute to the CSP Priority (see Our Investment in 2021). Further information on these initiatives can be found in Appendix 3.
We have also separately provided information on initiatives that were:
Approved in the Government Plan 2020-23 and that we will continue to
invest in 2021 or that will, from 2021, become part of the core business of our Departments; or
Included in the Government Plan 2020-23 as being forecast to take
place in 2021 that we will halt, defer or reduce in order to prioritise the investments set out above considering the new financial context.
Further information on these initiatives can be found in Appendix 4.
In addition, it should be noted that Departments also provide public services which support the CSP priorities. Information on these services will be set out in the Departmental Operational Business Plans for 2021-24 for each Department, which will be published in January 2021.
9 gov.je/GovernmentPlan
10 gov.je/PerformanceFramework 11 gov.je/AnnualReport
12 gov.je/AnnualReport
36 13 gov.je/SixthMonthReview
Part 2 - Government Priorities
PHOTO
by protecting and supporting children, by improving their educational outcomes and by involving and engaging children in decisions that affect their everyday lives.
Headlines
We will continue to implement the Children s Change Programme,
so that vulnerable children are protected and supported, and the service makes demonstrable progress towards achieving consistently outstanding children s social work practice
We will continue to focus on practice improvement within the Children s
Service by funding relevant care worker training and by progressing the regulation of social work and mental health services available to children and young people in Jersey
We will continue to progress policy, legislation and service delivery
in relation to family law and sexual assault services to better protect children and young people
We will continue to provide redress to people who, as children, suffered
abuse or harm whilst residents of care in Jersey
We will review the future delivery of student finance which was deferred
due to the pandemic
We will continue to promote ways to involve and engage the voice of
young people in Jersey
We will support our children in catching-up on their education so that
they do not suffer long-term detriment
We will continue to provide additional funding for the Youth Service
Move On CafØ which supports more than 390 young people
We will maintain our investment in Jrriais
We will re-prioritise existing resources to invest in the redesign of
Children and Adolescent Mental Health Services (CAMHS) in order to improve support for children and young people experiencing mental ill-health
We will embark on an ambitious long-term programme of reform for our
education system in order to support the improvement of long-term educational outcomes for all children and young people
We will renew and increase funding for the research project, approved
in last year s Government Plan, to engage and discover the needs
of young people within communities with English as an additional language concentrating initially on those within the Portuguese, Romanian and Polish communities
We will increase Child Care Tax Relief and Child Tax Allowance to help
families to meet the rising cost of living14
Introduction
We will continue to involve and engage our children and young people in the decisions that affect their everyday lives so that we are able to understand how they are doing, what is important to them and what support they need.
Children need to be protected and their general wellbeing supported now more than ever. Like adults, they have not been able to live their lives to
the full due to the pandemic. The restrictions on children s movements and activities and physical and social contact with friends, family and carers will have had an impact on their mental and physical health and, sadly, in some situations, on their personal safety and security.
All children and young people have felt the impact on their education, this despite the tremendous efforts by all parts of our education system and from parents and carers through schooling at home. It is now well documented that the impact of home-schooling and lack of physical attendance at school or college has caused a range of issues for a whole generation.
These include mental health and wellbeing issues, as well as an impact on educational progress and attainment. The pandemic has tested pupils, parents, carers, schools and the Department of Children, Young People, Education and Skills (CYPES) to find new ways of learning. Moreover,
the challenges have been compounded for those groups of pupils who are disadvantaged, vulnerable, have English as an additional language, or special educational needs or disabilities. We will also maintain our investment in Jrriais.
This year was one of huge disruption for our children and young people. While the medium to long-term impact of the pandemic on them will take time to fully understand and respond to, the immediate impacts are clear and have emphasised the importance of this Priority.
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
Covid-19 GP21-CSP1-C-01 Covid-19 Schools Catch-up Programme respond, We will support our children in catching-up on their education so that recover and they do not suffer long-term detriment.
renew We will do this by putting in place a 16-month programme, with funding
running across the financial years 2020 and 2021 to reflect the school calendar, to address the learning loss experienced by many children at primary and secondary schools.
The programme has three strands based on lessons learned, both in Jersey and in other jurisdictions:
To establish a tutoring programme, which will run from 2020 to
2021 (across the school academic year September to July). This will provide small-group tuition to the children most in-need, with intensive learning support, and giving schools access to subsidised tutoring sessions and free coaches for various groups of children (Jersey Premium, EAL, SEN/D and most vulnerable)
To invest additional funding in the OLEVI teaching programme
(teaching project across all Jersey schools) to accelerate building capacity to deliver the catch-up programme effectively and improve sustained attainment into the future and to make sure that all staff are best equipped for the recovery challenge.
CYPES
Protecting and GP21-CSP1-1-07 Youth Service Move On CafØ supporting We will continue to provide additional funding for the Youth Service children Move On CafØ, which supports more than 390 young people.
This will make sure that the project is funded on a more secure basis and to enable it to manage the volume and level of need that many of the regular members require.
CYPES CT8
Protecting and GP21-CSP1-1-08 SARC Dewberry House supporting
We will provide additional funding to continue and further develop the children Dewberry House Sexual Assault Referral Centre (SARC).
Dewberry House is now an integral service to the Island providing support to victims of sexual abuse, whether this happened recently
or in the past. The current availability of this service still needs further development, especially when it comes to children and young people who are victims of sexual abuse.
This funding will support the provision of services which will follow the Child s House Model . This model provides integrated medical, investigative and emotional support from one location through early support after the trauma of abuse. It aims to:
Increase the length of time support is provided to children and
families
Gather more affective evidence from interviews
Offer quicker progress in investigations and court cases.
Provide a safe space for children and young people to talk about
what happened to them and receive support and therapy to rebuild their lives.
This funding will also support the existing running costs for the SARC Manager and Crisis Workers and is also key to the development of psychological, therapeutic and intermediary services.
JHA CT2
GP21-CSP1-1-06 CAMHS Service Redesign
In anticipation of recurrent growth funding from 2022, we will re-prioritise existing health and CYPES resources to release upfront investment to initiate the implementation of a redesigned Children and Adolescent Mental Health Service (CAMHS) in order to improve support for children and young people experiencing mental ill-health.
This includes investment in:
Early intervention services for children of all ages
Community intensive support services, seven days per week
Improving and refocusing the current service as a specialist service Improving quality and performance management.
CYPES HCS CT8
Improving GP21-CSP1-2-05 Education Reform Programme educational We will embark on an ambitious long-term programme of reform for our outcomes education system in order to deliver the sustainable improvement of
long-term educational outcomes for all children and young people.
The Education Reform Programme aims to deliver the following:
Achieving a sustainable funding settlement and strengthening the
management of schools
Increasing investment in current services, which will improve
outcomes for pupils
Delivering new initiatives to address current gaps in provision
Exploring a range of transformational policy options, which will
deliver a high quality, more efficient and effective education system and provide better outcomes for pupils.
CYPES
Involving and GP21-CSP1-3-03 Youth Service - English as Additional Language engaging We will, as approved in the previous Government Plan 2020-2023, children renew and increase funding for the research project, to engage and
discover the needs of young people within communities with English
as an additional language, concentrating initially on those within the Portuguese, Romanian and Polish speaking communities.
The objective is to provide support to enable those young people to integrate with local networks and services so that they can achieve educational and personal goals and reach their full potential.
This pilot scheme introduces dedicated Youth Workers to address the need for youth development work with Portuguese, Romanian and Polish speaking young people so that their voices can be heard, and their needs identified.
Should further work with these communities be required, a similar resource provision is made for the three-year period following, should the research project find it is necessary.
CYPES CT8
Please see Appendix 3 for more information on these initiaitives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in last year s Government Plan.
Part 2 - Government Priorities
Funding this priority
We will resource these activities through base departmental budgets and/or existing funds. This additional expenditure will total £50.2 million over the four-year period of the Government Plan, with additional expenditure in 2021 estimated to be £9.2 million, broken down as follows:
Protecting and supporting children: additional expenditure in 2021 of
£0.2 million for the Move On CafØ and Dewbury House
Improving educational outcomes: additional expenditure in 2021 of
£7.9 million for the education reform programme
Government Covid-19 Response: additional expenditure in 2021 of
£0.9 million for the schools catch up programme
Involving and engaging children: additional expenditure in 2021 of
£0.15 million for Youth Service language support.
For further detail on the above additional expenditure, please see table 46.
We will also invest £20.9 million in initiatives included in last year s Government Plan.
We will be investing in infrastructure associated with this priority, with capital expenditure of £10.6 million in 2021 and totalling £67.4 million over the four-year period (for further detail, please see table 17).
How we measure our sustainable wellbeing impact
We measure our sustainable wellbeing impact and Jersey s overall progress towards sustainable wellbeing by monitoring a wide range of outcomes and metrics in Jersey s Performance Framework. The full set of metrics and data is available on gov.je[3] .
Examples of the Island Outcomes this Priority aims to progress further: Children develop as expected in their early years (aged 0 to 5 years) Children enter school ready to learn
Pupils are proficient in core academic subjects at Key Stage 1 (KS1) Pupils are proficient in core academic subjects at Key Stage 2 (KS2) Pupils complete compulsory education successfully
Pupils complete their A-levels and further education successfully
Children in Jersey are safe
All children in Jersey enjoy the same rights.
Examples of the Island Indicators this Priority aims to progress further:
% of children reaching developmental milestones at age two
% of Reception age children achieving/exceeding expected level of development
% of pupils assessed as secure in reading, writing and mathematics at end of KS1
% of pupils assessed as secure in reading, writing and mathematics at end of KS2
% of pupils achieving five or more standard GCSEs
% of pupils who progress to take a Level 3 qualification
% of children aged 7 to 11 who are aware of their rights under the UNCRC
% of children reporting being bullied at or near school in past 12 months
% of Year 10 and 12 children who have been involved in bullying others using mobile phones, tablets, online games, social media etc.
Number of children under 18 who are victims of crime.
We will improve Islanders wellbeing and mental and physical health
by supporting Islanders to live healthier, active, longer lives, improving the quality of and access to mental health services, and by putting patients, families and carers at the heart of Jersey s health and care system.
Headlines
We will continue to deliver a range of preventative and proactive
schemes focused on inspiring an Active Jersey , with a boost to alternative delivery methods in response to lockdown measures
We will continue to support the reduction of preventable disease, to
reverse the current upward trend in overweight and obesity rates, to increase healthy eating, to reduce the rates of smoking and harmful alcohol consumption, and to deliver a range of preventative and proactive schemes
We will significantly improve access to mental health services, bringing
parity of esteem to the mental health agenda, invest in our mental health environment and building infrastructure, implement initiatives for crisis support, a listening lounge , complex trauma, Child and Adolescent Mental Health Services and mental health legislation
We will continue to implement a digital care programme, focused on
replacing outdated systems with a new e-prescribing system, for a digital information flow between pharmacies and GPs, a WiFi upgrade for the hospital, process digitisation of pathology and radiology tests, and an improved flow of information between health care organisations
We will continue to expand our 24-hour community nursing and primary
care services, develop a preventative model of dental services for children and new models of care to support people with diabetes, and develop a model that improves access to primary care for financially- vulnerable people
We will fund the operational costs and premises related costs for
the Nightingale Ward including decommissioning costs, assuming decommissioning from March 2021
We will fund the anticipated cost of purchasing and delivering Covid-19
vaccines during the pandemic and as and when available
We will fund the anticipated costs of the Test and Trace Programme to
June 2021
We will fund the costs of warehousing and distribution of PPE (Personal
Protective Equipment) stock
We will provide funding to compensate for shortfall in income in the
sports estate due to Covid-19 while Covid-19 restrictions remain in place
We will begin to implement the Jersey Care Model that will enable a
shift to a more preventative health service, enabling it to better cope with forecast demand from demographic change
We will implement a model to support improved access to primary care
for financially vulnerable Islanders from January 2021.
We will provide additional funding to ensure the ongoing provision of an
air ambulance service due to the collapse of the current provider
We will provide funding to enable the purchase of pandemic specific
vaccine stock in the event of a worldwide pandemic
We will extend the key worker accommodation scheme to enable more
units to be offered to key workers that are fit for purpose
We will increase the investment in end of life health care to provide a
range of services which are patient centred and delivered in accordance with their preferences
We will provide on-island education programmes for those undertaking
nursing qualifications to give local students the opportunity to train into these roles whilst staying on island
Introduction
Jersey has been highly successful in controlling the immediate impact of a global public health emergency. While there remains much uncertainty, we will continue to respond to the pandemic as it develops and continue to prepare for realistic future scenarios.
Covid-19 has impacted on the physical and mental health of Islanders, in particular the need for timely, improved and expanded mental health services is now more important than ever.
We will continue to advance towards a health and care system that is responsive, outcome-focused and meets Jersey s needs in a way that is fit for our future. Covid-19 has also demonstrated the importance of a resilient and properly resourced public health policy function to lead on approaches to the most important public health challenges we face, including continuing to respond to the pandemic as it develops.
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
Covid-19 GP21-CSP2-C-02 Nightingale Ward Premises respond, GP21-CSP2-C-03 Nightingale Ward Operations recover and We will fund the operational costs and premises related costs for the
renew Ncoigshtst,i nags as luemWinagr dth oisf tt ha eke Gs e pnlaecrae l fHroomsp Mitaalr,c inh c 2lu0 d2 i1n. g decommissioning
This facility will mitigate the risk of an overwhelmed health service throughout the pandemic by making sure there is sufficient Acute bed capacity available to Health and Community Services (HCS) during the approaching winter pressures.
HCS IHE
GP21-CSP2-C-01 COVID-19 Vaccine
We will fund the anticipated cost of the Covid-19 vaccination programme, as and when a vaccine becomes available.
Although there remain several unknowns, the availability of a safe and effective vaccine for Covid-19 will be a hugely important element and very probably the key to controlling the pandemic. It is therefore essential, as a key public health strategy, that when a vaccine does arrive, we are ready to deliver it, rapidly, to all eligible Islanders.
HCS
GP21-CSP2-C-04 Test and Tracing Programme 2
We will continue to fund the anticipated costs of the Test and Trace Programme to June 2021.
As part of the agreed strategy to protect Islanders during the pandemic, a fully resourced and comprehensive programme of testing and contact tracing will be maintained. This will support the safer travel policy to enable our borders to operate and also the testing to protect strategy, that makes sure our essential workers, those in health care settings and Islanders that need testing, can be tested quickly and without delay.
The programme also includes the introduction of an Exposure Notification App, to enable the quick identification of a positive Covid-19 case and to notify, through digital automation, those who were in close proximity that they may have been exposed to a positive case.
JHA
GP21-CSP2-C-05 PPE Warehousing Solution
We will fund the costs of storing and distributing Personal Protective Equipment (PPE).
Timely and complete provision of PPE is essential to the Government s management of Covid-19 cases in the Island. We must make sure that we can procure, store and distribute a three-month pandemic stock (which is based on a worst-case scenario) of PPE that is over and above our current supplies.
HCS
GP21-CSP2-C-06 Support for Sport Infrastructure
We will provide funding to compensate for shortfall in income in the sports estate due to Covid-19, while restrictions remain in place.
IHE CT1
Put patients, GP21-CSP2-1-05 Jersey Care Model families and We will begin to implement the Jersey Care Model (JCM), which will carers at enable a shift to a more prevention focused health service, enabling it to
better cope with forecast demand from demographic changes.
the heart of The JCM aims to transform health and social care in order to improve Jersey s health Islanders wellbeing and mental and physical health. To achieve this, it
and care pacrocpeosssiebsle a adnodp tfiinnga nacpiaellrys osun s-ctae innt ar be lde ,a bp ep ir no ga cphro wvih de er de b iny tc ha er e p li as c s ea sfe , system where people need it the most.
The JCM has three overarching objectives:
Make sure care is person-centred with a focus on prevention and
self-care, for both physical and mental health
Reduce dependency on secondary care services by expanding
primary and community services, working closely with all partners in order to deliver more care in the community and at home
Redesign of health and community services so that they are better
structured to meet the current and future needs of Islanders.
After investments, the JCM is forecast to avoid £23 million per year by 2036 of the expected expenditure growth for Jersey s health and care system. In order to deliver the JCM and realise the expected benefits, investment of £28.1 million over this government plan (2021-24) is required, before the model will deliver a net financial benefit from 2025. Through implementing the changes proposed in the JCM, the financial sustainability of Jersey s health and care system will be significantly improved.
HCS CT6
GP21-CSP2-3-06 Air Ambulance Services
We will provide additional funding to guarantee the ongoing provision of an air ambulance service following the collapse of the current provider.
The air ambulance service is a critical requirement of the Island, primarily utilised in emergency trauma and the need to immediately evacuate patients for emergency treatment that cannot be provided in Jersey.
HCS
GP20-CSP2-3-03 Maintaining Health Care Standards
We will use investment allocated in the previous Government Plan to maintain health care standards, such as:
Diabetes Pathway Improvements develop and implement a new
diabetes strategy for the Island in order move to a more preventative approach, to reduce the prevalence of the disease and improve outcomes
End of life care to develop a community partnership to meet
the growing need for end of life care. This includes provide more palliative care options and bereavement support
Mental health nursing training to improve sustainable access to
mental health nurses by providing training to Islanders interested in accessing the profession
Key worker accommodation to make sure the provision of key
worker accommodation to make sure that HCS can continue to recruit essential skilled workers required for the ongoing delivery of services.
HCS
GP21-CSP2-CAPITAL Our Hospital Project
We will fund the Our Hospital project to continue the programme for delivering a new hospital for Jersey. For 2021, these include:
The design stage, including the social value outputs
A detailed planning submission for the new hospital, and associated
highway alterations
The Outline Business Case
Continued public engagement
The vacation and purchase of the selected site
HCS
GP21-CSP2-CAPITAL In-Patients/Support Services Refurbishments
We will fund the refurbishment of in-patients/support services for the existing hospital.
This will enable a phased approach to the required refurbishment ahead of the Our Hospital programme.
HCS
Please see Appendix 3 for more information on these initiatives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in last year s Government Plan.
Funding this priority
We will resource these activities through base departmental budgets and/or existing funds, and additional investment. This additional expenditure will total £74.7 million over the four-year period of the Government Plan, with additional expenditure in 2021 estimated to be £53.3 million. This includes:
Support Islanders to live healthier, active, longer lives: additional
expenditure in 2021 of £6.6 million for the Jersey Care Model
Put patients, families and carers at the heart of Jersey s health and
care system: additional expenditure in 2021 of £0.4 million for the air ambulance service
Government Covid-19 Response: additional expenditure in 2021 of £46.3
million for the test and trace programme, Nightingale Ward , purchasing a vaccine, PPE Warehousing and support for sports centres.
For further detail on the above additional expenditure, please see table 46.
We will also invest £22 million in initiatives included in last year s Government Plan.
We will be investing in infrastructure associated with this priority, with capital expenditure of £37.1 million in 2021 and totalling £71.6 million over the four-year period (for further detail, please see table 17).
How we measure our sustainable wellbeing impact
We measure our sustainable wellbeing impact and Jersey s overall progress towards sustainable wellbeing by monitoring a wide range of outcomes and metrics in Jersey s Performance Framework. The full set of metrics and data is available on gov.je .
Examples of the Island Outcomes this Priority aims to progress further: Jersey has a healthy population
Islanders look after their health by being physically active
Islanders look after their health by drinking alcohol responsibly
Islanders look after their health by not smoking tobacco
Islanders look after their health through healthy diets
Islanders can access health care
Effective public health interventions help prevent avoidable deaths
Deaths due to treatable causes are avoided where possible
Islanders with long-term health conditions enjoy a good quality of life Islanders enjoy positive mental health and wellbeing
Islanders enjoy life in a strong, inclusive community
Quality of life in Jersey benefits from a thriving sports sector.
Examples of the Island indicators this priority aims to progress further:
Number of years a new-born baby in Jersey can expect to live, on
average, in good or very good health
Premature deaths per 100,000 population (where individual was aged
<75)
Jersey s population mental wellbeing score
Average consumption in litres of pure alcohol per adult
% of adults who smoke daily or occasionally
% of adults who are overweight or obese
% of adults who meet recommended levels of physical activity
% of adults who say they feel lonely often or some of the time
% of adults who regularly minimise face-to-face contact with people outside of their household
% of adults who think they spend the right amount of time on social activities outside of their job.
We will create a sustainable, vibrant economy and skilled local workforce for the future
by delivering an economic framework to improve productivity, by nurturing and strengthening
our financial services industry, by enhancing
our international profile and promoting our Island identity, by delivering the best outcomes from Brexit, and by improving skills in the local workforce to reduce Jersey s reliance on inward migration.
Headlines
We will continue to develop and deliver the Future Economy
Programme, which will aim to ensure our Island s long-term economic sustainability and resilience
We will work to ensure that Jersey s interests are promoted and taken
into account in respect of the UK s future trade negotiations
We will continue to deliver our Global Markets strategy to promote
Jersey on the world stage as a dynamic place to do business and trade with
We will maintain and build on the Island s government to government
relationships in respect of the UK and EU, to enhance understanding of our constitutional position, economy, reputation and international profile
We will continue to support the development and delivery of Jersey s
tax policy and delivery of international tax commitments
We will continue to invest in Digital Jersey to ensure progress towards
a digital, knowledge based economy and increased access to digital capability
We will continue to review Jersey s Economic Framework and
Productivity Support to create sustainable economic growth for Jersey and be managed in accordance with Jersey s new investment framework
We will continue to protect our financial services industry by investing
in Anti-Money Laundering and Countering the Financing of Terrorism processes
We will continue to forge new and stronger commercial relationships to
support our financial services industry
We will fund support for a range of projects to support the economic
recovery
We will increase funding for the newly formed Jersey Competition
Regulatory Authority to allow it to better focus on the consumer matters that impact people in Jersey, and on promoting competition that will support Islanders living standards and improve the competitiveness of local businesses
We will provide funding for the implementation of a migration control
policy, building on the recommendations of the Migration Policy Development Board as and when approved by the States Assembly
We will continue to increase Jersey s Overseas Aid contributions,
investing in our long-term future as a responsible, outward-looking global citizen
We will continue to develop and promote a strong and inclusive sense
of national identity, to increase social cohesion and support Jersey in projecting a positive and coherent international profile
Introduction
We will need to remain agile in order to build back this capacity for further economic shock across the households and businesses, particularly in the foundation economy, where many businesses rely on footfall from Islanders and visitors. The outlook for inbound travel remains volatile
and we will continue to evaluate the availability and effectiveness
of Government support measures to those businesses that will be disproportionately affected.
The financial services sector was able to perform strongly, with some businesses in the sector paying tax liabilities ahead of their due date to assist with cashflow. Sector employment has remained strong, although the increase in remote working provides a warning against complacency of many roles remaining in Jersey in the long-term. We will continue to invest in the sector to support new business acquisition, new market opportunities, digitisation and continued preparedness to meet the high benchmark expected by clients and international standard setters.
In 2021 we will continue to invest resources in hospitality, retail, agriculture and fisheries through measures such as grants, route development support, re-capitalistion of the Rural Incentive Scheme and productivity support. We also remain committed to growth funding for the Arts, Culture and Heritage portfolio. We will deliver the States Assembly decision (P.40/2019) with 1% of net revenue expenditure (excluding time limited costs relating to Covid-19) going to these sectors in 2022. We commit
to the reinstatement of funding at the agreed rate of 1% of net revenue expenditure for 2024 and beyond[3]. We will increase investment in arts, culture and heritage, recognising their importance to Islanders and investors alike. We will also continue our investment in Digital Jersey as a catalyst for the embrace of new technologies and a voice for the promotion and of our Island s growing digital sector.
Taking account of the advice of the Economic Council and Political Oversight Group for the development of the future economy, the Critical Skills programmes will be reviewed and proposals brought forward to make sure there is alignment with our future labour market. We will help both young people entering training and employment, and adults who need to re-skill, by providing opportunities across a range of work-based learning programmes, traineeships, apprenticeships and a broadening
of Further and Higher Education offers. This will also feed into the development of the new Migration Policy.
Also within the context of the Future Economy programme, the Minister and Assistant Minister for Education will oversee the production of a re-training strategy that examines the range of existing training and employment support programmes offered through the private sector, Highlands College, Skills Jersey, Customer and Local Services and other stakeholders. This will ensure we have the most effective provision, management and funding of these services for the future, and identify future strategies and schemes that support social mobility through career changes or up-skilling.
While we remain confident about the role Jersey can play as a visitor destination, a well-regulated and internationally co-operative financial centre, and as a supplier of high quality dairy, agricultural and aquaculture products, we must recognise that suppressed demand and lower transaction flows elsewhere may impact our return to growth.
With recommendations from the Economic Council due to be received and considered in late 2020, we will develop plans for longer-term economic renewal for consideration by the States Assembly and Islanders during early 2021. Agreed plans will be taken forward with the support of a new economic growth funding allocation. We will challenge what growth means and through our policy making, seek to secure more evenly-shared future prosperity for Islanders, a prosperity that pays dividends in social cohesion, improved health, financial inclusion and judicious, sustainable use of our resources.
The direction of policy and regulation at EU and global (OECD) level, particularly in relation to the development of new standards in international tax, is likely to present additional complexity for the Island as it seeks to renew the economy in light of the pandemic. The long-standing approach of proactive engagement with international standard setters has served
the Island well and we will continue this approach.
Jersey must continue to feed into the UK s trade negotiations as it establishes itself as an independent trading nation in its own right, moving at pace to understand the risks and opportunities from new
trade relationships, and in ensuring our interests are understood and represented by the UK. Where necessary, this will also involve Jersey continuing to expand its own network of international agreements, tailored to suit the Island s particular economic interests.
We must also continue to deliver a programme of trade facilitation, profile raising and international engagement critical to Jersey s reputation and global standing. And while managing international challenges remains critical, we will also help Jersey seize new opportunities for economic recovery by ensuring that the Island is well-connected and well-regarded internationally in growth areas, such as environmental, social and governance investment, philanthropy, the continued development of a strong digital sector, and the continued advances in the effectiveness and reputation of Jersey s international aid programme.
As well as adapting existing programmes in response to the global Covid-19 pandemic, Jersey Overseas Aid continues to invest its funds in humanitarian interventions where needs are greatest. As agreed last year, from 2021 we will tie the value of our overseas aid to the size of the economy, with a single basis point increase, year-on-year, from 2021 onwards. This means that Jersey will move closer to international norms
while ensuring that expenditure on international relief and development remains affordable.
Covid-19 GP21-CSP3-C-01 Economic Recovery respond, We will fund support for a range of projects to support the economic recover and recovery.
renew Tghroiswathn ninuiatila atilvloecsa, tsiounchina 2s 0th2o1-s2e3 r ewcilol mbem ue sn edde td o b fuy n t dhe n Eewco en co omni oc mic
Council and agreed for implementation by the Council of Ministers.
Funding will also be drawn to complete the balance of economic
support measures and the balance of initiatives in 2021 directly related
to economic recovery, such as in the hospitality sector.
Business cases will be required for each initiative and will require formal support of the Economic Recovery Political Oversight Group before sign-off by the Minister for Economic Development, Tourism, Sport and Culture under Ministerial Decision.
OCE
Delivering GP21-CSP3-2-12 JCRA Reconstitution Funding an economic We will increase funding for the newly-formed Jersey Competition framework Regulatory Authority (JCRA) to allow it to better focus on the consumer
to improve mwiallt steurpsp tohartt Iismlapnadcet rps e loivp inle g inst aJenr ds ae ry d sa nadn do nim p proromveo t ti hn eg cc oo mm pp ee tt ii tt ii vo en n t eh sa st productivity and of local businesses.
nurturing and This will be achieved through the promotion of competition and
consumer interests through a comprehensive programme of activity strengthening that would typically be delivered by a general competition authority.
our financial
services industry OCE CT8
In 2022 we will invest in:
Improving skills GP21-CSP3-4-02 Migration Policy Implementation in the local We will provide funding for the implementation of new Migration Control workforce to Policies, building on the recommendations of the Migration Policy
Development Board, as and when approved by the States Assembly. reduce Jersey s Policy recommendations are due to be debated by the States Assembly
reliance before the end of 2020.
on inward The recommendations include:
migration Introducing new Control of Housing and Work Law permissions to businesses and individuals to allow Government to maintain closer
control of the number of workers settling permanently in Jersey
Increasing Government co-ordination at a strategic level to make sure
that all policies take account of their potential impact to increase the population of the Island
Providing accurate and regular performance management
information to Ministers responsible for setting policy guidelines
Ensuring that businesses have an accurate picture of the ongoing
impact of the controls across business sectors and provide reassurance and transparency to the public.
CLS CT8
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
Please see Appendix 3 for more information on these initiatives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in last year s Government Plan.
Funding this priority
We will resource these activities through base departmental budgets and/or existing funds, and additional investment. This additional expenditure will total £40.4 million over the four-year period of the Government Plan, with additional expenditure in 2021 estimated to be £15.7 million. This includes:
Government Covid-19 Response: additional expenditure in 2021 of
£15.5 million for the economic recovery programme
Future economy programme: additional expenditure of £0.15 million for
the newly formed Jersey Competition and Regulatory Authority
For further detail on the above additional expenditure, please see table 46.
We will also invest £15.4 million in initiatives included in last year s Government Plan.
We will be investing in infrastructure associated with this priority, with capital expenditure of £4.1 million in 2021 and totalling £4.5 million over the four-year period (for further detail, please see table 17).
How we measure our sustainable wellbeing impact
We measure our sustainable wellbeing impact and Jersey s overall progress towards sustainable wellbeing by monitoring a wide range of outcomes and metrics in Jersey s Performance Framework. The full set of metrics and data is available on gov.je .
Examples of the Island Outcomes this Priority aims to progress further: Overall economic performance
Islanders enjoy life in a strong, inclusive community
Pupils complete compulsory education successfully.
Examples of the Island Indicators this Priority aims to progress further: Annual economic output divided by total population
Productivity Jersey s economic output divided by the number of
employees (by sector)
% of working age population who are economically active
Number of people registered as actively seeking work
% of permitted migrant staff working in Jersey s private sector who have licensed status
% of young people aged 16-18 who are not in education, employment or training
Jersey s overall wellbeing score using the Better Life Index.
We will reduce income inequality and improve the standard of living
by improving the quality and affordability of housing, improving social inclusion, and by removing barriers to and at work.
Headlines
We will begin to develop detailed plans to implement agreed
recommendations following the publication of the Housing Development Board s review of housing in Jersey
We will continue to improve support and protection for tenants
We will develop proposals to better support disabled adults living at
home, and their informal carers
We will fund the forecast overspend on Income Support in 2021-24 as a
result of Covid-19 in line with the economic forecast
We will fund the Co-Funded Payroll Scheme through to it being phased
out in March 2021
We will implement actions to modernise the Island s personal income
tax system, in particular to modernise the tax treatment of married women and people in same-sex relationships
We will continue to deliver the disability strategy alongside improving
community-based services and supporting diversity
We will develop a new approach to supporting workers with long-term
health conditions to return to or remain in employment
We will review the way in which the minimum wage is agreed
We commit to funding Statistics Jersey to undertake additional surveys
and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey, to ensure that detailed information can be published on current levels of relative low income
( poverty ) in Jersey, using both established measures and also taking account of the work of the Social Metrics Commission; and to develop a Poverty Strategy for inclusion in the 2022 Government Plan[3]
Introduction
We must continue, through the pandemic and beyond, to support Islanders whose employment and income have been impacted to make sure that disparities in income inequality and standards of living are not exacerbated by the Government s response to Covid-19. We will continue our work
to develop modern incapacity benefits that support work and to deliver the disability strategy and community-based services. We will also help unemployed Islanders find work with the support of targeted Back to Work programmes.
However, we must also stay focused on the longer-term challenges that Islanders face. We remain committed to our work on social inclusion and on removing barriers to, and at, work, including a review of the way in which the minimum wage is agreed.
We recognise the critical importance of improving the quality and affordability of housing for Islanders. We will continue our important work which we have already started on tenants rights, including implementing a new Housing Advisory Service and developing rent stabilisation measures. We will also develop new homeless services and improve the funding provided to the Shelter Trust. In addition, we will build on the work of the Housing Policy Development Board, including the strategic alignment of government owned housing delivery bodies.
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
Covid-19 GP21-CSP4-C-02 Covid-19 Income Support Costs respond, We will fund the forecast overspend on Income Support in 2021-24, as a recover and result of Covid-19, in line with the economic forecast.
renew Tsuhffise wreildl ea n r se ud ruec tt hioant Ii snla inncdoemrse w ahr oe hadave eq uloa stet tlyh es iur p epmo prt loe yd m a en nd t t oh ra t we continue to make payments of statutory benefits to eligible Islanders
quickly and accurately. This includes providing additional Back to Work Employment Advisors to support unemployed Islanders find work.
Part 2 - Government Priorities
GP21-CSP4-C-01 Covid-19 Co-Funded Payroll Scheme Phase III
We will fund the Co-Funded Payroll Scheme through to it being phased out by March 2021.
This is to:
Make sure that businesses survive the immediate crisis, so they can
resume trading so supply capacity remains intact
Ensure that employment remains as close to pre-crisis levels as
possible through the period of the pandemic
Make sure that workers continue to benefit from a reasonable level
of income to avoid hardship during the crisis and preserve demand to support an economic recovery once physical distancing and other public health measures are lifted
Support a robust economic recovery.
CLS
Improving GP21-CSP4-AMD11 Beresford Street Kitchen social inclusion We will provide support during 2021 for Beresford Street Kitchen
and request officers to work with the organisation to support the development of a financially sustainable business model for future
years.[3]
CLS
GP21-CSP4-AMD17 Poverty Strategy
We commit to funding Statistics Jersey to undertake additional surveys and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey, to ensure that detailed information can be published on current levels of relative low income
( poverty ) in Jersey, using both established measures and also taking account of the work of the Social Metrics Commission; and to develop a Poverty Strategy for inclusion in the 2022 Government Plan. [4]
71
Please see Appendix 3 for more information on these initiatives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in the last year s Government Plan.
Funding this priority
We will resource these activities through base departmental budgets and/or existing funds, and additional investment. This additional expenditure will total £32.3 million over the four-year period of the Government Plan, with additional expenditure in 2021 estimated to be £18.8 million. This includes:
Government Covid-19 Response: additional expenditure in 2021 of
£18.8 million on the Payroll Co-Funding Scheme and Income Support for Islanders.
For further detail on the above additional expenditure, please see table 17.
We will also invest £5.1 million in initiatives included in last year s Government Plan.
How will we measure our sustainable wellbeing impact
We measure our sustainable wellbeing impact and Jersey s overall progress towards sustainable wellbeing by monitoring a wide range of outcomes and metrics in Jersey s Performance Framework. The full set of metrics and data is available on gov.je .
Examples of the Island Outcomes this Priority aims to progress further:
Households have sufficient income to afford a decent standard of living Islanders enjoy life in a strong, inclusive community
Islanders with long-term health conditions enjoy a good quality of life Jersey is an affordable place to live
Jersey has a sufficient supply of housing
Housing in Jersey is good quality
Housing in Jersey is affordable.
Examples of the Island Indicators this Priority aims to progress further:
Change in value of average earnings allowing for inflation (by sector)
% of households who find it quite or very difficult to cope financially
Change in value of income inequality indicators (90-10 ratio and Gini
coefficient)
% of Islanders living in relative low income households (before and after housing costs)
Number and % of new homes that are affordable
Number of Islanders who are Actively Seeking Work (ASW)
% annual increase in house price index
% annual increase in rental price index
% of low-income households in qualified private rental accommodation in rental stress
% of Islanders who are very satisfied with their housing
% of Islanders who rate their life satisfaction as 7 or more out of 10
% of Islanders with a disability who rate their life satisfaction as 7 or more out of 10.
We will protect and value our environment
by embracing environmental innovation and ambition, by protecting the natural environment through conservation, protection, sustainable resource use and demand management, and by improving the built environment, to retain the sense of place, culture and distinctive local identity.
Headlines
We will continue to utilise the Climate Emergency Fund in order to support a new sustainable transport plan and other key initiatives
We will continue to improve countryside access for Islanders
We will continue to implement schemes that encourage changes in
how we travel, increasing cycling, walking and the use of sustainable transport, that deliver a sustainable reduction in carbon emissions, and that increase the level of protection afforded to our environment
We will seek to change behaviours in respect of pollution and waste
We will protect our habitats and species through better legislation and
enforcement
We will tackle the climate emergency with energy and pace, and move
quickly towards becoming a sustainable, low-carbon jurisdiction
We will increase the subsidy for the bus network to enable a
break-even position whilst capacity on services remains impacted by physical distancing
We will invest in research surrounding inland water quality including
PFAS and pesticide research and essential staffing relating to catchment management
We will provide additional resource to the Marine Resources
Management Team to respond to implications arising from Brexit
Introduction
In February 2020, the States Assembly unanimously agreed the Carbon Neutral Strategy. This outlined the strategic context and principles
and upon which a grass-roots community approach would be used to develop Jersey s detailed road map towards carbon neutrality. Crucial to responding to the climate emergency and biodiversity crisis was a Citizens Assembly, which had been planned for early 2020 but had to be paused due to the public health restrictions on gatherings.
In March 2020, the States Assembly agreed the Sustainable Transport Policy, which comprised two parts. Firstly, a framework for a sustainable transport system that gave a vision supported by four pieces of rapid analysis needed to form a detailed approach to transitioning our transport system into one that promotes the sustainable wellbeing of future generations. Secondly, a Strong Start Delivery Plan for 2020 that offered several immediate projects, pilots and improvements.
Both reports, and their associated work streams, marked the beginning of an intensive phase of development and delivery that will ultimately re-shape the Island s response to the global challenge of climate change and our approach to travel within the Island.
Alongside these, the Island Plan Review programme began the process of reshaping our future spatial planning policy for the next decade, addressing major strategic challenges and tensions like planning for the need for homes, safeguarding the environment, supporting the economy, responding to our ageing population and securing good design and creating better places.
The pandemic response and the subsequent redeployment of staff and resources paused progress on these major strategic initiatives. It has not, however, diminished their importance as we move forward in a rapidly changed world. The Island Plan will be reprogrammed to cover a shorter bridging timeframe. In addition, dealing with the climate emergency remains a priority for the Council of Ministers and the response to the pandemic has shown we can adapt quickly and make significant changes in response to such emergency situations.
A post-virus resumption of unsustainable behaviours and lifestyles would miss the chance to make dramatic changes that this momentous time presents. For example, the experience of the pandemic has provided a glimpse of different ways of working that will impact our need to travel
in old unsustainable ways, therefore influencing our spatial planning, the location of our workplaces, where we build new homes and the transport services we will need in the future.
The economic recovery can offer a new sustainable growth strategy, which is able to deliver on the twin benefits of stimulating economies and creating jobs while accelerating the green transition, reducing emissions and protecting biodiversity.
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
Covid-19 GP21-CSP5-C-01 Covid-19 Bus Contract respond, We will increase the subsidy for the bus network to enable a break-even recover and position whilst passenger capacity on bus services remains impacted by
the need for physical distancing to reduce transmission of the virus.
renew
IHE CT5
Protecting GP21-CSP5-2-04 Natural Environment Water the natural We will invest in research surrounding inland water quality including environment per- and polyfluoroalkyl substances (PFAS) and pesticide research and
essential staffing relating to catchment management.
IHE
GP21-CSP5-2-05 Marine Resources Management
We will provide additional resource to the Marine Resources Management Team to respond to implications arising from Brexit.
IHE CT2
Climate The Climate Emergency Fund will be the source of further additional
expenditure in 2021 and will focus on:
Emergency
Fund GP20-CSP5-1-01 Strengthening Environmental Protection
We will spend £0.3 million on strengthening environmental protection
- this constitutes unspent money for 2020 projects agreed in the
previous Government Plan but deferred due to Covid-19. It includes
the development of an Invasive and Non-Native Species Strategy and resources for on the ground biosecurity measures, particularly around Asian Hornet control, marine species research and work to support tree protection and conservation.
IHE SPPP CT2
GP20-CSP5-1-01 Policy Development on Carbon Neutral and Sustainable Transport Plan
We will spend £0.5 million on Policy Development on the Carbon Neutral and Sustainable Transport Plan - this will be used to ensure continued technical support by external advisors to run an independent citizens assembly as agreed in the Carbon Neutral Strategy (P.127/2019). Due to Covid-19-related delays, the assembly had to be re-scheduled into early 2021 with an increased focus on kick-starting this important workstream and delivering on the response to the climate emergency
in this Government s term. Other expenditure from this area includes technical expert support for policy development, both for carbon neutrality but also the Sustainable Transport Plan, including resources
to help with project development delivery.
IHE SPPP CT2
GP20-CSP5-1-01 Sustainable Transport Initiatives
We will spend £3.2 million on sustainable transport initiatives - the States Assembly agreed the Sustainable Transport Policy P.128/2019. It outlined a strong start programme of several immediately-achievable projects, as well as outlining four rapid assessments which needed to
be undertaken to define a detailed programme of sustainable transport policies and infrastructure initiatives. The 2021 projected expenditure of £3.2 million was estimated expenditure, which would be defined by the 2020 work. Due to Covid-19-related delays, much of the 2020 work will be carried into 2021.
IHE CT2
GP20-CSP5-AMD21 Tree Preservation Initiatives
Further to an amendment to the proposed Government Plan 2021-24, the expenditure from the Climate Emergency Fund shall be increased by £300,000 to fund tree preservation initiatives. We also commit to funding tree preservation initiatives, with an additional expenditure per year of £75,000 in the years 2022, 2023, and 2024.[3]
IHE CT2
GP20-CSP5-1-01 Strengthening Protection of the Natural Environment
We will spend £0.5m strengthening protection of the natural environment - despite the delay of some of the climate emergency work in 2020, there is an opportunity to maintain momentum on important projects related to the climate emergency and biodiversity crisis. These projects have been prioritised by the Natural Environment Directorate and can be supported by the fund. Included is work to evaluate local soil health, biodiversity and habitat management - including projects that, as well as having a strong conservation element, also contributes to the drawdown of carbon by local ecosystems, and resources to make sure levels of biosecurity are maintained and enhanced.
IHE SPPP CT2
Please see Appendix 3 for more information on these initiatives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in last year s Government Plan.
Funding this priority
We will resource these activities through base departmental budgets and/or existing funds, and additional investment. This additional expenditure will total £5.7 million over the four-year period of the Government Plan, with additional expenditure in 2021 estimated to be £2.6 million. This includes:
Government Covid-19 Response: additional expenditure in 2021 of
£2.0 million on supporting bus services
Protecting the natural environment: additional expenditure in 2021
of £0.6 million on Marine Resources management and natural environment.
Commitment to funding tree preservation initatives: additional
expenditure per year of £75,000 in the years 2022, 2023 and 2024.21
For further detail on the above additional expenditure, please see table 46.
We will also invest £3.1 million in initiatives included in last year s Government Plan.
We will be investing in infrastructure associated with this priority, with capital expenditure of £18.2 million in 2021 and totalling £87.2 million over the four-year period (for further detail, please see table 17).
How will we measure our sustainable wellbeing impact
We measure our sustainable wellbeing impact and Jersey s overall progress towards sustainable wellbeing by monitoring a wide range of outcomes and metrics in Jersey s Performance Framework. The full set of metrics and data is available on gov.je .
Examples of the Island Outcomes this Priority aims to progress further: Jersey s natural habitats and species are protected and conserved Jersey benefits from low pollution levels including good air quality
Jersey protects its natural water supply
Jersey manages the amount of waste products
Islanders live in a healthy environment
Housing in Jersey is good quality
Jersey will become a carbon neutral island
Islanders use sustainable modes of transport
St Helier is an attractive town in which to live, work and visit.
Examples of the Island Indicators this Priority aims to progress further:
% of Jersey s surface area (excluding inland water and inter-tidal areas) that is classed as natural environment and land under cultivation
% of farmland achieving LEAF accreditation
Abundance of key indicator species (birds and butterflies)
The number of times average monthly nitrogen dioxide concentrates
exceed European Directive limits
% of pesticide detections in natural water resources above the limit (0.1 ug/l) and average nitrate levels (mg/l) in surface streams
Jersey s emission level of greenhouse gases
% of non-inert waste that is recycled
% of journeys to work made by walking, cycling or public transport
Morning peak traffic on nine main routes towards St Helier
% of Islanders who are very satisfied with their neighbourhood as a place to live
% of Islanders who are very satisfied with their housing.
Part three Modernising Government
We will improve the way in which Government and the public service function, so they deliver modern, efficient, effective and value-for-money services and infrastructure, sound long-term strategic and financial planning, and encourage closer working and engagement among politicians and Islanders.
A States Assembly and Council of Ministers that work together for the common good
A new, long term strategic framework that extends beyond the term of a Council of Ministers
A modern, innovative public sector that meets the needs of Islanders effectively and efficiently
ongoing
initiatives A sustainable long-term fiscal framework and
public finances that make better use of our public assets
An electoral system which encourages voter turnout and meets international best practice
Headlines
We will invest in the modernisation of the public sector through the use
of digital technologies
We will continue to transform the way in which we manage public
finances, including greater long-term financial insight
We will deliver cumulative sustainable efficiencies from 2020 to 2023
through a detailed and rigorous Efficiencies Programme
We will provide funding for the implementation of new Target Operating
Models within the Government to enable collaborative delivery and increased value for money from government spending
We will continue to pay for the rent of 28-30 The Parade to provide
flexibility as part of a longer-term estate strategy
We will provide funding to cover the increase in insurance premiums
Introduction
The pandemic response has demonstrated the importance of working together as One Government and using new technology to respond flexibly and at speed. Without the flexibility created by the introduction of the One Government organisational changes, we would not have been able to have responded as effectively as we did to Covid-19.
In 2021, we will continue to deliver and support further organisation-wide change to enable the continued transformation of our Government into a modern and innovative public sector which meets the needs of Islanders, invests in our employees to reform our workforce and modernises how we work. This will enable us to deliver better outcomes and more efficient services for Islanders.
We will also continue to invest in the modernisation of the Government through the use of digital technologies, addressing the legacy of historic under-investment and protecting our technical infrastructure and data, and enabling us to be more efficient and agile in meeting Islanders needs.
In last year s Government Plan we outlined our proposals to bring forward a new office for States and Government employees in order to improve the modernisation of the public services workforce. Building on our experiences of home working during the pandemic response and enabled by our continued investment in technology, we will introduce flexible working practices that enable people to work where and when is appropriate for them and the outcomes that they need to achieve. This will not only help create an agile and modern workforce but will also be a key enabler of the Office Modernisation Programme.
In 2021 we will finalise the contractual arrangements for the development of the new office arrangements, the final detail of which is due to be completed by November 2020. We have highlighted in this plan our intention to finance the development in a flexible way to take account of our current fiscal circumstances. The Council of Ministers is recommending that we initially lease the proposed new facility from 2023 with the option to purchase the building by 2026, when further information is available about Jersey s economic landscape, the fiscal position facing the island
and the government s long-term borrowing commitments. This flexibility enables this important development to continue and in 2021 we include in the capital programme, funds to support the teams costs for progressing the project to completion in 2023 and separately, the associated revenue expenditure.
At the same time, we will also continue to rebalance Government finances and deliver cumulative and sustainable efficiencies, and other rebalancing measures, from 2021 to 2024 to decrease the cost of services to Islanders, avoid wasting money, encourage innovation and promote improved cost effective services that will lead to a better improved provision for Islanders.
Our investment in 2021
In addition to the investment that will continue from 2020, we will also invest for the first time in 2021 in the following initiatives:
A modern, GP21-OI3-15 Commercial Services Restructure innovative We will provide funding for the implementation of the Commercial public sector Services Target Operating Model. Covid-19 has emphasised the
importance of supporting the whole of Government to deliver good
that meets value in our contractual relationships. By 2024, we will have in place a
the needs hpirgohtelyc tciaopna obfleinncoomvamtiveercaianldfu snucsttiaoinn,a ebnlea boluintcgo cmoellas b foorr athtieve I sdlaenlidve wryh i alsnt d
of Islanders also delivering increased value for money from government spending. effectively and
efficiently COO
GP21-OI3-16 Re-organisation Justice and Home Affairs
We will put in place sustainable funding for the Justice and Home Affairs Target Operating Model. Appropriately resourcing the Justice and Home Affairs department ensures that it has the means to continue to positively deliver its function and fully contribute to OneGov and
the wellbeing of the Island. The services provided by the Justice and Home Affairs department are critical to the delivery of public protection, law enforcement, emergency services and emergency planning.
The effectiveness of the delivery of these services clearly impacts
all Islanders community wellbeing as well as directly and indirectly ensuring Islanders environmental and economic wellbeing.
JHA CT8
GP21-OI3-17 Re-organisation Ministerial Support Unit
In the Government Plan 2020-2023, we secured improved resources for non-executive States Members, including dedicated research and casework staff.
In this Government Plan, we will consolidate funding for the Ministerial Support Unit to make sure we are providing sustainable support for Ministers with the resources they need to represent Islanders.
OCE
GP21-OI3-18 Re-organisation - Communications
We will consolidate funding for the Communications Directorate to provide sustainable resources to the organisation that will allow for enhanced internal communications and design work.
Due to Covid-19, there is an increased demand for internal and change communications to support the organisation with timely advice on public health measures, workplace restrictions, and all-Island messages.
Providing sustainable funding for a design team creates significant savings for the Government, with work done in-house being produced quicker and cheaper than procuring external agencies.
OCE
GP21-OI3-20 28-30 The Parade
We will continue to pay for the rent of 28-30 The Parade to provide flexibility as part of a longer-term estate strategy.
IHE CT8
GP21-OI4-2 Insurance Premiums
We will provide funding to cover an increase in insurance premiums. This will be used to ensure we have sufficient cover for a range of additional general and specific risks identified as part of the insurance re-tender process undertaken during 2019. In addition to the general premium increases due to the hardening of global insurance markets we have also procured a number of specialist insurances to mitigate specific threats in areas such as Cyber security.
T&E
GP21-OI3-CAPITAL Jersey Care Model Digital Systems
We will provide funding for new digital tools to use across the health and care system. These include investment for integrated care records, core record systems, hub and micro services, and analytics.
This will contribute to the delivery of the Jersey Care Model, which aims to:
Ensure care is person-centred with a focus on prevention and
self-care
Reduce dependency on secondary care services by expanding
Primary and Community services in order to deliver more care in the community and at home
Redesign of Health and Community services so that they are structured to meet the current and future needs of Islanders.
HCS
GP21-OI3-CAPITAL Fort Regent (Early Phase)
We will provide funding for pre-feasibility work and early phase work at Fort Regent ahead of the main project.
This will allow for the evaluation of options and some quick win projects
IHE
GP21-OI3-CAPITAL Office Modernisation
We will provide funding to continue to progress the Office Modernisation project as outlined in the Strategic Outline Case approved by COM in September 2019.
This will enable the Government of Jersey to more effectively discharge its duties to support Ministers, the States Assembly and the public
it serves. It will also improve the efficiency and effectiveness of operational costs that support the public estate as well as productivity savings (both of which will be fully qualified in the Final Business Case); whilst at the same time consolidating our overall office estate. This
will also allow for more cost-effective use of our accommodation and the release of sites for redevelopment for alternative uses, including housing.
OCE
GP21-OI3-CAPITAL Benefits and Payments System - NESSIE
Changes to the Benefits and Payments System will be funded from the Social Security Fund.
This will enable the Customer and Local Services department to: Deliver customer-centric and organisational change
Take advantage of significantly faster software enhancement
development cycle times;
Mitigate issues associated with the current system programming
languages
Act before the above become significant business risks.
CLS
GP21-OI3-CAPITAL Firearms Range
A new Firearms Range for the States of Jersey Police will be provided via funding from the Criminal Offences Confiscation Fund.
This will allow the Government of Jersey and States of Jersey Police to meet the required level of Health and Safety and College of Policing Licensing requirements. This will keep the Island safe and secure.
JHA
GP21-OI3-AMD10 Review of the funding of Public Services
by the Parishes
The Minister for Treasury and Resources will work with the Minister for Infrastructure and theComitØ des ConnØtables to agree the Terms of Reference for a review into the funding of public services by the Parishes, as agreed in the Common Strategic Policy, to carry out that work and then to bring forward any recommendations.[3]
T&E
Please see Appendix 3 for more information on these initiatives.
Please see Appendix 4 for information on investment that will continue from 2020 that was approved in last year s Government Plan.
Non-Ministerial Department Investment in 2021
Introduction
The Non-Ministerial Departments (see Appendix 1 for full list) are constitutionally separate from the Government of Jersey.
Article 10 of the Public Finances (Jersey) Law 2019 requires the Government Plan, lodged by the Council of Ministers, to set out the proposed amount to be appropriated from the Consolidated Fund for the next financial year, in relation to the operations of a Non-Ministerial States body for 2021.
The head of expenditure for the Non-Ministerial Departments can be found at Appendix 2.
Our investment in 2021
Included in the head of expenditure are the following new investments for 2021 proposed by the Non-Ministerial Departments:
GP21-OI-NON-07 BASS Funding- Funding of x3 FTE / Regrading of Staff, New Trainee Probation Officer, Various
The Jersey Probation and After-care Service requests funding for:
Replacement funding to cover the structural loss of income used
to pay for existing staff posts fulfilling the Building a Safer Society ( BASS ) strategy
To enable full funding of a Trainee Probation post
To cover additional costs as a result of States Employment Board
decision to regrade three posts, effective January 2020, and another two posts during 2020.
NM PROBATION
GP21-OI-NON-08 CAG Inflation Funding
The Comptroller and Auditor General requests inflation funding to ensure that their budget is increased in line with commitments under index-linked contracts over the term of the Government Plan.
GP21-OI-NON-10 Crown Appointment Pension Increase
Bailiff s Chambers requests funding in order to align the Crown Officers salaries and benefits with UK standards, the States Employment Board (SEB) approved the increase to pension payments in 2019.
NM BAILIFF S CHAMBERS
And in 2022:
GP21-OI-NON-09 Election 2022
The Judicial Greffe requests funding in order to cover the cost of the 2022 Elections.
NM JUDICIAL GREFFE
Rebalancing Government Finances 2021
Introduction
In 2019 the States Assembly agreed that the Council of Ministers bring forward detailed proposals each year, to be included as a separate paragraph within the Government Plan proposition, seeking the Assembly s specific endorsement of each of the efficiencies contained in the Government Plan .
The Government Plan 2020-2023 set out the ambition to achieve £100 million of efficiencies, with the first £40 million to be achieved in 2020. The plan for £40 million in 2020 was published in October 2019 and
a performance update was published as part of the Government Plan
Six Monthly Report in August 2020. This plan continues that ambition, setting out the detail of the 2021 plan to deliver £20 million of efficiencies and other rebalancing measures, and trails some of the activities and programmes of work that will support the rebalancing of finances over the remainder of the Government Plan 2021-2024.
While the Efficiencies Plan 2020 was published as a standalone report, the approval of Proposition 88/2019 requires the presentation of the plan within this and future Government Plans.
At the time of writing, the impacts of Covid-19 are still readily apparent and the effect on Government finances is considerably greater than the impact of efficiencies. As described in the 2020 Government Plan Six Monthly Report multiple approaches will be required to balance Government finances, including a wide range of fiscal measures, borrowing strategies, economic stimulus, treatment of funds and the delivery of savings and efficiencies. This represents a shift to a broader set of financial
rebalancing measures into which the efficiencies have been subsumed.
The financial impact of these multiple approaches focuses on areas such as:
A reduction in revenue spend, delivering better quality services for less
More efficient collection of existing income and better debt
management
Increasing the Government s revenue through further recovery of
existing costs, moving towards full cost recovery of services where appropriate
The extension and increase of existing charges or the introduction of
new charges as revenue-raising measures.
All of the work continues to progress the application of the One Government principles to the organisation.
Governance
As in 2020, the plan for 2021 was developed by Directors General and reviewed by relevant Ministers before formal approval by the Council of Ministers.
In order to drive through the rebalancing of the Government s finances the Government established a small project team that worked through the Operating Committee and reported into the Executive Leadership Team and relevant Ministers in generating ideas and proposals for consideration.
These were presented line by line to the Council of Ministers for consideration and challenge before being proposed as part of the Government Plan.
Efficiencies and other rebalancing measures approved through the Government Plan debate will result in cash limit reductions and/or income forecast increases at departmental budget level. The performance of
each proposal will then be tracked monthly through the finance budget monitoring process and, where appropriate, with additional qualitative information provided through a project management system.
It is anticipated that performance updates on the 2021 plan will be provided in August 2021 and February 2022.
Officers and Ministers will continue to engage with the Efficiencies Review Panel to provide updates on the delivery and impact of the plan.
Sustainable wellbeing impact assessment
A critical aspect of assessing each proposal is understanding the potential impact of its delivery on sustainable wellbeing. We have introduced a simple sustainable wellbeing impact assessment which we will review and refine in 2021 (see Part One Sustainable Wellbeing). Detailed descriptions of proposals will be published alongside the Government Plan for information and which include an initial assessment of impact on Islanders and staff and considers sustainable wellbeing.
w
Part 3 - Modernising Government
Summary Plan for 2021 by Minister
The budget impact of the plan to deliver £20 million of efficiencies and rebalancing measures in 2021 is set out below and sub-totalled against each Minister or the Council of Ministers. Summary descriptions of proposals are then set out in the next table and more detailed descriptions of proposals will be published alongside the Government Plan for information.
Allocation by Minister |
| 2021 (£) |
Chief Minister |
| 1,303,000 |
Council of Ministers |
| 5,418,000 |
Minister for Children and Housing |
| 555,000 |
Minister for Health and Social Services |
| 5,000,000 |
Minister for Home Affairs |
| 765,000 |
Minister for Infrastructure |
| 4,500,000 |
Minister for Social Security |
| 442,000 |
Minister for Treasury and Resources |
| 1,280,000 |
Ministers for Infrastructure , Environment, EDTSC |
| 750,000 |
Grand Total 20,013,000 Table 1 Efficiencies and rebalancing measures 2021 - allocation by Minister
Income Spend reduction
£2.2m Recurring |
£450k One off |
Figure 3 - Efficiencies and other rebalancing measures
Infographic presents income and spend reduction only and has been rounded
Summary Plan for 2021 by proposal
Efficiencies and other rebalancing proposals will result, in the majority of cases, in either a reduction in cash limit and/or an increase in income forecast. In a small number of cases there is an increase in cash limit (values shown in brackets).
This more detailed allocation sets out summary descriptions of each proposal, classification as either a recurring or one-off measure, budget impact and departmental allocations.
Depart- Recurring or Budget
Minister Summary description 2021 value (£)
ment one-off impact
Transfer technology functions from CYPES and HCS into Modernisation and Spend
Chief Minister COO Recurring 900,000
Digital continuing the application of OneGov principles reduction
Spend
Chief Minister SPPP Defer the implementation of the Public Services Ombudsman for one year. One off 378,000
reduction
Merge the support and re-plan commissioned research projects for the States Spend
Chief Minister COO Recurring 200,000
Employment Board and Jersey Appointments Commission reduction
Review and renegotiate the GoJ print contract securing some of the
Spend
Chief Minister COO reductions in print volumes derived from an increase in home working and Recurring 100,000
reduction
continued investment in technology
Defer the development of policy for Financial independence in old age by Spend
Chief Minister SPPP One off 50,000
one year reduction
Minister for Children Spend
SPPP Defer the development of policy for Long term housing by one year One off 25,000 and Housing reduction
Minister for Children Redesign the therapeutic support model for children with complex needs Spend
CYPES Recurring 200,000 and Housing (including neuro assessment) reduction
Minister for Children Review and realign the commissioned budget available for antenatal services Spend
CYPES Recurring 180,000 and Housing with demand. Note there will be no reduction to the service reduction
Minister for Children Review and realign the budget for care leavers with demand. Note there will Spend
CYPES Recurring 100,000 and Housing be no reduction to the service reduction
Minister for Children Review and realign the budget for intensive fostering with demand. Note Spend
CYPES Recurring 50,000 and Housing there will be no reduction in the service reduction
Minister for Health Implement proposals from the HCS Zero Based Budget exercise once Spend
HCS Recurring 5,000,000 and Social Services approved by the Minister reduction
Sell a domestic dwelling no longer required by the Fire and Rescue Service
Minister for Home
JHA whilst compensating for the reduction in rental income (prudent estimate One off Income 450,000 Affairs
pending valuation)
Minister for Home Through the application of enhanced workforce planning implement a Spend
JHA: SoJP Recurring 215,000 Affairs vacancy factor equivalent to approximately 1% of staff costs reduction
Minister for Home Spend
JHA Continue the digital transformation of GST and Customs services Recurring 50,000 Affairs reduction
Minister for Home Continue the organisational implementation of electronic rostering to replace Spend
JHA Recurring 50,000 Affairs paper based rostering processes reduction
Minister for Home Restructure the Intelligence Administration function to reflect known leavers Spend
JHA: SoJP Recurring 20,000 Affairs and vacancies reduction
Revise and release a portion of the budget for the Health Estate in light of
Minister for Spend
IHE progress made with backlog maintenance and to reflect capital allocations Recurring 4,000,000 Infrastructure reduction
within the HCS budget
Reduce a portion of the property maintenance budget to reflect a
Minister for Spend
IHE reprioritisation of assets requiring maintenance; informed by the Office Recurring 300,000 Infrastructure reduction
Accommodation Project
Re-structure Facilities Management across Government to create one
Minister for Spend
IHE centralised function with hub and spoke delivery aligned with the OneGov Recurring 200,000 Infrastructure reduction
principles
Ministers for Development of an IHE TOM to include reviews of the overall structure, sports
Spend
Infrastructure , IHE division, business administration and the transfer of customer facing services Recurring 750,000
reduction
Environment, EDTSC to CLS
Minister for Social Spend
CLS Defer the implementation of the Care needs at home project by one year One off 400,000 Security reduction
Minister for Social Spend
CLS Continued review of, and improvement, to customer services Recurring 61,000 Security reduction
Minister for Treasury Spend
T&E Reduce cash handling fees by increasing non-cash payment options Recurring 30,000 and Resources reduction
Increase income from new charges, and increased cost recovery of existing
Council of MinistersCentral charged services, based on the initial implementation of a fees and charges Recurring Income 950,000
framework
Continue to manage inflationary pressures across government by retaining
Spend
Council of MinistersCentral the budget for non-pay inflation and seeking best commercial outcomes to Recurring 3,718,000
reduction
contract management
Allocated Continue the best practice of reviewing and securing recurring reductions in
Spend
Council of Ministersby depart- non-staff budget including locking in some of the spend reductions evidenced Recurring 750,000
reduction
ment during COVID-19
Spend
Chief Minister SPPP Deferred Island Plan Review activity from 2020 One off (325,000)
increase
Minister for Social Spend
JHA Restructuring advisor posts One off (19,000) Security increase
Minister for Home Spend
JHA Restructure of frontline posts to resource JCIS/SOJPS dog handler One off (20,000) Affairs increase
Subtotal excluding incremental tax revenue 18,763,000 Minister for Treasury Increase tax revenues through the continued enhancement of domestic tax
T&E Recurring Income 1,250,000 and Resources compliance
Total 20,013,000 Table 2 Efficiencies and rebalancing measures 2021 - summary proposals
Recurring versus one-off efficiencies
Next year the vast majority of efficiencies (£19.1 million, 96%) and other rebalancing measures are recurring. The small remaining value are one-off measures impacting on the 2021 budget only (£0.9 million, 4%). Over the course of the year, recurring proposals to this value will be developed through the monthly budget monitor process.
Efficiencies and other rebalancing measures in 2022-24
The Government Plan 2020-23 sets out the commitment to deliver recurring efficiencies of £20 million in both 2022 and 2023 and the Council of Ministers has added a further £20 million objective in 2024, by which point £120 million of efficiencies and other rebalancing measures will have been delivered.
As in 2021, detailed plans will be brought forward within each Government Plan for the following year and there remains an intention to continue the focus on the themes introduced in 2020:
Our workforce
Processes and systems
Commerciality
Organisational structures
Shaping demand for services (previously prevention and care).
In addition, there are several significant programmes of work which are anticipated to deliver value over the life, albeit it towards the end, of this Government Plan period.
Office Modernisation
The Office Modernisation programme is in pre-feasibility phase. This activity involves the procurement of a development partner to work with the public service to deliver a new office to bring together colleagues across the public service and provide an outstanding customer hub for Islanders. This will enable the Government of Jersey to more effectively discharge its duties to support Ministers, the States Assembly and the public it serves. The project team is in commercial dialogue with potential parties to identify a site and scheme with a view to having a new building operational by early 2024. The project is anticipated to realise several benefits, including reducing overall office running costs and realising capital receipts through the disposal of vacated buildings.
The Government has reviewed the principles of the Strategic Outline Case, which was approved in September 2019, to assess the implications of the pandemic on the project. Building on our experience of home working, we will introduce flexible working practices as a key enabler of the Office Modernisation programme. The Government will review plans for exiting leases, and timings for the potential sale of properties, to reduce
the impact of an economic downturn on capital receipts and anticipated revenue savings. On balance, the Government continues to consider the case to build a new office valid as it will deliver a noteworthy economic stimulus and a range of benefits for the organisation.
Technology Transformation Programme (TTP)
Major technology programmes initiated in 2020 will continue over this period, thereby providing a solid foundation for future initiatives.
Other programmes from the wider Technology Transformation Programme will be initiated over this period as plans are updated and this programme continues to present opportunities for efficiencies in several areas including:
Quality of data and information compilation and provision Increased staff productivity
Increased automation
Reductions in support and licencing costs
Reductions in costs of managing technology estate and requirements
for storage.
Technical services
We will undertake a comprehensive review of the technical services provided by Infrastructure, Housing and the Environment.
Working in partnership with public utility providers, the review will include the identification and assessment of options for potential funding sources and new or revised service delivery mechanisms. The outcome will be
the development of a business case for the future delivery of technical services, with a view to maintaining or improving the levels of service and environmental outcomes in the future.
We will appoint a working group of stakeholders, led by a specialist advisor, to support it through the review process, ensuring best practice is followed and that knowledge, experience and lessons learned from around the world can be brought to Jersey.
Sports facilities and services
The Government, in partnership with Jersey Sport, will undertake a comprehensive review of the sport services it provides. This will progress the work already undertaken to deliver improvements to our sports facilities and will also consider how sport services are funded and delivered into the future.
One government property estate and strategic property functions
We will create a single government property estate, whereby ownership, estate management and maintenance are consolidated from across Government into a new property structure within Infrastructure, Housing and the Environment.
Working in partnership with the States of Jersey Development Company, we will undertake a review of property development, disposal and acquisition functions to identify a new model of service delivery.
Shaping demand
Previously described as Prevention and Care, this Government-wide programme has progressed since the last Government Plan to identify several more specific opportunities where activity, in the remainder of 2020 and in 2021 should start delivering efficiencies in 2022 and beyond. These cross-cutting opportunities are in areas including criminal justice, school inclusion and in reconfiguring customer journeys to reduce high cost provision across a number of departments, notably Children, Young People, Education and Skills (CYPES), Health and Community Services (HCS), Customer and Local Services (CLS) and Justice and Home Affairs (JHA).
Commercial services
The establishment of a new commercial function is a key priority for the Government, providing capability and capacity to deliver improved commercial and procurement outcomes, enhanced governance, robust supplier and contract management and drive better value for money.
Fees and charges framework
Fees and charges are not only an important source of income providing vital funds to deliver essential public services and assist in achieving our objectives for better outcomes for Islanders but are also an important driver of efficiency. An appropriate and strategic approach to fees and charges requires us to have a robust understanding of the costs of the services we provide, as well as local economic and market factors, and to keep our schedule of fees and charges under regular review to ensure the most appropriate are applied.
Consequently, the Minister for Treasury and Resources intends to implement a framework within which a fair, economically sound and strategic approach to fees and charges levied is agreed, and regularly reviewed.
To ensure the best possible value for money, and establish the fairest possible approach to charging and cost recovery, the framework will set out that charges for discretionary services will be set to fully recover their costs unless there is a specific decision or well-established reason to subsidise the service provision.
The decision on whether to make a charge, and the amount of the charge, is not always in the Government s control, but where it is, it is important that the implications of the charging decisions being taken are fully understood.
This framework will provide guidance on:
The setting of new charges and the context within which existing
charges should be reviewed, including consultation and equality impact assessments, as required
The Government s approach to cost recovery and the generation of
income from charging for services
The governance processes which must be followed to gain approval
for services to be provided at subsidy whether this be a subsidy to all users or in the form of concessions for users meeting a clearly defined qualifying criteria.
The framework should allow us to have a properly considered, consistent and informed approach to all charges we make for our discretionary services in support of the delivery of our strategic objectives and the protection of statutory services.
Part four Government Finances
Protecting our island's future by: |
Responding Investing in our to Covid-19 economic recovery |
Rebalancing Investing in public finances health and education |
£395m Covid-19 reduced income £400m (2020-23) +£40m £385m reserve (2020-21) (2020-21) Covid-19 extra spending Borrowing to fund the cost of Covid-19 |
Spending exceeds income in 2020 and 2021 to respond to Covid-19. Returning to balanced budgets by 2023 and 2024 £827m £1bn £985m £914m £902m £952m 2019 2020 2021 2022 2023 2024 | Delivering efficiencies by rebalancing our expenditure £20m £20m £20m £20m £20m £20m £20m £20m £20m £20m £40m £40m £40m £40m £40m 2020 2021 2022 2023 2024 |
Investing in our priorities £41m £64m £64m £62m 2021 2022 2023 2024 | Investing in our infrastructure £117m £98m £82m £74m 2021 2022 2023 2024 |
Growing the Strategic Reserve to protect against future uncertainty £890m £905m £953m 2021 2022 2023 2024 £1bn | Maintaining the Social Security Reserve £1.67bn £1.61bn £1.63bn £1.75bn 2021 2022 2023 2024 |
Budget measures for 2021
All alcohol
0%
Increase Duty frozen
Tobacco
20 king size cigarettes 50g tobacco pouch
+41p +£2.05
RPI + 5% increase in RPI + 8% increase in standard tobacco duty hand-rolling tobacco duty
Fuel
Per litre
+2.3p
RPI +2p per litre increase in road fuel duty (2p goes into Climate Emergency Fund)
GST/ISE £3.5m
International Services Entity fees paid, as
an alternative to registering for GST, by
businesses (principally in the finance
sector) that mainly serve non-residents. Total additional fees from ISEs
Income £100 £150 £50 Tax
allowances
increase in increase in increase in single person's married couple's second earner's standard income standard income allowance
tax exemption tax exemption
threshold threshold
Stamp duty
First time buyers purchasing Stamp Stamp duty no through an assisted ownership duty payable longer payable scheme will only pay stamp
duty on the affordable price
element
4 ETehnxiasbe sleec cgutrioetnai t voe fer tt hr aeSn Gs upomavr ee rmnncmy ae onrf t y t Ph le a nw ph ro elese onf t Gs othvee rfinnmanecnet ss ofifn tahnec ewsid. Tehr is Government, moving towards consistency with the States Accounts, to
includes consideration of the plan for the Government Balance Sheet, including the finances of Government funds, our reserves, alongside the elements that are subject to States Assembly approval.
Government Plan 2020-23
The first Government Plan, agreed in December last year, laid out a strategy of investment in our strategic priorities funded largely by a programme of efficiencies and rebalancing up to £100 million per annum by 2023. The plan delivered broadly balanced budgets over the period and included transfers to the Stabilisation Fund, the first line of protection against an economic downturn. Rebalancing expenditure to enable investment in strategic priorities remains a foundation of this Government Plan, and together with the resilience and strength of the Island s reserves, places Jersey in the best place possible to respond to Covid-19.
We now propose building on our existing strategy to fund the impacts of the pandemic with responsible plans to finance those costs, adjust to the impact on our income, and return to balanced budgets in the medium- term, in accordance with independent advice from the Fiscal Policy Panel.
Covid-19 response and impacts
The pandemic has, and will, continue to have two significant impacts on the finances of the Government and States of Jersey:
Unprecedented levels of immediate and time-limited additional
expenditure required to save Islanders lives and livelihood s during the pandemic
Massive impacts upon our economy in the short-term, followed by a
prolonged recovery period, which may ultimately leave the economy smaller than previously forecast, particularly if we do nothing. This has, and will have, an associated impact upon our income from taxation and Social Security contributions.
The expenditure impact of the pandemic over the period 2020-2024, including economic recovery and fiscal stimulus, is estimated at more than £400 million, with a further reserve of £40 million to cover the costs associated with dealing with potential future cases in the Island.
After modest revenue measures proposed in this plan, the income impact of the pandemic has seen the forecast for general revenues for 2020-2023 fall by £395 million since the Government Plan 2020-23 was approved.
The first of these impacts requires an exceptional funding solution, largely through borrowing for these time-limited costs, retaining the flexibility and resilience to be able to respond to an uncertain future. In addition, Ministers are also proposing to utilise the strength of the significant assets
held in the Social Security Reserve Fund to meet its requirements, rather than making a taxpayer contribution, in each of the years 2020-23.
The second impact requires a plan to readjust the balance between expenditure and income to balance the books by 2024, in line with the advice of the Fiscal Policy Panel, whilst we run deficits to pay for vital services and investments in our strategic priorities. The outline of the action required is included in this Plan.
Investment in public services
Other than investment in our pandemic response, we propose further investment of £62 million per year by 2024 in the strategic priorities. This includes additional amounts to provide significant investment in our education system and our model of health-care in the Island, rebalanced, in part, by reprioritising and rephasing planned investment in the Government Plan 2020-23.
We intend to build on last year s Government Plan by delivering further investment in our priorities. We also recognise the need to provide more effective and efficient services (see Part Three Rebalancing Government Finances). This is a key part of balancing the plan, making the investment in priorities possible and making sure that we can deliver more, in the context of limited resources.
We will also continue to make much-needed investment in infrastructure and technology to drive a more effective organisation, with £371 million of planned capital projects.
Revenue measures
We have noted the advice of the Fiscal Policy Panel that significant additional revenue measures that impact the economy should not generally be introduced immediately as a response to the fiscal challenges of the pandemic.
Accordingly, other than for International Service Entity fees the budget measures are broadly cost neutral.
Our immediate revenue-related proposals in this plan are therefore limited to:
Across-the-board increases to International Service Entities fees,
paid instead of levying GST, which will generate new revenue of an estimated £3.5 million per annum
Inflation-linked increases to the income tax exemption thresholds
benefiting 90% of taxpayers, apart from those on the highest incomes.
Above-inflation increases in road-fuel duty to enable an additional
contribution of 2 pence per litre of petrol and diesel sold to be allocated to the Climate Emergency Fund, on top of the 4 pence per litre in last year s Government Plan
Above-inflation increases in tobacco duties maintaining existing policy
to support health objectives
Freezing duty on alcohol to support the recovery of our hospitality
sector
Reduced Stamp Duty/Land Transaction Tax to benefit first-time buyers
purchasing through an assisted ownership scheme.
Alongside the Government Plan, the Council of Ministers is bringing forward proposals to bring all taxpayers on to a Current Year Basis. This will provide a short-term cash boost to those most financially affected by the Government s lockdown measures and, if approved, future payments of the 2019 Prior Year Basis tax will be ring-fenced to repay debt arising directly from the pandemic.
We also set out a programme of work for the year ahead including the move to Independent Taxation and development of measures to contribute to closing the gap in funding by 2024.
Ensuring long-term sustainability
We have a legal requirement, as set out in the Public Finances Law, to have regard to the long-term sustainability of our Island, which will help ensure that Jersey remains a vibrant, prosperous and safe place.
To this end, Ministers have articulated a plan to return to balanced budgets by 2024, whilst maintaining investment and spend, thereby assisting the economy. This plan also preserves the Strategic Reserve to maintain resilience against potential future shocks to the economy and instead proposes borrowing to meet the impacts of Covid-19 on our finances and laying out a plan for the repayment of that debt.
Table 3 below highlights the deficits in 2021 and 2022 as we return to balanced budgets in 2023 and 2024.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
General Revenue Income 806,350 863,153 915,559 965,916 Net departmental expenditure (931,476) (857,555) (843,411) (893,368) Depreciation (54,646) (56,699) (58,838) (59,275)
Forecast operating surplus/(deficit) (179,772) (51,101) 13,310 13,274 Table 3 Overall Position (Financial Forecast)
After taking into account forecast deficits in 2021, the costs of the capital programme and other transfers between funds, the total forecast borrowing requirement in 2021 is £336 million, in addition to the £50 million borrowing proposed for the Fiscal Stimulus Fund in 2020. This excludes the £250 million borrowing in respect of social housing, largely lent to Andium Homes Limited.
Financial and economic context
In preparing the Government Plan, the Council of Ministers has considered the medium-term and long-term sustainability of public finances and the outlook for the economy in Jersey. The plan has set out how the proposals take those matters into account.
The Fiscal Policy Panel provides the Minister for Treasury and Resources and States Members with independent economic advice, on a statutory basis, on matters relating to tax and spending policy, including the use of the Stabilisation Fund and the Strategic Reserve.
The Panel provides independent and objective recommendations including advice on borrowing to help ensure sustainable public finances. The Fiscal Policy Panel acknowledged, in their August 2020 economic assumptions letter, that there remains a high level of uncertainty around the impact of the pandemic on both the global and local economy.
The Panel s August letter also gave some advice on the appropriate budgetary balance (i.e. surpluses or deficits) over the four-year period of this plan and advice on our fiscal guidelines around borrowing. This advice has been considered by the Council of Ministers and is reflected in this Plan.
The international economic outlook
In its September 2020 Interim Economic Outlook, the Organisation for Economic Co-operation and Development (OECD), stated The economic outlook remains exceptionally uncertain, with the Covid-19 pandemic continuing to exert a substantial toll on economies and societies. Global output in the second quarter of 2020 was over 10% lower than at the end of 2019, an unprecedented sudden shock in modern times. The extent and timing of the pandemic shock differed across the major economies, but
all experienced a sharp contraction in activity as necessary containment measures were implemented .
The OECD forecasts the global economy to decline by 4.5% this year, before picking up to 5% growth next year. However, this is subject to considerable uncertainty regarding the evolution of the global pandemic, the actions required to contain the virus and the impact on consumer and business confidence.
The OECD has therefore produced forecasts for both a downside
scenario and an upside scenario , with the balance of risks being to the downside. In the upside scenario, faster progress is made in preventing the spread of the virus, boosting confidence and driving both spending and investment. Global growth still falls this year in the upside scenario, but the recovery in 2021 is considerably stronger at around 7%. In the downside scenario, stronger and more persistent effects from the pandemic result
in heightened uncertainty and tighter global financial conditions. The downside scenario involves a deeper decline in 2020, but also a much slower recovery next year, with only 2% growth.
An even greater decline in the global economy was avoided through prompt and effective monetary and fiscal policy action. Monetary policy was eased through lower interest rates and purchases of financial
assets by central banks. In fiscal policy, most countries have put in
place significant payments to support both households and businesses throughout the collapse in economic activity.
A wide-ranging set of global responses include deferral of liabilities to government (e.g. tax), subsidies to employers to support employment, enhanced social security provision and direct payments to households. Many countries, including France and Germany, have put in place additional fiscal stimulus measures that include temporary tax cuts and large increases in public spending to support policy priorities in the recovery.
110
Current projection
November 2019 projection
100
Upside scenario Downside scenario
90
19Q4 20Q1 20Q2 20Q3 20Q4 21Q1 21Q2 21Q3 21Q4
Figure 4 - world GDP Q4 2019 = 100
Source: OECD interim Economic Outlook September 2020
The UK s exit from the European Union is unlikely to significantly affect the global economy, but the terms of any deal could significantly affect the economic outcome for the UK and Jersey along with the EU. On balance, the UK s exit from the EU will weaken growth in the UK and in Jersey, and promote higher inflation. In the event of a disorderly exit, with severe disruption to trade flows and perhaps a significant depreciation
of the exchange rate, the impact could be much more severe. It remains a significant downside risk, alongside that of dealing with the global pandemic.
The economic outlook for Jersey
While 2019 data for Gross Value Added, which measures economic output, as of September 2020 had not yet been published, the indicators available in September suggest a year of steady growth. Employment increased by more than 1% and average earnings grew by 2.6%, although high inflation of 2.8% meant that real wages fell. The Fiscal Policy Panel has estimated GVA growth of 0.6% in 2019, which would be the slowest rate of growth since 2013.
However, economic developments in 2019 have less relevance than usual in assessing future economic prospects, given the scale of the economic crisis brought about by the pandemic throughout 2020. The Fiscal Policy Panel s March 2020 economic assumptions advised that a recession could not be avoided, and that Jersey would face an unprecedented collapse
in economic output with a sharp fall in employment. The evolution of the economy in Jersey has been broadly in line with this and continues to follow the updated Fiscal Policy Panel forecast from August 2020.
As the economic crisis unfolded throughout lockdown, the number of people Actively Seeking Work rose sharply from 1,010 at the end of March 2020 to peak at 2,380 on 24 May - compared with 840 a year earlier. It
had fallen consistently to 1,490 by mid September. The number of active Income Support claims rose from 5,620 at the end of February to peak at 6,550 on 31 May covering 8,390 adults and 3,410 children. The number
of claims fell to 6,260 by mid September with the high number of claims reflecting lower income for those both in work and out of work.
The Jersey Opinions and Lifestyle Survey (JOLS) included several important new questions on how Covid-19 has affected Islanders. Notably many reported a reduction in their pay, with more than two-fifths (44%) of adults employed in hotels, restaurants and bars reporting a decrease in
pay, compared to around one in fifty (2%) working in the public sector. Over a third (36%) of households reported that their finances had got worse due to the pandemic. These economic indicators illustrate the severe impact of Covid-19 on employment and incomes for households.
The Business Tendency Survey captures responses from firms about their current situation and expectations for the future. As would be expected, responses were markedly more negative in March and June 2020 compared with earlier periods and responses to the survey worsened significantly between those months. In June, the headline business activity indicator showed a negative net balance of -62 by far its lowest ever level, though it should be noted that this survey did not start until September 2009, after the initial hit of the global financial crisis.
Both the finance and non-finance sectors reported their worst contraction in activity since the survey began, but it was much more severe for non-finance. Hotels, restaurants and bars are worst hit with 100% of firms reporting a reduction in activity. Construction was also severely hit, though a small number of firms in wholesale and retail and in other non-finance businesses reported an increase in activity.
Looking to the future, businesses overall expect activity to decline further in Quarter 3. This is perhaps surprising as business activity would be expected to increase from a very low level as restrictions on activity are eased but the survey responses may just reflect pessimism in the current
2 1
0 -1 -2
-3
Principal component
Sep 09 Jun 09 Mar 11 Dec 11 Sep 12 Jun 13 Mar 14 Dec 14 Sep 15 Jun 164Q mMar 17oving aDec 17verageSep 18 Jun 19 Mar 20 Figure 5 - Business Tendency Survey, All Sectors, Principal Component
challenging economic conditions. This summary indicator is shown below, along with an average over four quarters that smooths out the volatility from one quarter to the next.
This summary indicator for the survey demonstrates the unprecedented collapse in economic activity, in both speed and scale, for the Jersey economy. The results for other sectors were similar, though with the finance sector significantly less negative than the non-finance sector. The hospitality sector was significantly more negative than the rest of the sectors.
There are a range of other indicators that help assess how the Island s economy is recovering from lockdown, including data on footfall in the high street, bus passenger numbers and the total number of vehicles passing through the tunnel.
In broad terms, by mid-September vehicle traffic had recovered to pre-crisis levels but bus passengers remained at around 50% lower while footfall in the high street was still 40% lower. This would be consistent with higher rates of home working, restrictions on activity to support public health, and caution among Islanders in resuming normal patterns of work
and leisure. It would also reflect the significant reduction in harbour and airport arrivals to the Island of around 70% in August, compared with last year.
The Fiscal Policy Panel s August 2020 forecast is for a severe recession
in 2020, with a fall in economic output (as measured by real GVA) of 7.5% and a fall in employment of 1.6%. The deterioration in prospects for 2020, relative to their March 2020 forecast, is driven largely by a considerable reduction in banking profits, which make up a significant share of output (GVA) in Jersey s economy.
The forecast assumes that the economy will continue to recover through the second half of 2020 and 2021, although at a relatively subdued
pace. Crucially, the forecast also includes a judgement on how the global pandemic and recession will permanently affect the economy, with not all the lost ground in output made up. This means the economy is now forecast to be smaller in the medium-term than it was pre-crisis, with a
110
August 2020 forecast October 2019 forecast
March 2020 forecast
100
GVA
90
80
Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 2018 2019 2020 2021 2022 2023
Figure 6 - Index of real gross value added (GVA), Q1 2018 = 100
consequence that our revenues will be lower. The chart below provides an illustrative profile of quarterly GVA, consistent with the Fiscal Policy Panel s forecast.
While it is difficult to be certain about the nature and extent of any structural/long-term impact on the economy, the Fiscal Policy Panel has
advised that we should plan on the basis of a long-term reduction in the size of the economy compared to forecasts this time last year. This has been incorporated into the revenue forecasts from the Income Forecasting Group.
While the Fiscal Policy Panel s economic forecast assumes the economy will be smaller by the end of this Government Plan period, the panel has not revised its forecast for the trend growth rate of the economy i.e.
the long run average growth rate. The panel will undertake more work to update the trend rate of growth once the structural impact of the pandemic becomes clearer.
While the pandemic will have a substantial impact on the economy, other longer-term issues remain. The conclusion of the UK s negotiations with the European Union remains a source of uncertainty and challenges around demographics, and recent poor productivity performance will need to be resolved if Jersey is to continue to enjoy equally high levels of prosperity into the future.
Jersey s fiscal framework for 2020 and beyond
The Fiscal Policy Panel is established by the Public Finances Law, which enshrines its independence and sets requirements for it to provide an annual report on Jersey s economy and Government finances, and to inform the preparation of the Government Plan. The Council of Ministers or the Treasury and Resources Minister can also request other reports on specific subjects.
The Panel will continue to be responsible for monitoring the application of the fiscal guidelines.
The fiscal framework remains an important pillar of Jersey s economic and fiscal policy and sets the medium and long-term aims that help to inform budgetary decision making, with particular regard to the balance of income and expenditure (i.e. budget deficits or surpluses).
The key guidelines identified in the last Government Plan are to:
Seek to increase the Strategic Reserve and public sector net worth,
while following the advice of the Fiscal Policy Panel on borrowing and net financial assets
Run a primary structural current balance or surplus until the Strategic
Reserve is judged large enough to meet its mandate
Borrow only to finance investment (or refinance liabilities), except in
times of economic duress, and monitor the impact on net financial assets.
Financial strategy
This Government Plan sets out the new investment in our strategic priorities, as well as additional spending in response to the pandemic. Although the plan is focused on the period 2021-24, it also resolves the negative balance in the Consolidated Fund caused by the emergency spending on the pandemic response in 2020. These spending plans are set against the backdrop of significantly reduced income forecasts in 2020, and over the life of the plan.
In arriving at its financial strategy, the Council of Ministers has balanced these competing pressures. In line with recommendations from the Fiscal Policy Panel, Ministers have sought to largely retain the strength of our reserves, using borrowing in the early years to fund the cost of the pandemic response, before returning to a balanced budget by 2024.
Ministers are proposing utilising short-term borrowing facilities in 2021, given the enduring high levels of uncertainty. In 2021, when there is less uncertainty and a final decision relating to Our Hospital has been made, we will propose the nature of longer-term debt issuance to replace the short-term facilities. A draft strategy for medium to longer-term debt has been formulated. However, this strategy will benefit from greater certainty as the global pandemic evolves and once a budget for the Our Hospital project is agreed.
All borrowing must ultimately be paid for. We have made allowance for forecast interest on this debt and Ministers propose that the repayment
of the debt will be from the payment of the 2019 Previous Year s Basis taxpayers liability over the next 15 years or more, if the States Assembly agrees to the Treasury Minister s plans to move everyone to a Current Year Basis.
These payments are time limited and avoid the need to raise taxes to pay off the debt.
Reduced income
The latest forecasts from the Income Forecasting Group show a decline
in income, as a result of Covid-19, of £96 million in 2020, compared to the forecasts a year ago, with all future years also reduced.
Government spending 2021-24
We are planning to spend £1.05 billion on public services and infrastructure in 2021. This compares with forecast expenditure of £945 million included in last year s Government Plan. The difference is largely the projected
costs arising from the pandemic response and economic recovery. In setting our spending plans for the next four years, we have carefully reviewed all areas of growth expenditure. Our forecast additional spending on the revenue expenditure projects included in last year s Government Plan is £35 million per year by 2023. This compares with a forecast
£55 million per year, as per last year s Government Plan. We will also continue to rebalance Government finances through the efficiencies plan announced last year.
In part, through this process of reprioritisation and challenge, as well as borrowing to fund Covid-19 costs, we have been able to accommodate £112 million of total additional investment in 2021, including £87 million in respect of Covid-19 and the associated economic recovery. In addition, we have included an expanded capital programme of £117 million within our spending plans, including some items deferred from 2020 as a result of the pandemic, which will also act as a fiscal stimulus.
Impact on the financial position
The financial position is forecast to improve over the period of the plan, from the large forecasted, and Covid-19 related, deficit in 2020. We are using accumulated balances in the Consolidated Fund and Stabilisation Fund to address this, along with borrowing in 2021 to meet the costs associated with our pandemic response. On current estimates, additional borrowing will be required in 2022, before budgets return to balance in 2023 and 2024.
The measures we have taken to reprioritise expenditure have reduced the amount of borrowing required in the short-term. We will look to use a combination of unused and uncommitted capital allocations, any unspent Covid-19 allocations, and some property disposals in the coming year to reduce our future borrowing requirements, ahead of the Government Plan next year and ahead of confirming the medium-term level of borrowing.
Borrowing
Government Plan 2020 established Fiscal Guidelines, including in respect of borrowing:
Borrow only to finance investments (or refinance liabilities) except under times of economic duress and monitor the impact on net financial assets
That guideline is as relevant now as it was then. However, considering the changed perspective, a policy for borrowing has been further developed and will be published by the Minister for Treasury & Resources.
In summary, that policy establishes valid uses for borrowing:
Capital Investment in public sector assets for a non-financial return, but
which provide public services (e.g. a hospital)
Capital Investment in public sector assets for a financial return (e.g.
housing or office space), where an income stream is generated
Temporary costs of the economic cycle, and in times of economic
duress, through lower revenues and higher spending (e.g. passive fiscal stimulus through use of automatic stabilisers and exceptional costs associated with Covid-19)
Active fiscal stimulus Short-term, targeted and timely, (e.g. financing
the Fiscal Stimulus Fund)
Deferral of income and cashflow purposes, although potential losses
and financing costs need to be identified
Unprecedented, but time-limited, expenditure has been, and will continue to be, necessary as a result of our Covid-19 response, and we will incur deficits whilst returning to balanced budgets in 2023. The Stabilisation Fund and available balances on the Consolidated Fund will have been utilised to meet cash flow requirements in 2020.
Faced with this financial challenge, the Council of Ministers strongly believe that the Strategic Reserve should be maintained in these uncertain times and, instead, we propose to borrow to meet the shortfall caused by the pandemic and to maintain investment in services to Islanders, as well as in vital infrastructure. This decision is also informed by the likelihood that the cost of debt will be far lower than the long-term returns on our reserves.
The immediate future remains highly uncertain and Ministers are therefore proposing the use of short-term debt facilities ahead of further action to reduce the debt level before it is replaced by medium-term facilities.
This Government Plan seeks approval to utilise £336 million in 2021 from the Revolving Credit Facility of £500 million obtained by the Minister for Treasury & Resources in May 2020. This is in addition to the borrowing required to fund the Fiscal Stimulus Fund and in addition to the borrowing for social housing of £250 million, but excludes the Our Hospital project which will be the subject of a separate States Proposition to include a request to arrange financing for the project. The likely scale of borrowing that will be required for Our Hospital has been taken into account when considering the level of debt for Covid-19 costs and has been built into the draft medium-term debt issuance strategy.
The table below sets out the currently forecast total debt requirement, excluding that for Our Hospital.
| 2021 (£000) | 2022 (£000) | 2023 (£000) | 2024 (£000) |
Funding required from Revolving Credit Facility* Fiscal Stimulus Fund Borrowing (2020) | 335,953 50,000 | 71,229 | (4,981) | (6,231) |
Cumulative Borrowing Requirement - Covid-19 385,953 457,182 452,201 445,970 Existing borrowing - Housing Bond 2014 250,000 250,000 250,000 250,000
Table 4 - Cumulative borrowing requirement
*2021 borrowing replaces any decisions regarding borrowing made by the Minister for Treasury and Resources in 2020
At the end of 2019, the assets held in the Social Security Reserve Fund represented seven times annual spend in reserve at £1.7 billion. The planned payments in the last Government Plan from taxpayer funds to the Social Security Fund during the four-year period of the Government Plan, would be £330 million.
Following a States debate in April 2020 (P.31/2020), it was agreed that no States grant would be paid into the Social Security Fund in 2020. This released £65.3 million to support pressures related to Covid-19.
Unprecedented pressure on Government finances remains and it is proposed that the 2021-2023 transfers from taxpayer funds into the Social Security Fund are also withheld. This will release a further £235 million, which otherwise would be added to the borrowing requirement. Instead, the Social Security Reserve Fund will be used to top up the Social Security Fund in order to maintain the regular payments out of the fund. This position will be kept under review ahead of next year s Government Plan.
It is proposed that funds will be utilised from the Health Insurance Fund to invest in the Digital Care Strategy and Jersey Care Model, which over time will reduce expenditure on health services.
Ministers will take reasonable steps to reduce this forecast of debt required beyond 2021 through several measures ahead of the next Government Plan:
Return unused and uncommitted capital allocations at the end of
the year
Return unspent Covid-19 allocations from 2020
Return any uncommitted Fiscal Stimulus allocations
Develop a schedule of property disposals to be used to reduce the
borrowing requirements and to be summarised in an Estates Strategy.
The Council of Ministers intends to finalise its medium-term debt strategy for inclusion within the Government Plan 2022, to coincide with the expiry date of the Revolving Credit Facility, and once the States Assembly has agreed a budget for Our Hospital. This is likely to require consideration of the long-term investment strategy of our reserves, which currently support our credit rating and were an enabler to obtaining the Revolving Credit Facility on an unsecured basis.
Our debt strategy will also show how we plan to repay the borrowing. Although these plans are still being developed, we will establish a sinking fund for the debt and use receipts from property disposals, and from
the change to Prior Year Basis taxation system - subject to approval by
the States Assembly - to fund the repayment of the debt proposed in
this Government Plan. We will develop a further set of principles around efficiencies or receipts not previously identified, ring-fencing them to repay debt.
Returning to balanced budgets
The impact of reduced income over the period of the Government Plan arising from Covid-19 is considerable. This has required us to run deficits, while taking steps to balance the budget by 2024, in line with the advice of the Fiscal Policy Panel.
Ministers have identified a package of measures to close the fiscal gap by 2024, having already pared back the levels of further investment in the plan to 2024.
That package will be introduced over the period of this plan and consists of:
A £20 million efficiency target for 2024, in addition to the £100 million
per annum target by 2023
Reviewing the long-term level of the taxpayer grant to the Social
Security Fund, with a working assumption that this will be capped to a maximum of £65.3 million in 2024 and beyond
Identifying taxation measures to raise taxation of approximately £10
million in total from several sources, with measures to be brought forward in Government Plan 2022 for implementation by 2024:
Broadening the tax base
Taxation of medicinal cannabis growing and processing
A review of commercial stamp duty levels, further to changes to
enveloped properties measures
A full review of residential stamp duty
Increases to International Service Entity (ISE) fees in this Government
Plan (£3.5 million).
This would leave a small surplus in 2023 and 2024, and reduce the long- term debt required arising from Covid-19.
The impact of the pandemic has also been felt on the Health Insurance Fund and the Social Security Funds, and action will be taken to ensure their long-term sustainability.
To maintain the timetable for the implementation of the Jersey Care Model, Ministers propose to withdraw £28 million for the Health Insurance Fund and a further £16 million for the Health Digital Strategy. The fund currently holds a balance of £98 million. The overall impact of these withdrawals, plus additional planned health expenditure, would reduce the fund by the end of the Government Plan period to £35 million.
During 2021, Ministers will finalise their plans for a sustainable funding model for healthcare costs. These plans will be brought forward during 2021 or in the 2022 Government Plan.
The Minister for Social Security will bring forward legislation to create a transfer of £11.3 million from the Health Insurance Fund to support the JCM and the Health Digital Strategy costs budgeted for 2021.
In April 2020, the States Assembly agreed to reduce the amount due to be paid from general taxation into the Social Security Fund from £65.3 million to nil. This made available additional funding to support Covid-19 related pressures. Considering the continued pressure on Government finances, this Government Plan proposes that the planned annual transfers to the Social Security Fund of £235 million between 2021 to 2023 are also reduced to nil. This will release an additional £235 million to support other areas of Government expenditure.
Prudent decisions taken in the past have ensured that the Jersey Social Security scheme is on a very firm financial footing. The Fund collects contributions from the current generation of workers to meet the pension costs of their parents. This inter-generational bond helps to support a cohesive society. The individual decisions previously taken to reduce or remove the States Grant over the last five years have not threatened the sustainability of the Fund by themselves. However, repeating this type of decision in future years, without taking corrective action, will have a negative impact on the Fund over time.
At the end of 2019, the assets held in the Fund represented seven years of fund expenditure. These assets also form an important part of the overall financial stability of the Island and play a significant role in our creditworthiness ratings. By the end of 2024, the value of the Fund will be estimated to hold six years of fund expenditure. This still represents a significant investment in the pension provision of future generations.
However, Ministers are determined to ensure that the Fund remains in
a fully sustainable position for future generations and, as a priority, will undertake a full review of the various components of the Social Security scheme ahead of the next Government Plan.
Last year s Government Plan identified the need for a review of the future balance of funding between the States Grant, employer contributions and employee contributions. This work has been delayed in 2020, due to the pandemic, and this will now form an important part of the proposed review as well as considering the burden of overall government levies (taxes and contributions) on individuals, workers, businesses and employers.
The review will build on the public consultations previously conducted in 2016 and 2017, and will lead to proposals to be brought to the States Assembly during 2021 or incorporated into the next Government Plan.
The reviews of health funding, social security funding and revenues collected to support other areas of government expenditure will be coordinated to ensure the overall impact on individuals and businesses is fully considered.
Guiding principles
The Council of Ministers previously agreed the following financial principles:
Long-term financial The Government Plan should be consistent with the aim of sustainability, with ensuring long-term financial sustainability and have regard to
Fiscal Policy Panel recommendations
balanced budgets
in the medium- Provide flexibility to be able to make investments where term necessary, while balancing budgets
Over the long-term, the Government should make sure that the Stabilisation Fund and Strategic Reserve are of an appropriate size to manage risk and uncertainty
In the short-medium-term action should be taken to preserve a minimum viable balance on the Strategic Reserve to be available whilst the reserve is grown in the long-term
Investment The Government should seek to address areas of historic
under-investment
The Government should look to better utilise its whole
balance sheet, including new ways to fund major projects Borrowing Borrow only to finance investment (or refinance liabilities),
except under times of economic duress, and monitor the
impact on net financial assets
Efficiency and The Government should deliver services efficiently through effectiveness transformation and the use of technology. This will involve
investment in staff, and productivity improvements through invest-to-save initiatives
Expenditure and assets should support outcomes for Islanders, and the allocation of both existing funding and investments should be considered and prioritised in the context of effective and efficient delivery of strategic objectives
The Government should also look to maximise the returns (fiscal and outcomes for Islanders) from all assets within agreed levels of risk
Fees and taxation Appropriate and fair contributions should be made to the
full cost of providing services
Significant new income (taxes and charges) should only be implemented once rebalancing expenditure, including efficiencies and prioritisation have been addressed
For new areas of significant investment, over and above the expenditure envelope agreed in Government Plan 2020, such as initiatives designed to respond to the climate emergency declared by the States Assembly, investment should be tied to a funding mechanism, such as a hypothecated tax, if unable to be addressed by re-prioritising expenditure
Tax policy principles
The Council of Ministers previously agreed the following tax policy principles:
Fair and sustainable | Taxation must be necessary, justifiable and sustainable |
Taxes should be low, broad, simple and fair | |
Everyone should make an appropriate contribution to the cost of providing services, while those on the lowest incomes should be protected | |
Support broader Government policy | Taxes must be internationally competitive |
Taxation should support economic, environmental and social policy | |
Borrowing | Borrow only to finance investment (or refinance liabilities), except under times of economic duress, and monitor the impact on net financial assets |
Efficient and effective | Taxes should be easy to implement, administer and comply with, at a reasonable cost |
No individual tax measure will meet all these principles, but overall the Island s tax regime should represent a sustainable balance of them |
Public sector spending 2021-24
In the previous Government Plan, we set out our plans to invest an extra £136 million per year in the Common Strategic Policy priorities by 2023. We also planned to make £100 million of efficiencies over the four year period of the plan. We reported on the progress in delivering the new investment and efficiencies in the Government Plan six-month report, published in August 2020.
The impact of the pandemic on Government finances has been significant. As at 30 June 2020, we had incurred an additional £108 million of expenditure in relation to the pandemic, and forecast in excess of £250 million for the year. We have forecast spending of £87 million on costs related to the pandemic in 2021 and are proposing a further £40million
be held in contingency to provide for an increase in costs in the event of cases during the winter. In addition, the Council of Ministers is proposing a Fiscal Stimulus Fund of £50 million be established in Autumn 2020.
As well as meeting the costs of the pandemic response in 2021, we will invest £41 million in initiatives that support the delivery of the Common Strategic Priorities. This includes £16m of investment in initiatives planned in Government Plan 2020 and £25 million of investment in new initiatives. In addition, we will be investing more than £371 million in our Island s infrastructure and technology over the period.
Table 5 shows expenditure over this Government Plan period.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening base budget 823,453 822,416 822,416 822,416 Investment in CSP priorities (GP20) 15,980 32,001 35,448 30,128 New Investments (GP21) 24,713 31,837 29,045 32,566 Covid-19 / Economic Recovery 87,277 26,590 25,642 12,602 Reserves, Inflation and Legislative Decisions 64,116 56,237 78,286 98,683 Reduction in grant to Social Security Fund (65,300) (76,100) (93,100) (30,200) Rebalancing (18,763) (35,426) (54,326) (72,826) Total net departmental expenditure 931,476 857,555 843,411 893,369 Capital programme 117,373 98,125 81,724 74,142
Total Government Net Expenditure 1,048,849 955,680 925,135 967,511 Table 5 - Government expenditure
£m
Revenue expenditure - forecast (GP21) Total income
1200
Revenue expenditure - actuals Revenue expenditure - forecast (GP20)
1000
800
600
400
200
0
2016 2017 2018 2019 2020 2021 2022 2023 2024 Figure 7 - income and expenditure trends
Covid-19 spending continuing into 2021
During 2021, we will invest £87m on responding to the pandemic. The majority of this investment is a one-off. However, we will continue to provide support to specific sectors over the period 2021-24 though the economic recovery programme, fiscal stimulus and additional funding for Government services where income is impacted (e.g. the bus service). Further information on this new investment can be found in Part Two.
To support the additional Covid-19-related spending, we have also provided for the costs of the revolving credit facility agreed early on in the pandemic, and a reserve for costs that would arise with spikes in Covid-19 cases and associated stepping up of restrictions.
2021 Allocation 2022 Allocation 2023 Allocation 2024 Allocation Covid Programme (£000) (£000) (£000) (£000)
Covid-19 Nightingale Field Hospital 8,380 0 0 0 Covid-19 Payroll Co-Funding Phase III 11,300 0 0 0 Covid-19 Revolving Credit Facility 3,746 7,136 8,730 7,803 Covid-19 - Other 4,475 2,205 1,220 250 Economic Recovery 15,500 12,000 12,000 0 Covid-19 Income Support Costs 7,498 5,249 3,692 4,549 Covid-19 Schools catch-up programme 904 0 0 0 Covid-19 Test & Tracing Programme 2 30,000
Covid-19 Vaccine 5,474 0 0 0
Grand Total 87,277 26,590 25,642 12,602 Table 6 - Profile of COVID-19 proposed spend
2021 2022 2023 2024 Estimate Estimate Estimate Estimate (£000) (£000) (£000) (£000)
CSP Investment
Investment in CSP initiatives GP2020 15,980 32,001 35,448 30,128 Investment in CSP initiatives GP2021 24,713 31,837 29,045 32,566 Total Investment in CSP initiatives 40,693 63,838 64,493 62,694
Investment in Covid-19 (incl Economic Recovery) 87,277 26,590 25,642 12,602
Total investment 127,970 90,428 90,135 75,296 Table 7 - total investment in Government Plan 2021 above 2020 amounts
Investment in the common strategic priorities
In the Government Plan last year, we set out £80 million of investment into our strategic priorities during 2020. As shown in the table above, this Government Plan sets out further investment into the strategic priorities of £41 million in 2021, £64 million each in 2022 and 2023 and £63 million in 2024 (£232 million in total). In addition to this, £87m of investment is planned in 2021 in activities that respond to the Covid-19 pandemic (with further amounts in 2022-24). Further details of this investment is included in the appendices and the Government Plan Annex.
These amounts are on top of departments existing budgets, which also contribute to delivering activities and outcomes associated with the five strategic priorities.
We will invest significant additional amounts in schools over the period 2021-24, to implement the recommendations of the School Funding Review. We will also invest in implementing the Jersey Care Model, which will be funded by proposed transfers from the Health Insurance Fund. Whilst this Government Plan only shows expenditure to 2024, the Jersey Care Model will begin to deliver savings from 2025 onwards.
The table below illustrates the total value of investment proposals in each of the Common Strategic Policy priorities and this new investment is over and above the amounts set out in the previous Government Plan. The amounts in respect of protect our environment are in addition to investment provided through the Climate Emergency Fund (see Table 42)
Further information on the initiatives proposed and funded in the previous Government Plan can be found in Appendix 4. The scope and timescale of some of these initiatives has changed, primarily as a result of the impact of Covid-19 . These changes are also set out in Appendix 4.
2021 2022 2023 2024 Estimate Estimate Estimate Estimate (£000) (£000) (£000) (£000)
Put children first 9,431 14,316 14,281 14,808 Improve wellbeing 62,613 22,126 24,090 16,910 Vibrant economy 16,108 15,467 16,431 3,888 Reduce inequality 20,031 6,673 5,275 5,882 Protect our environment 2,505 2,957 2,087 1,837 Modernising Government 17,282 28,889 27,970 31,970
127,970 90,428 90,134 75,295
Table 8 -CSP investment
[3]Reserves, inflation and legislative decisions
It is both prudent and good financial management to plan for the impact of economic influences on Government finances. As such, we have set aside amounts to cover inflationary pressures on pay and benefits. Non-staff inflation has been removed for 2021 as part of the Rebalancing Plan, set out in Part 3. Provision is also made for the increased costs associated with measures to improve the sustainability of employee pensions.
There are several items that also contribute to total net expenditure:
Reserve for centrally held items: Some elements of expenditure, for
example those relating to pay awards, are held centrally in the plan, and will be allocated to departments when appropriate. Inflation is, by nature cumulative, and so this amount grows throughout the plan. The 2021 amount will be reflected as fully allocated to departments in the 2022 Government Plan, and so on in each subsequent Government Plan
General reserve: The reserve is held outside of operational expenditure
limits, and can be used to meet unforeseen pressures, or to provide advance funding for urgent expenditure in the public interest. In each year, amounts are held to manage fluctuations in benefit expenditure due to economic changes, and to allow one-off investment for emerging priorities in 2021. In addition, the Covid-19 Contingency of £40 million will be held centrally and also £10 million over the period is allocated for assisted home ownership schemes, once developed. Following amendments to the Government Plan, the General Reserve holds amounts of £100,000 ringfenced for careleavers and £159,000 ringfenced for the Jersey Premium.[4]
A further £10 million has been set aside for restructuring costs. This allocation will be held to assist in overall reduction in direct staffing costs through restructuring of services, management de-layering, pay and reward policies, and staffing reductions. This will include compulsory and
voluntary redundancies contingencies where the costs cannot be met by the departmental budgets, subject to a defined return-on-investment for redundancy costs.
Revenue heads of expenditure
The Government Plan is required, by the Public Finances Law, to set out the proposed amount to be spent from the Consolidated Fund by each head of expenditure, after allowing for any income earned. Heads of expenditure within this Government Plan relate to each Government of Jersey department, non-Ministerial departments, and of those covering central items and reserves. In addition, we are proposing creating separate heads of expenditure for Financial Services and Digital Economy, States
of Jersey Police and Covid-19 related expenditure. This will enable expenditure for these areas to be tracked separately.
Expenditure is approved in this manner to ensure that Accountable Officers, aligned to heads of expenditure, can be held accountable for delivery and the efficient use of resources.
Expenditure has been allocated to departments for 2021, and estimates produced for 2022 to 2024. The departmental expenditure limits incorporate both existing resource requirements and investments.
Depreciation
Depreciation represents the cost of using Government assets in the provision of services. It is included when calculating whether the Government is running a surplus or a deficit, which follows Fiscal Policy Panel advice, and helps to ensure that the need to continue to invest in assets is adequately recognised in planning.
The increase in depreciation during 2021-24 reflects an estimated uplift in asset values, as a result of either assets being created or replaced.
Efficiencies and rebalancing
Efficiencies and rebalancing measures, where identified for delivery by departments, have been included in individual departments heads of expenditure for 2021. Targets for future years measures are held outside of heads of expenditure until individual measures have been identified in future years.
2021 Allocation 2022 Estimate 2023 Estimate 2024 Estimate
(£000) (£000) (£000) (£000)
Departments
Chief Operating Office 36,638 45,126 44,446 44,201 Children, Young People, Education & Skills 160,286 166,245 166,044 166,475 Customer and Local Services24 91,715 93,838 95,778 95,778 Infrastructure, Housing and Environment 44,571 44,723 44,503 49,253 Health and Community Services 227,435 232,086 234,336 227,875 Jersey Overseas Aid 12,374 13,264 14,154 15,204 Justice and Home Affairs 29,613 30,062 30,062 30,062 States of Jersey Police 26,804 26,997 27,138 27,260 Office of the Chief Executive 8,505 8,505 8,505 8,504 Financial Services and Digital25 33,561 35,195 35,286 33,896 Strategic Policy, Planning and Performance26 9,997 9,211 9,602 9,613 Treasury and Exchequer27 67,155 69,194 69,181 134,833 Covid-19 Response 87,277 26,590 25,642 12,602
Departments total 835,931 801,036 804,677 855,556
Non Ministerial States Bodies
Bailiff s Chambers 1,841 1,841 1,841 1,841 Comptroller & Auditor General** 870 888 910 932 Judicial Greffe 7,593 7,693 7,593 7,493 Law Officers Department 8,452 8,452 8,452 8,452 Office of the Lieutenant Governor 804 849 804 804 Official Analyst 603 603 603 603 Probation 2,371 2,395 2,411 2,422 States Assembly 7,148 7,340 6,971 6,971 Viscount s Department 1,712 1,712 1,712 1,712
Non-Ministerial States Bodies total 31,394 31,773 31,297 31,230
Reserves
Reserve for centrally held items 10,782 22,060 38,774 56,601 General reserve28 54,319 22,345 7,222 7,040
Reserves Total 65,101 44,405 45,996 63,641 Rebalancing (950) (19,659) (38,559) (57,059) Total net revenue expenditure 931,476 857,555 843,411 893,368 Depreciation 54,646 56,699 58,838 59,275 Total net revenue expenditure after Depreciation 986,122 914,254 902,249 952,643
Table 10 - Heads of expenditure 2021-24
*rebalancing in respect of 2021 is allocated against heads of expenditure
24see Appendix 7 (8) 25see Appendix 7 (9)
26see Appendix 7 (1) and (12) 27see Appendix 7 (7)
28see Appendix 7 (2) and (3)
**The Acting Chairman of the Public Accounts Committee submitted, on 7th October 2020, a revised estimate of costsin 2021 for the Office of the Comptroller and Auditor General. At that date it was too late to accommodate the revised estimate and make the consequential changes within the Government Plan. The Minister for Treasury and Resources has given assurance to the Acting Chairman that she will make the additional funding required available in 2021 from the General Reserve.
Resources mapped to Ministerial portfolios
Under the new structure adopted by the Government, one or more departments may be responsible for supporting Ministers in the delivery of their Ministerial responsibilities. As expenditure is approved based on departments, this does not directly align with areas of ministerial responsibility. An indicative mapping of the departmental allocations to portfolios of Ministerial responsibility is included below.
2021 Allocation 2022 Estimate 2023 Estimate 2024 Estimate
(£000) (£000) (£000) (£000)
Minister
Chief Minister 43,680 51,612 51,813 51,718 Minister for Children and Housing 31,169 33,110 33,604 33,855 Minister for Economic Development, Tourism, Sport and Culture 45,437 42,216 41,847 28,053 Minister for Education 133,335 136,374 135,763 136,042 Minister for External Relations 10,809 11,027 11,205 10,895 Minister for Health and Social Services 238,312 232,815 235,065 228,604 Minister for Home Affairs 86,627 57,270 57,410 57,433 Minister for Infrastructure 43,817 39,146 38,375 42,895 Minister for International Development 12,374 13,264 14,154 15,204 Minister for Social Security 129,053 130,463 132,492 196,249 Minister for the Environment 5,778 5,734 5,585 5,565 Minister for Treasury and Resources 55,541 48,005 47,367 49,044 Non-Ministerial 31,394 31,773 31,297 31,230
Total Departmental Net Revenue Expenditure 867,325 832,809 835,975 886,786
Reserves (regulated by the Minister for Treasury and Resources)
Reserve for centrally held items 10,782 22,060 38,774 56,601 General reserve 54,319 22,345 7,222 7,040
Reserves Total 65,101 44,405 45,996 63,641 Rebalancing (950) (19,659) (38,559) (57,059)
Total Net Revenue Expenditure 931,476 857,555 843,411 893,368 Table 11 -Net revenue expenditure by Minister
Capital 2021-2024
The Government Plan includes a programme of investments in our Island s infrastructure and other assets.
These projects are investments into the creation, improvement and extension of assets that support the delivery of services in Jersey and have an asset life of more than a year and, which in some cases, will last for decades.
Funding proposals for 2021-2024 are targeted at projects that address the priorities in the Government s Common Strategic Policy. This will result in improvement to our Island s public buildings, such as schools, healthcare and other key facilities. It also directs funding to Jersey s infrastructure, such as roads, sewers and sea defences, which we all rely upon, and
will continue the work of improvements to the look and feel of our Island through the programme of regeneration in St Helier and across the parishes.
Funding is also allocated to replace essential equipment which supports the services that the Government provides. From essential hospital equipment to sports and safety equipment, the programme provides for their replacement to ensure that the equipment we use is fit for purpose and meets the relevant health and safety standards.
It was identified in the previous Government Plan that it was essential to invest in technology to deliver efficiencies and transform the way the we operate. This investment continues in this Government Plan, with further investment in modern infrastructure both for our workforce, as well as a review to replace the current benefits and payments system together with further investment in cyber security.
There are some major projects that need consideration in this Government Plan, which will require new ways of thinking about funding due to the scale of the investment required. In the life of this Government Plan, we will need to make provision for Our Hospital, the Jersey Care Model and the Office Modernisation Strategy. We will also need to consider how to deal with Fort Regent and the requirement to evaluate sporting venues.
Previous investments and key live projects
There has been significant investment in the Island s infrastructure in previous funding cycles and this Government Plan continues to build on that work across a wide range of projects that relate to our overall objectives.
The redevelopment and refurbishment of schools has created a strong education property portfolio and major projects at Les Quennevais, St Mary and Grainville have either been completed or are well under way. In this Plan, consideration is given to a replacement school for Victoria College Prep and a review of the Jersey Instrumental Music Service Premises, together with the development of the extension of La Moye School and updates to several sporting facilities.
We are changing the way we work and this relies on the utilisation
of effective systems and a strong core of fit-for-purpose information technology that can support this change programme. The investment required to support an agile workforce and to upgrade the systems that we use across the whole of the States of Jersey is substantial, and has increased in this Government Plan. The capital programme also includes a new Benefits and Payments system to enable Customer and Local Services to provide a better way to support Islanders, which it is proposed will be funded through the Social Security Fund.
Health and Community Services has significant needs for capital expenditure to correct historical under-investment and to continue our work on the Our Hospital project. There are necessary changes to the location of mental health facilities, and the requirements for a new centre for people with learning difficulties and to continue with the investment in replacement assets. The timing of these projects is complex, especially given the need to decide on the location of Our Hospital and the implementation of the Jersey Care Model.
There continues to be a need to do more, but with limitations on
the funding available. This will require us to consider other funding mechanisms to support some of the larger proposed schemes. We are committed to doing this despite the recent pressure imposed by the impact of the pandemic on the overall financial plan.
2021-24 capital programme
The proposed capital programme invests in our Island s infrastructure across the four years of the Government Plan.
|
| 2021 | 2022 | 2023 | 2024 Total 2021-24 | |
Central Planning Reserve Discrimination Law, safeguarding and Reg of Care Schools extensions and Improvements Infrastructure including the Rolling Vote Information Technology Replacement Assets Estates including new Schools and Our Hospital Reserve for Central Risk and Inflation Funding |
| £ 000 3,700 3,600 5,901 12,732 36,120 10,309 43,511 1,500 | £ 000 450 2,600 6,700 19,318 30,779 6,916 29,562 1,800 | £ 000 - 2,000 1,750 16,215 17,091 9,562 33,106 2,000 | £ 000 - 2,000 750 15,150 6,312 7,200 40,730 2,000 | £ 000 4,150 10,200 15,101 63,415 90,302 33,987 146,909 7,300 |
Total Programme |
| 117,373 | 98,125 | 81,724 | 74,142 | 371,364 |
Table 12 -Capital programme 2020-2013 |
|
|
|
|
|
|
This programme is funded by: |
|
|
|
|
|
|
Proposed Funding of Indicative Capital Programme |
| 2021 | 2022 | 2023 | 2024 | 2021-2024 |
|
| £ 000 | £ 000 | £ 000 | £ 000 | £ 000 |
Total Proposed Departmental Capital Plan |
| 117,373 | 98,125 | 81,724 | 74,142 | 371,364 |
Proposed Funding Sources |
|
|
|
|
|
|
Consolidated Fund (2021-2024 Government Plan schemes) New Health Schemes - Funded from HIF Criminal Offences Confiscation Fund (for various schemes) Charitable Funds (for in patient/support services refurbishment | s) | 109,673 4,700 1,956 1,044 | 90,827 4,700 1,609 989 | 73,268 6,060 2,396 - | 70,417 3,725 - - | 344,185 19,185 5,961 2,033 |
Total Proposed Departmental Capital Plan 117,373 98,125 81,724 74,142 371,364
In addition to the programme above, the States Assembly is asked to approve the proposed capital plans of the Trading Funds.
2021 2022 2023 2024 Trading Funds Department
£ 000 £ 000 £ 000 £ 000
Jersey Fleet Management JFM 1,000 1,000 1,000 1,000 Jersey Car Parking JCP - 3,000 3,000 3,750
Total 1,000 4,000 4,000 4,750 Table 13 - Trading funds
The Customer and Local Services team will commence a project to replace the Social Security Benefits and Payments system, which it is proposed will be funded through the Social Security Fund.
Total 2021 2022 2023 2024 2021-24
Proposed Schemes Funded from Social Security £ 000 £ 000 £ 000 £ 000 £ 000 Benefits and Payments - System 250 5,000 10,000 7,750 23,000
Social Security Funded Schemes 250 5,000 10,000 7,750 23,000 Table 14 - Social Security
In addition to the programme above, the States Assembly is asked to
note the following schemes, which are strategic and will require additional funding:
2021 2022 2023 2024 Total 2021-24 Proposed Schemes Subject to Funding £ 000 £ 000 £ 000 £ 000 £ 000 Fort Regent redevelopment (Major Project) - 8,000 8,000 10,000 26,000
Sports Facilities (Island Wide) 1,200 16,200 22,100 10,450 49,950 Further Education College - 5,300 5,000 19,600 29,900
1,200 29,500 35,100 40,050 105,850
Table 15 - Additional funding
Grouped heads of expenditure
By grouping projects under a common head of expenditure, it will be possible, with appropriate governance processes, to utilise funds allocated more effectively, to move underspends to commence or accelerate high- priority projects and react, at pace, to changing requirements within a Government Plan cycle.
Annual allocation of funding
Project funding is allocated on an annual cash requirement, replacing the previous system whereby the States Assembly allocated the full budget upfront for a project. The previous allocation process meant that the Government had large amounts of cash tied up in projects, which was not able to utilise, resulting in the delay of some high-priority projects, while
the public accounts showed that the Government was holding large cash balances. This is not an efficient and effective use of public monies.
These changes to how funds are allocated have the effect of releasing funding within the Consolidated Fund earlier, so essential projects can start sooner, and new assets or equipment brought into use to realise benefits.
Risk funding
A further innovation is the creation of a separate reserve head of expenditure, which holds a provision for risk and inflation outside the individual capital budget allocations. By centralising this funding under the management of the Treasury and Exchequer department, and developing
a robust governance structure for assessing calls on the funding process for its release, the aggregate amount of funding allocated for risk can be reduced. As with other measures taken, this enables funds allocated to work more effectively to deliver projects rather than be held in reserve.
Central planning reserve
Setting an appropriate and prudent level of funding will require a more mature approach to the development of project business cases and feasibility assessment. To facilitate this, a head of expenditure called
central planning reserve has been created, which provides funding to undertake assessment of proposals for projects and develop robust and comprehensive business cases. This was not an accurate description of the function of this reserve, so this Government Plan has renamed this to Central Planning Reserve.
Major projects and projects requiring alternative funding sources
The Public Finances (Jersey) Law defines major projects under Article 1 as follows:
major project means:
- a capital project the duration of which, from start to finish, is planned to be of more than one year and the total cost of which is planned to be of more than £5 million; or
- a project that has been designated as a major project under an approved government plan.
In this Government Plan, the following have been deemed major projects: Sewage Treatment Works*
Microsoft Foundation*
Integrated Technology Solution*
Cyber Security*
Vehicle Testing Centre*
Victoria College Preparatory Replacement School Mont a l Abbe School
Redesign of Greenfields
Learning Difficulties Project
Our Hospital (Phase Two)
Fort Regent (Early Phase)
Digital Care Strategy
Office Modernisation
*Existing major projects included in Government Plan 2020
Some of these projects are already underway, having received funding in last year s Government Plan or earlier years. Some are in the early stages of development, and will receive initial funding for preparatory work from the Central Planning Reserve. This will allow further development of these important and complex projects and preparation of robust business cases, funding options and delivery mechanisms.
These projects are transformational and will address long-standing deficiencies in the public estate and reshape the delivery of services to Islanders and other service users. Innovative funding solutions will need to be considered for these projects, in order that they can commence within the timeline of this Government Plan and be affordable over the longer- term.
There were major allocations made in the 2020-2023 Government Plan. The revisions and additions to those are shown in the following table:
2020-2023 2021-2024 Department Government Plan Government Plan Full Cost Full Cost
(£000) (£000)
MS Foundation COO 9,000 7,000 VCP Replacement School CYPES 17,000 Mont a l Abbe Secondary School CYPES 7,350 Redesign of Greenfields CYPES 7,000 Learning Difficulties - Specialist Accommodation HCS 9,350 Fort Regent (Early Phase) IHE 4,800 Our Hospital (Phase Two) HCS 20,000 Digital Care Strategy HCS 16,185 Office Modernisation OCE 3,450
Total 9,000 92,135 Funded from Social Security Fund
Benefits and Payments - System CLS 23,000
Table 16 -Major projects amendments and new projects
Information technology projects
The Government Plan 2020-2023 identified that we will be critically dependent on technology to achieve our future aims and must deal with a substantial technology debt , which has come from an historical lack of investment in capability and a shortfall in the capacity to handle current demand.
There needs to be continued significant and strategic investment
in technology, otherwise we will fail to achieve our commitments to
the Common Strategic Policy and the longer-term aims of the One Government initiative. The investment in technology has been established under the central management of the Chief Operating Officer s team to ensure alignment of objectives and the correct roll out of technology. The total investment in this Government Plan in information technology is £71 million with £33.4 million held within three major projects MS Foundation, Integrated Tech Solutions and Cyber. There is a further £19 million investment in systems for health, funded from the Health Insurance Fund.
The investment in information technology projects aligns with the identified five key strategic elements of the vision for a modern and effective Government.
Every Islander will be able to engage with the Government through
paying tax, accessing social security and accessing health services digitally
The Government will establish a record which allows a single view of
Islanders data
An efficient and effective billing and collection approach will support Islanders experience of transacting financially with the Government
Support by an effective and efficient workforce, with the tools required
to operate flexibly in a digital world
Our infrastructure systems and data will be resilient and protected
against cyber-attack
These elements have been used to enable and support the objectives outlined above through the introduction of technology capabilities in the following areas:
Government-wide capabilities enabling us to operate as a modern
government
Front-office (Islander-facing) capabilities enabling Islanders to deal
with the Government on a digital basis (as they would expect to deal with any other organisation)
Enabling functions supporting our effective and efficient operation.
Estates (Including schools)
There have been several projects for educational premises that have received funding in the last ten years, including school refurbishments
and the building of the new Les Quennevais School. This plan includes refurbishments of existing educational premises, a review of the organisation of secondary schools, the rebuild of Victoria College Prep (VCP) school, the extension of Mont a l Abbe and a revision of the service provision for those Islanders with learning difficulties and for those children in residential homes.
The replacement of VCP school has been under review since 2012, when the condition of the existing school was rated as below average. Since then there has been an updated feasibility study which reviewed different options to improve the school, but this needs to be updated and this project incorporates the funding for the updated scheme and the cost of the rebuild.
Due to the increased pupil numbers and overcrowding at Mont a l Abbe there have been considerations about the options for expanding both the Primary and Secondary Schools. The current proposal would consider ways to expand the provision on a single campus to enable the staff to deliver the 0-19 curriculum, as well as provide for the growing need to offer a respite care provision in the Island. The pre-feasibility work will be completed in 2022 with the aim to begin the scheme in 2023, at a total cost of £7.35 million.
The current provision for detained children is at Greenfields, which was built in 2006. It was designed as a secure unit in which to house children and young people under the youth justice system and those requiring secure welfare placements. Since then, the number of children and young people detained has declined and given rise to the need to redesign
the facility so that it can deliver a secure children s home provision. The original business case identified the importance of developing partnership arrangements between Greenfields and La Sente School. It is important that the site is redeveloped appropriately, to enable changes to be made to both the existing school premises and the Greenfields secure unit. On review of the original funding submission, it has been necessary to seek additional funding in 2024 to ensure there is enough budget available for the redevelopment of the site and not just the secure unit buildings. This means that this project is now budgeted to cost £7m, which is an increase of £1.25 million on the original estimate, the 2022 and 2023 costs of which were included in the previous Government Plan.
The health estate also needs to accommodate learning facilities
in its accommodation of individuals with a learning disability. The accommodation for Islanders with these needs has three major imperatives:
To ensure there is sufficient, quality accommodation of different type,
to meet the needs of service users (including those transitioning from Childrens to Adult Services)
To future-proof services in relation to people with learning disabilities,
in particular those with complex care needs so that services are sustainable for the coming years
To support care close to home, prevent service users travelling off the
Island and ensure that services are safe, cost effective and flexible.
Aviemore is five-unit facility which provides accommodation for those with learning disabilities who have the most complex needs and are in crisis. The nature of the existing building mitigates against the provision of appropriate and safe care, as well as providing a safe working environment for the staff. The nature of the existing building means it cannot be fully occupied and private sector accommodation must be sought to meet
the needs of individuals. The replacement facility will allow the service
to be provided in an appropriate and safe environment, in line with the Regulation of Care Law 2014, and give a cost saving through the reduction in the use of private sector accommodation.
There is a need to create a regime of vehicle testing in order to comply with the UN Vienna Convention on Road Traffic, which was extended to the Island in March 2019. A phased approach to inspections has been agreed and it is currently anticipated that period technical inspection of all vehicles in Jersey will be in place by 2022. The funding request addresses a likely scenario that a test centre will be required to undertake inspections on this scale. Although it is expected that the test centre will be self- funding, it also assumes that government will be required to provide the initial capital funding required for construction, which will commence in 2021.
Our Hospital
On 3 May 2019, the Chief Minister announced proposals to the States Assembly for establishing a new programme for delivering a new hospital for Jersey ( New Hospital Project: Next Steps , R54). A phased approach for the Our Hospital Project was proposed which:
Established the agreed clinical requirements of the new hospital
Used the outcome of this to scope the size and shape of a new hospital
to inform the shortlisting of potential locations
Involved a thorough process of Island and stakeholder communication
and engagement on those locations, alongside technical and financial assessments of deliverability, in order to identify a preferred site for the States Assembly to consider and approve.
The project has been set a challenging timeline to get to the submission of an outline planning application and business case completed, in order to deliver a new hospital, broadly to the timetable of the withdrawn Future Hospital proposal. This will be the single biggest capital expenditure undertaken in Jersey s history and will include investment in a digital care strategy.
Since project inception, the effects of Covid-19 reinforced the requirement for a new hospital that is fit for purpose and flexible enough to adapt its
capacity to deliver future healthcare needs. The project will continue without delay to meet the challenging timeline.
The concept of hold points has been used to divide the project further into management stages. At each hold point the Senior Officers Strategy Group and the Political Oversight Group are asked to confirm continued business justification and that the project is/will deliver its expected benefit.
Phase 1 was a Major Project within the Government Plan 2020-2023, with £11.7m funding agreed for 2020 to meet project costs. In 2021, £20 million has been put into the Government Plan to fund the next phase ahead of a decision of the States Assembly scheduled in Spring 2021 to proceed with Our Hospital.
Fort Regent
The issue of what to do with the Fort has been a perennial problem
for decades. Last year, the States approved a Pre-Feasibility Funding allocation for the 2020-23 Government Plan. Subsequently a team of leading experts, under the guidance of the Fort Regent Steering Group chaired by the Chief Minister, have developed a coherent mix of uses which are both deliverable and sustainable. The proposals have been divided into phases and the early phase of development has been
included in this plan. Notwithstanding current uncertainties regarding the pandemic, there are key quick win projects that can be taken forward. These can provide both short-term fiscal stimulus and new placemaking/ interim uses for the Fort, whilst the enabling work for the long-term leisure mix of uses is being progressed.
The overall ambition for Fort Regent is larger than that contained in
this Government Plan and will need to be considered as part of a wider debate, which includes the agreement of the vision, the impact on sporting facilities and the overall funding mechanism for the agreed scheme.
Digital care model
The Digital Health and Care Strategy, in partnership with Digital Jersey, is aimed at implementing a strategy that will look at ways to improve the way both health professionals and patients use technology. This will focus on:
Record management
Improvements in how care is planned, delivered and managed.
Office modernisation programme
We will provide funding to continue to progress the Office Modernisation programme as outlined in the Strategic Outline Case approved by the Council of Ministers in September 2019. The programme is in pre-feasibility phase, which involves the procurement of a development partner to work with the public service, to deliver a new office, to bring together colleagues across the public service and provide an outstanding customer hub for Islanders.
We have reviewed the principles of the Strategic Outline Case to assess the implications of Covid-19 on the project and consider that the case to build a new office remains valid, as it will deliver a noteworthy economic stimulus and a range of benefits for the organisation. It will enable the public service to more effectively discharge its duties to support Ministers, the States Assembly and the public it serves. It will also improve the efficiency and effectiveness of operational costs that support the public estate, as well as enhanced productivity savings, which will be fully articulated in the Final Business Case. We will review plans for exiting leases, and timings for the potential sale of properties, to reduce the impact of an economic downturn on capital receipts and anticipated revenue savings, whilst at the same time consolidating the overall office estate.
As part of the 2021 Government Plan, we will finalise the contractual arrangements of the development of the new office arrangements, the final detail of which is due to be completed by November 2020. The project team anticipate that a new building will be operational by early 2024 which will then realise the benefits of reduced overall office running costs and enable the disposal of vacated buildings.
An infrastructure fund for Jersey
The previous Government Plan identified that an Infrastructure Fund in Jersey could provide a way to fund major projects. Many jurisdictions have successfully established infrastructure funds, with these funds typically taking the form of a recyclable or evergreen fund, whereby they are reinvested over a medium to long-term to create a sustainable fund.
The original intention was to establish the fund in 2020 by lodging a proposition with the States Assembly which would have set out how
the fund could operate and the necessary safeguards, governance and transparency measures for projects to be funded through this mechanism. The impact of the pandemic has delayed the implementation of this initiative, but the intention is to continue and seek approval of the States to create the Infrastructure Fund in 2021.
The Infrastructure Fund can widen the participation of third-party investors who wish to take an holistic view of the long-term success of the Island and give us the opportunity to fund longer-term projects in a different way. These funds not only reduce the dependency on public sector finances
but can also be used to strengthen skills and resource planning capability. We can choose to invest at a fund or project level, or both.
The Government can play an active role in project definition, prioritisation, promoting initiatives, land assembly and attracting investors. We can widen the participation of third-party investors who wish to take an holistic view of the long-term success of the Island, as well as securing maximum leverage from third-party investors to support individual projects.
Robust transparency and accountability are an essential prerequisite of any fund where decisions are taken by elected Members following
independent advice. This will not only underpin the legitimacy of decision- making but will enable elected Members to exercise strict control over funding and long-term investment strategy. The decision to establish a new fund will be informed by a business case and can only be taken by the States Assembly.
Funding is included in the Central Planning Reserve to work towards the establishment of a fund and sets out how it could operate, the necessary safeguards, governance and transparency measures prior to a proposition being lodged for debate in 2021.
In addition to the Consolidated Fund and a potential Infrastructure Fund, capital expenditure may be funded from alternative sources, such as the Criminal Offences Confiscation Fund, where the proposed expenditure is appropriate and affordable, and we will continue to consider other potential funding options such as borrowing throughout the plan.
A full list of the capital programme is shown in table 17
Total 2021 2022 2023 2024 2021-2024
Department CSP (£000) (£000) (£000) (£000) (£000) Central Planning Reserve T&E 3,700 450 - - 4,150
Jersey Instrumental Music Service Premises 1 100 - - - 100 VCP Replacement School 1 150 - - - 150 North of St. Helier Youth Centre 1 350 - - - 350 Le Squez Youth Centre/Community Hubs 1 250 - - - 250 Rouge Bouillon site review 1 50 - - - 50 Mont a l Abbe secondary school 1 - 250 - - 250 Review of Greenfields 1 100 - - - 100 Piquet House - Family Court 1 150 - - - 150 Further Education Campus 3 150 150 - - 300 Fort Regent 3 1,800 - - - 1,800 Learning Difficulties - Specialist Accommodation 2 100 50 - - 150 Island Sports Facilities, Inspiring Places 3 200 - - - 200 Infrastructure Funding OI4 300 - - - 300
Discrimination law, safeguarding and IHE 3,600 2,600 2,000 2,000 10,200 regulation of care
Schools 1 1,500 500 - - 2,000 Children s residential homes 1 100 100 - - 200 Community Site Improvements 2 2,000 2,000 2,000 2,000 8,000
Schools extensions and Improvements IHE 5,901 6,700 1,750 750 15,101
Le Rocquier and school/community sports facilitiesIHE 1 1,305 2,400 1,000 - 4,705 School 3G Pitch replacements IHE 1 750 750 750 750 3,000 School Field development - Grainville, St John IHE 1 400 400 - - 800 Les Landes Nursery IHE 1 500 500 - - 1,000 Mont A L Abbe extension IHE 1 850 650 - - 1,500 Extend La Moye Hall and 2 additional classroomsIHE 1 1,000 1,000 - - 2,000 Extension to JCG School Hall IHE 1 260 - - - 260 JCG and JCP additional music facilities IHE 1 500 1,000 - - 1,500 JCG and JCP new playing fields IHE 1 336 - - - 336
Infrastructure including the Rolling Vote IHE 11,732 14,318 15,215 14,150 55,415
Rolling Vote IHE 5 10,232 11,318 12,715 12,650 46,915 STW Odour Mitigation (P.115/2017) IHE 5 - 1,500 - - 1,500 Bellozanne STW Outfall Rehabilitation IHE 5 - - 1,000 - 1,000 La Collette Waste Site Development IHE 5 500 500 500 500 2,000 Island Public Realm including St Helier IHE 5 1,000 1,000 1,000 1,000 4,000 Sewage Treatment Works (Existing Major Project)IHE 5 - 4,000 - - 4,000 Drainage Foul Sewer Extensions IHE 5 1,000 1,000 1,000 1,000 4,000
Information Technology 36,120 30,779 17,091 6,312 90,302
MS Foundation (Major Project) COO OI3 2,570 1,100 - - 3,670 Integrated Tech Solution (Major Project) COO OI3 9,200 11,400 1,400 - 22,000 Replacement assets COO OI3 5,000 5,000 5,000 2,500 17,500 Pride Software - JG NON MIN OI3 - 200 - - 200 Phoenix Software - Viscounts NON MIN OI3 45 - 300 - 345 Court Digitisation NON MIN OI3 1,648 951 831 87 3,517 Regulation Group Digital Assets IHE OI3 1,290 1,230 - - 2,520 Next Passport Project JHA OI3 - 998 - - 998 Combined Control IT JHA OI3 2,000 - - - 2,000 Electronic Patient Records JHA OI3 667 - - - 667 Electronic Document Management Solution COO OI3 500 1,000 1,000 - 2,500 Cyber (Major Project) COO OI3 6,500 1,200 - - 7,700 Customer Relationship Management COO OI3 - 2,000 2,500 - 4,500 IT for Migration Services COO OI3 1,000 - - - 1,000 Service Digitisation COO OI3 1,000 1,000 - - 2,000 Jersey Care Model HCS OI3 1,300 800 500 400 3,000 Digital Care Strategy (Major Project) HCS OI3 3,400 3,900 5,560 3,325 16,185
Replacement Assets 10,309 6,916 9,562 7,200 33,987
Replacement Assets and Minor Capital CYPES 1 200 200 250 250 900 Replacement Assets (Various) HCS 2 3,250 2,600 2,750 2,750 11,350 Sports Division Refurbishment IHE 3 1,300 200 - - 1,500 New Skatepark (net of Port of Jersey Funding) IHE 3 685 - - - 685 Refit & Replacement of Fisheries Protection Vessel IHE 5 - - 2,800 - 2,800
& Auxiliary Vessels
Replacement Assets and Minor Capital IHE 5 3,500 3,500 3,500 4,000 14,500 Minor Capital JHA None 236 166 62 - 464 Minor Capital-Police JHA -Police None 200 200 200 200 800 Equipment Replacement JHA -Police None 170 50 - - 220 Replacement of Aerial Ladder Platform JHA None 768 - - - 768
Total 2021 2022 2023 2024 2021-2024
Department CSP (£000) (£000) (£000) (£000) (£000) Estates including new Schools 43,511 29,562 33,106 40,730 146,909
Jersey Instrumental Music Service Premises CYPES 1 - 2,000 1,120 1,480 4,600 VCP Replacement School (Major Project) CYPES 1 - 1,000 2,000 14,000 17,000 Le Squez Youth Centre/Community Hubs CYPES 1 - 2,000 2,300 - 4,300 North of St. Helier Youth Centre CYPES 1 - 2,000 1,250 1,000 4,250 St Aubin Fort Upgrade CYPES 1 - 500 500 - 1,000 Mont a l'abbe secondary school (Major Project) CYPES 1 - - 1,350 6,000 7,350 Redesign of Greenfields (Major Project) CYPES 1 - 1,250 2,500 3,250 7,000 Vehicle Testing Centre (Major Project) IHE 5 2,000 3,175 1,300 - 6,475 Conversion Courtroom 1 Magistrates Court NON-MINS None 440 - - - 440 States of Jersey Police Firearms Range JHA 2 1,200 - - - 1,200 Prison Improvement Works - Phase 6b IHE None 90 - - - 90 Prison Phase 7 JHA None - - 2,263 - 2,263 Prison Phase 8 JHA None 666 1,609 133 - 2,408 Dewberry House (Sexual Assault Referral Centre)JHA-Police 1 1,800 500 - - 2,300 Piquet House - Family Court NON-MINS None 1,071 779 - - 1,850 Health Services Improvements (including vital IT Investment) HCS 2 5,000 5,000 5,000 2,000 17,000
Five Oaks Refurbishment HCS 2 2,550 - - - 2,550 L(Major Project)earning Difficulties - Specialist Accommodation HCS 2 2,000 3,300 4,050 - 9,350
Rouge Bouillon Site review outcome IHE None 2,000 5,000 7,000 8,000 22,000 Reorganisation of Secondary Schools CYPES None - - - 5,000 5,000 Our Hospital (Major Project) HCS 2 20,000 - - - 20,000 Fort Regent (Major Project) IHE OI3 3,000 - - - 3,000 Office Modernisation (Major Project) OCE OI3 650 460 2,340 - 3,450 In-patient/support services refurbishments HCS 2 1,044 989 - - 2,033
Reserve for Central Risk and Inflation T&E None 1,500 1,800 2,000 2,000 7,300 Funding
TOTAL CAPITAL PROGRAMME 117,373 98,125 81,724 74,142 371,364 Table 17 -Detailed capital programme
General Revenue Income
General tax revenues
General tax revenues provide the main source of funding for the Government, with four main tax types:
Income Tax The Government levies a tax on two sources of income.
Firstly, the income earned by individuals in the form
of personal income tax and, secondly, tax levied on companies through corporate income tax
Goods and Services Tax Goods and Services Tax (GST) is a tax on the supply of
goods and services in Jersey. GST is charged at 5% on the majority of goods and services supplied in Jersey, including imports
Imp t (excise) Duties Imp t (excise) duties are levied on the importation of
specific items - namely road fuel, alcohol, tobacco and motor vehicles
Stamp Duty and Land Stamp Duty is levied on the purchase of properties Transactions Tax bought on the Island and the registration of wills of
Jersey immovable property. Land Transactions Tax is levied on share transfers involving shares which give the owner the right to occupy property in Jersey
Funding public expenditure
The Government has two main sources of general income to fund ongoing, annual expenditure.
2021 Estimate 2022 Estimate 2023 Estimate 2024 Estimate
(£000) (£000) (£000) (£000)
General tax revenue 747,484 802,373 851,000 899,653 Other Government income 58,866 60,779 64,560 66,264
Total States Income 806,350 863,153 915,559 965,916 Table 18 -Funding Public Expenditure
Revised income forecasts for autumn 2020
Covid-19 has caused significant disruption to the economy, with the necessary restrictions put in place to save Islander s lives effectively closing large parts of the economy and affecting the tax base. While restrictions have been partially eased, the speed of the recovery and the timing and extent of any further easing or re-imposition of restrictions remains uncertain. The Income Forecasting Group s forecast has been informed by the independent economic forecast produced by the Fiscal Policy Panel.
The Income Forecasting Group s revised forecast of total States income as at autumn 2020 reflects:
The Fiscal Policy Panel s economic assumptions of August 2020 and
other related economic data for Jersey
General revenues out-turn for 2019
Initial information on general revenues for Quarters One and Two 2020 Forecasts from Treasury for other income
Latest available out-turn data from Revenue Jersey, and
Intelligence from the Income Forecasting Group affecting future
forecasts.
The autumn forecast is the second produced in 2020 and covers the years 2020-24 in order to cover the whole of the Government Plan period.
The forecast assumes previous policy assertions of Ministers in respect of imp ts duties and growth in earnings/RPI for personal allowances. It is before additional yield arising from tax compliance measures and increases to ISE fees in this Plan.
Central Forecast 2019 2020 2021 2022 2023 2024
£ 000 (Outturn)
Income Tax 585,000 554,000 558,000 603,000 642,000 674,000 GST 89,704 78,210 84,610 90,910 94,510 98,310 Imp ts Duty 62,879 67,716 67,986 69,979 71,037 71,485 Stamp Duty 34,898 29,083 30,953 30,249 31,118 32,023 Bad Debts (3,235) (9,000) (6,000) (6,000) (3,000) (3,000) Other Income 71,434 59,069 58,866 60,779 64,560 66,264
Total States Income 840,680 779,079 794,415 848,918 900,224 939,081
Autumn 2019 (forecast) 850,986 875,459 909,802 947,762 985,010 Variation (10,306) (96,380) (115,387) (98,844) (84,786) -1.2% -11.0% -12.7% -10.4% -8.6%
Table 19 - summary of autumn 2020 forecast
£ |
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1,000,000 |
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900,000 |
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800,000 |
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700,000 |
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600,000 |
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2018 2019 2020 2021 2022 | 2023 | 2024 |
| |
Autumn 2020 forecast Spring 2020 forecast | Outturn |
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Downside scenario (spring 2020) Government plan 2020-23 (autumn 2019) |
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Figure 8 - Range of forecasts for States income (Autumn 2020) |
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2021 Allocation (£000) | 2022 Estimate (£000) | 2023 Estimate (£000) |
| 2024 Estimate (£000) |
Income Tax[5] 551,500 GST 84,610 Imp t duties 67,986 Stamp duty[6] 31,288 Other Income 58,866 | 596,500 90,910 69,979 30,584 60,779 | 638,500 94,510 71,037 31,453 64,560 |
| 670,500 98,310 71,485 32,358 66,264 |
Central scenario 794,250 Domestic Compliance 8,600 Additional Tax measures 0 Additional ISE Fees 3,500 | 848,753 10,900 0 3,500 | 900,059 12,000 0 3,500 |
| 938,916 13,500 10,000 3,500 |
Total States Income (including additional measures) 806,350 863,153 915,559 965,916 Table 20 - Total States income
Summary of autumn 2020 forecast
The overall changes from the autumn 2019 forecast are:
Personal income tax
The personal income tax forecast comprises several components that have differing economic sensitivities. The Income Forecasting Group have made several adjustments to account for the effects of Covid-19 and the restrictions put in place in response. These adjustments, together with the updated Fiscal Policy Panel economic assumptions, and additional data, reduce the autumn 2019 forecast by £63m in 2020, decreasing to a £42 million reduction in 2023.
Corporate income tax
The recent broadening of the corporate tax base, and the differential effects of the pandemic, has led to the Income Forecasting Group splitting the corporate tax forecast on a sectoral basis. Additional adjustments have been made to reflect the impact of restrictions on activity on sectors subject to a positive rate of tax. Updated information for the 2019 year of assessment has resulted in an increase of £5 million to the 2020 forecast. However, as tax is collected one year in arrears, from 2021 the forecast
is reduced by £20m with a £17 million reduction by 2023, as a result of the impacts of the current and anticipated impacts of Covid-19 on the economy.
GST, international services entities fees and import GST
The restrictions to activity arising from Covid-19 have led to a reduction in sales revenues, and hence GST receipts, in 2020. Work has been undertaken to estimate the sectoral impact of the restrictions. The Income Forecasting Group continues to believe that there will be a persistent impact on GST receipts continuing in 2021, with an implicit judgement that there would be an enduring change in consumer behaviour following the significant increase in internet shopping during the lockdown. This leads to a reduction in the autumn 2019 forecast of £18.5 million in 2020, decreasing to £9.5 million in 2023. Increases in International Services Entities (ISE) fees are proposed in this Government Plan.
Imp ts duties
Available in-year data suggests that the restrictions in place to mitigate
the health impacts of Covid-19 have produced a varied effect on excise duties. For example, the closure of hospitality outlets resulted in a dramatic fall in on-trade sales of alcohol, and the closure of schools and businesses led to a significant reduction in road fuel consumption. However, these decreases have been somewhat balanced by an increase in volumes
of tobacco being put to duty, as a result of reduced duty-free sales. The revised Fiscal Policy Panel economic assumptions continue to give a reduction to the presumed duty rates in future years, with the autumn 2019 forecast being reduced by £0.5 million in 2020, £2.5 million in 2021, £3.0 million in 2022 and £3.7 million in 2023.
Stamp Duty
Despite the pandemic causing significant disruption in the housing market, the easing of lockdown restrictions has permitted a resurgence in property transactions. The updated Fiscal Policy Panel economic assumptions for annual house prices and transactions have improved since the spring 2020 forecast, but now suggest a slower recovery in future years. The in-year data and revised assumptions continue to cause a long-term reduction to the autumn 2019 forecast from £6.3 million in 2020 to £7.9 million in 2023.
Additional tax measures
As part of balancing the budget by 2024, the Council of Ministers has
set an initial target of £10 million per annum of additional taxation arising from work to be undertaken in respect of taxation of medicinal cannabis, broadening the base of corporate income tax and reviews of commercial and residential stamp duty.
Domestic compliance
The rebalancing and efficiencies programme includes additional income arising from more efficient collection of taxes income, and reducing non- compliance among taxpayers.
Other Government incomes
In addition, the Government receives income from four other sources, as set out in the table below.
Island-wide rates The 12 parishes collect an Island-wide rate, which is levied by the
Government. The Island-wide rate is increased annually, based on the March Retail Price s Index, which is proposed to the States by the ComitØ des ConnØtables. Rates were frozen in 2020.
Income from dividends The principal contributions to this area of income arise from the
and returns dividends paid by those utility companies in which the Government has
a shareholding interest. The other main source of income in this area is the return paid by the States of Jersey Development Company.
Non-dividends A number of income streams contribute to this area, many of which
are fairly small and relatively simple to forecast, such as income tax penalties, Crown revenues and miscellaneous interest, fees and fines. The investment returns from the Consolidated Fund and Currency Fund benefit from the pooled investments in the Common Investment Fund. The returns are based on the investment strategies of the two funds and the holding balance available to be invested.
Returns from Andium The returns from Andium Homes and the Housing Trusts arise from the Homes and Housing incorporation of the housing department in July 2014. The company Trusts is obliged to make a return based on the transfer agreement and an
agreed rental and return policy.
The annual increase in the level of social housing rents for 2021 is normally determined by the September 2020 RPI figure which will
be released in late October 2020. Once the September RPI figure is published the Minister for Children and Housing and the Minister for Treasury and Resources will give consideration as to whether it would be appropriate to override the formula that sets the levels of Andium rents and the Guarantor s return paid to the Treasury and Exchequer.
A freeze in the rent levels and the Guarantor s return paid by Andium Homes to the Treasury & Exchequer will lead to a reduction in
the expected return due to Treasury & Exchequer for 2021 and all subsequent years.
A freeze in rent levels will also lead to a reduction in Income Support expenditure for 2021 and all future years. If a freeze is agreed, Andium Homes will absorb the net cost into their business model for 2021 and all future years.
Further proposals will be brought forward in 2021 to review the social housing rents policy, which will be accounted for in the next Government Plan.
Agreements are already in place with those Housing Trusts that have moved to the 90% market rent level policy. This income stream reflects the historic income contribution made from the housing stock that was transferred to Andium.
2021 Estimate 2022 Estimate 2023 Estimate 2024 Estimate
(£000) (£000) (£000) (£000)
Island-wide rates 13,486 13,809 14,155 14,523 Income from dividends and returns 8,133 8,568 8,918 9,347 Non-dividends 5,473 5,784 7,967 7,949 Returns from Andium Homes and Housing Trusts 31,774 32,618 33,520 34,445
Central scenario 58,866 60,779 64,560 66,264 Table 21 - Other Government income
Other income sources
In addition, Government departments receive money from fees and charges for individual services. These amounts are included within individual net expenditure allocations and are estimated at £101 million in 2021. The number of different sources of income reflects the variety of services provided by the Government. This includes fees for private patients at the hospital, school fees, fees for the disposal of inert waste, planning fees, and income from rents and our sports facilities.
Special Funds also receive income designated to them, as well as the investment returns on fund balances. This is then used for expenditure in line with the purpose of the fund. This is covered in more detail in Section 8.
Budget Proposals
Income tax (personal taxation) exemption thresholds
The income tax exemption thresholds set the income level at which an individual, or married couple, or civil partnership, start to pay personal income tax. An individual or couple with income below the income tax exemption threshold that applies to them will not pay any personal income tax. In addition, since the Long-Term Care contribution is calculated by reference to their personal income tax position, they will not pay any Long-Term Care contribution.
Furthermore, every individual or married couple who is taxed by reference to the marginal rate calculation also benefits from the income tax exemption thresholds. This means that the relevant income tax exemption threshold reduces the amount of income that is subject to tax at the marginal rate. Increasing the thresholds will therefore benefit the vast majority of taxpayers.
Normal policy has been to uprate the standard income tax exemption thresholds by the lower of the Average Earnings Index and the June Retail Price Index figures published by Statistics Jersey.
As average earnings growth is 1.1% and the June RPI inflation is 0.5%, Ministers propose that existing policy is maintained for 2021 and that the standard thresholds are increased by the June RPI inflation rate of 0.5%. This is assumed in the Income Forecasting Group forecast.
The impact for taxpayers of the proposal on the standard income tax exemption thresholds is:
Type of taxpayer 2020 actual 2021 proposed Proposed Tax reduction @
increase 26%
Single person £15,900 £16,000 £100 £26 Married couple/civil partnership £25,550 £25,700 £150 £39
Table 22 - Standard income tax exemption thresholds for 2020 and 2021 years of assessment
As the following table highlights, the income tax exemption thresholds in Jersey are greater than the equivalent tax allowances in Guernsey, the UK and the Isle of Man.
Jersey (2021 proposed) Guernsey (2020) UK (2020/21) Isle of Man (2020/21)
£16,000 £11,575 £14,250 £12,500
Table 23 - Single person exemption thresholds/personal allowance across comparable jurisdictions
Following an amendment to the proposed Government Plan, we will increase the Child Allowance by £60 and the Additional Allowance by £90.31
31 see Appendix 7 (6)
[7]Allowance 2020 Actual 2021 Actual Increase Tax Reduction @ 26%
Child Allowance £3,000 £3,060 £60 £16 Additional Allowance £4,500 £4,590 £90 £23
Following an amendment to the proposed Government Plan, we will increase the maximum Child Care Tax Relief that can be claimed by £123; and the maximum Enhanced Child Care Tax Relief that can be claimed by £320 in 2021.[8]
Type of Relief 2020 Maximum Claim 2021 Maximum Claim Increase Child Care Tax Relief £6,150 £6,273 £123
Enhanced Child Care Tax Relief £16,000 £16,320 £320
Second earner s allowance
Married couples, taxed by reference to the marginal rate calculation, are entitled to the married couple s income tax exemption threshold (see above) and, where both spouses are in receipt of earnings (e.g. employment income, self-employment income or pension income) they are also entitled to an allowance known as second earner s allowance . Second earner s allowance reduces the income tax payable on the earnings of the lower-earning spouse.
This differs from cohabiting (unmarried) couples, where each partner is entitled to the single person s income tax exemption threshold.
Prior to the 2018 year of assessment, this differing treatment of married couples and cohabiting couples meant that it had been tax beneficial for couples, where both partners were in receipt of earnings, to cohabit, rather than get married.
In the Budget 2018, second earner s allowance was increased, so that the married couple s income tax exemption threshold, plus the second earner s allowance, was equal to two single person s income tax exemption thresholds removing this form of discrimination.
This policy has been maintained in the 2019 Budget and Government Plan 2020-2023 and is sustained in the proposed increase in this
Government Plan.
Proposed second earner s allowance
Second earner s allowance (2020) (2021) Increase (and tax benefit at 26%)
£6,250 £6,300 £50 (£13)
Table 24 - Second earner s allowance proposal for 2021
Standard allow- Second earner s Total Income Type of Taxpayer ance proposed allowance pro- Tax Threshold (2021) posed (2021) Applicable
Taxing the profits of companies in the cannabis industry
Under the current rules, the standard rate of corporate income tax is 0%, though certain types of company are subject to tax rates of either 10% or 20%. In the Government Plan 2020-23, it was announced that consideration was being given to also taxing the profits of companies within the cannabis industry.
In order to be in a position to bring forward a scheme for the taxation of these companies as soon as a proposal is fully developed, an amendment is being made to the Income Tax Law which allows the development of a scheme for taxing the profits of companies within the medicinal cannabis sector through the making of Regulations.
Revision of fees payable by International Services Entities (ISEs)
The finance sector, whose goods and services are predominantly supplied to overseas customers, can pay a fee to be listed as an International Services Entity, essentially allowing them to reclaim GST but not otherwise to participate in the GST system.
Following work with Jersey Finance Limited and affected sectors, the Minister is proposing an increase in International Services Entities fees across the board.
It is anticipated these increases will generate £3.5 million from 2021.
GST De-minimis
The reduction in the GST de-minimis level from £240 to £135 was proposed in the Government Plan 2020-23 and was agreed by the States Assembly in December 2019. This has been implemented by means of a new GST Direction with effect from 1 October 2020. The reduction was due to take effect from 1 July 2020 but was postponed by the Minister, considering the impact of the pandemic on Islanders. The introduction
of the new level with effect from 1 October 2020 will encourage local spending.
Imp t (Excise) duties
Excise duties are levied on the importation/manufacture of tobacco products, alcoholic beverages, road fuels and motor vehicles. Ministers proposals regarding each of these duties for 2021 and subsequent years are outlined below.
The increases in excise duties will take effect at midnight on 31 December 2020.
Tobacco
Ministers are aware that the duty on tobacco products has been subject to a wide range of increases in the recent past (over the last five Budgets, increases have ranged from under 5% to nearly 10%).
The Government Plan 2020-2023 signposted to consumers proposed increases in the cost of tobacco over the term of that plan by prevailing RPI inflation plus 5% in each of the years 2021, 2022 and 2023 in the expectation that this would create a change in behaviour.
While a whole package of measures is required, as set out in the Government s Tobacco Strategy, international research and studies indicate the price of tobacco products is strongly linked to consumption, particularly regarding the uptake among children and young people, and population harm. Hence Ministers are proposing a 5.5% increase (equating to June 2020 RPI inflation plus 5%) in the duty levied on tobacco products (with the exception of cigars and hand-rolling tobacco, which will be subject to a greater increase see below) for 2021.
In recent Budgets, Ministers have established a policy of closing the differential between the duty charged on hand-rolling tobacco and the tobacco contained in cigarettes, on the basis that hand-rolling tobacco is as harmful as other tobacco products. Ministers are proposing this policy is extended in this government plan to the tobacco contained in cigars. In 2020 there is a nearly £38 per kg of tobacco differential in the amount of imp ts duty charged on hand-rolling tobacco versus the tobacco contained in cigarettes and a £104 per kg differential in the amount of imp ts duty charged on cigars.
In order to continue the policy of closing this differential, Minsters propose to increase the duty on hand-rolling tobacco and cigars by 8.5% (June 2020 RPI inflation plus 8%). Provided this policy is maintained, modelling indicates that the duty on the tobacco in cigarettes and hand-rolling tobacco should be aligned in 2023 and that duty on the tobacco in cigarettes and cigars should be aligned in 2029.
The proposed increase in duty for tobacco products for 2021 of 5.5% equates to a 41p increase in the duty on a standard packet of 20 cigarettes (up from £7.31 per packet to £7.72). The increase on hand-rolling tobacco of 8.5% equates to a £2.05 increase per 50g pouch (up from £24.21 per pouch to £26.26).
Ministers intend to review the case or need to tax vaping in order to dis-incentivise the use of vaping outside of strategies to reduce tobacco consumption.
Road fuel
We have carefully considered the impact of fossil fuels on the environment, both in terms of air pollution and in their contribution to global warming. In the light of the declaration by the States Assembly of a climate emergency in May 2019, fuel duty was increased significantly in the last Government Plan, for both petrol and diesel. The plan also signalled above-inflation increases would apply for 2021 and 2022 in order to encourage drivers to switch from fossil fuel vehicles to cleaner vehicles, and to public transport, cycling and walking, and to further contribute to the Climate Emergency Fund.
To maintain this policy and to continue to apply downwards pressure on excessive consumption, Ministers are proposing to increase fuel duty in this Budget by the rate of inflation and to levy an additional 2 pence per litre for the Climate Emergency Fund.
Even after these increases, road fuel in Jersey continues to be less expensive than in Guernsey, France and the UK.
Alcohol
In determining their proposals on excise duties on alcoholic beverages, Ministers must consider the overall financial and economic position and the advice they receive from public health officials.
For Government Plan 2021-2024, Ministers have carefully considered
the balance between the health benefits of further increasing the duty on alcohol with the need to provide continuing support to the hospitality sector due to Covid-19. Having taken account of the lengthy closure of businesses during 2020, and also of the recent introduction of minimum- pricing for off-licence sales, Ministers propose that, exceptionally, for 2021 duty on alcohol is frozen.
RPI impact of increases in imp ts
The estimated impact of all the proposed imp ts measures is an increase in RPI of 0.1%.
Stamp Duty and Land Transaction Tax (LTT)
We support various assisted ownership schemes to help households who cannot afford to purchase a property on the open market suitable for their needs.
Households can take advantage of an assisted ownership scheme if they meet certain qualifying criteria. These criteria include Entitled residential status and maximum income levels.
Under an assisted ownership scheme, a purchaser is only required to finance part of the market value of the property by way of a mortgage and savings (this is sometimes described as the affordable price). The
[9]difference between the market value of the property and the affordable price is deferred. But the amount deferred will be held within the scheme in perpetuity. This is to ensure that the property cannot be sold on the open market in future.
Under the current rules Stamp Duty/LTT is calculated based on the higher of the consideration paid in respect of a transaction or the market value of the property. As such, a person buying a property through an assisted ownership scheme would be charged Stamp Duty/LTT based on the market value of the property and not the affordable price paid.
In order to assist households with the affordability of buying a house under an assisted ownership scheme, the Minister is proposing to reduce the amount of Stamp Duty/LTT that such households are required to pay when purchasing the house.
Under this proposal the Stamp Duty/LTT will be calculated based on the affordable price rather than the market value of the property.
The conditions for qualifying for relief will be:
The assisted ownership scheme must be approved by the Minister for
Children and Housing
The purchaser(s) must be first time buyer(s)
The purchaser is allocated to purchase the property through the
affordable housing gateway
Where the purchaser is not allocated the property through the
affordable housing gateway then the assisted ownership scheme must be approved by the Minister for Treasury and Resources.
Further to an amendment to the proposed Government Plan, we will also increase the Stamp Duty rates and Land Transaction Tax for residential property at the upper-end of the market (properties over £2 million).[10]
Progress of tax reviews
Current Year Payment Basis
The Government Plan 2020-23 committed Ministers to considering the options for bringing all taxpayers on to a current year payment basis. That review has been accelerated in the light of Covid-19, to provide a short-term cash boost to those most financially affected by the lockdown measures, especially self-employed people and prior-year basis employees, whose income in 2020 has reduced.
Consultation has recently closed regarding the proposals, and the Minister has lodged a proposition to move all personal taxpayers to a Current Year Basis. The terms of the payment of the 2019 tax liability will be set out in regulations, which the Minister will publish before the proposal is debated in the States Assembly on 3 November 2020. The regulations will need to be made by the Assembly no later than 31 March 2021.
If the Assembly agrees to the proposal, the Minister will then propose in next year s Government Plan for these payments to be ring fenced to the repayment of the Covid-19 debt, so this debt does not become a long-term issue for future generations.
Introduction of Independent Taxation
In November 2019, the States Assembly agreed a proposed roadmap for changes to Jersey s personal tax system, ultimately to introduce a system of independent taxation.
This is a significant change to the personal tax system that will affect all taxpayers in a marriage, or civil partnership, and have financial implications for thousands of taxpayers who are currently jointly assessed. Research indicates that moving immediately to independent taxation would
require approximately 8,300 married couples and civil partners to pay additional tax. Managing the financial impact on individuals is a particularly challenging aspect of the proposals, and further public consultation is planned in 2020 and 2021.
As a transitional step, it is anticipated joint access to tax information will be introduced for couples in a legal relationship in 2021. It remains our goal to implement full independent taxation for the year of assessment 2022.
Improving tax administration
As part of Budget 2017, the Income Tax Law was amended to include a new regulation-making provision, with a view to requiring Jersey financial institutions to report financial account information on Jersey residents
to the Comptroller. Over summer 2020, views have been sought from businesses that would be affected by the Regulations, asking for views on the proposal. Draft regulations will soon be shared with affected parties before being lodged by the Minister. The intention is that 2021 account information would be first reported to the Comptroller in 2022, by banks in the first instance.
Proposals for new business interest rules
The business interest project is looking at how businesses obtain tax relief for the cost of loans and borrowings used to purchase assets and businesses. This area of tax is being reviewed because there are a number of inconsistencies in the current regime for giving relief for the cost of loans which has resulted in tax relief not being given on some commercial transactions and in taxpayers misunderstanding their obligations.
If introduced, new rules will apply to business transactions undertaken by individuals and companies. The existing regime includes several tax concessions that will be withdrawn if a replacement regime is introduced.
The project s goals are to introduce a system of relief that satisfies the following principles:
Reinforces Jersey s international competitiveness
Complies with international standards
Provides legal certainty and improves taxpayer compliance
Allows a robust approach to tax avoidance and prevents relief for
excessive interest
Has rules that are reasonably simple to apply in practice.
Several meetings have been held with the accountancy profession, and a detailed framework is being developed for consultation. It is anticipated the project will conclude in 2021.
Review of tax residency rules
We have begun to examine options for modernising the income tax law that governs the tax residence of individuals in Jersey.
The review will examine international best practice and guidance and will ensure that any new regime for establishing tax residency underpins Jersey s future competitive position as an international finance centre.
Taxation of transactions involving enveloped property
Holding real estate within a company is often referred to as enveloping. Currently, neither Stamp Duty nor Land Transaction Tax arises where the ownership of Jersey commercial real estate is transferred by way of a share transfer.
Proposals for the taxation of these share transactions are now fully developed and were consulted on in 2019. It is proposed enveloped property transfers are taxed at broadly the same rates that are applied to non-enveloped transactions.
Law drafting is nearing completion and a further consultation exercise with stakeholders will shortly take place on the draft legislation. It is expected the draft law will be debated by the States Assembly in early 2021.
Improved income collection
Investment in resources to improve income collection (principally
from improved compliance with tax law) has seen further recruitment
into Revenue Jersey. Following the publication of its first compliance programme under new ways of working, work in 2020 has been adjusted to take account of the Covid-19 lockdown and has principally focused on tax compliance in the legal profession. Taking account of the slower-than- anticipated commencement of compliance work (resulting from lockdown), improved collection, as part of the Efficiencies Programme, is estimated to increase revenues by £6.35 million in 2020, rising to £13.5 million in 2024.
International tax reform at the OECD
The increasingly digitalised economy has created new business models which continue to challenge international tax rules. The OECD is currently examining how cross border profits within these businesses are taxed, and what global effective corporate tax rates they pay.
International tax standards are always evolving, and Jersey has a proven track record of successfully adopting and adapting to such changes. Jersey will continue to advocate for the maintenance of the principle of the level-playing field among tax jurisdictions, so that new standards are of global application and are to be applied without discrimination.
We are engaging constructively and extensively in these discussions at the OECD. We are also working with industry representatives in Jersey so that the Island will be ready to respond to any requirements arising from new international tax standards if it transpires that any future changes are needed.
Work in this area is a cross-department effort between Revenue Jersey, External Relations and Financial Services and Digital Economy and is also referenced in Part Two - Economy and Skills.
New Reviews for 2021:
Review of Stamp Duty
Stamp duty is charged on transactions involving the transfer of Jersey real estate from one person to another.
Currently, the same rates of stamp duty apply to residential property and commercial property where the property s stamp duty value does not exceed £500,000. Where the value exceeds £500,000, higher rates of stamp duty are applied to residential property. The government is looking at the rates of tax payable on residential and commercial property and whether the gap between these rates should be changed.
Tax measures and long-term climate action
In February 2020, the States Assembly approved P.127/2019 the Carbon Neutral Strategy, which outlined a road map for developing a long-term climate action plan, which will now be lodged with the States Assembly in 2021. This outlined Jersey s level of ambition and timescale for, and the necessary policies to achieve, carbon neutrality. A critical factor in achieving carbon neutrality was the acceptance that a long-term policy will entail an investment by current generations in the interests of future generations.
The use of tax measures and other levers is likely to be pivotal in encouraging changes in behaviour by ensuring polluters and/or users pay for their actions and there is sufficient revenue for investment in infrastructure or mitigating measures. Early work has begun to assess the suitability of tax measures to meet these objectives and bring forward proposals for public consultation and then inclusion in the 2022 Government Plan for implementation thereafter.
Measures to achieve balanced budgets by 2024
Including some of the above, work will progress through the year to identify measures to close the forecast budget deficit. Included within that is a target of at least £10 million per annum to be delivered through tax measures, including broadening the tax base, the taxation of medicinal cannabis growing and production and Stamp Duty.
The Government of Jersey Balance Sheet and States funds
The balance sheet provides a snapshot of our financial position at the end of any given year. It sets out what we own, what we owe and what is owed at any that point in time. This provides an understanding of the long-term financial risks that we face.
The balance sheet is comprised of four main components:
- Non-current assets: This considers the longer-term assets that we have available to deliver services and outcomes. It includes the buildings that we own, along with other equipment that will be used over many years (e.g. IT, vehicles, roads, sea defences, and other infrastructure), the long- term strategic investments that we have made to deliver a return, and loans that we have issued to other organisations.
- Working capital or net current assets: These represent the net day-to- day resources available to us. These include the cash that is held in our bank accounts, the amount owed to us from creditors within the next 12 months; and the amount we need to repay to individuals and organisations within the next 12 months. The Government has high net working capital, which means that we have more than enough current assets to meet all of our short-term financial obligations.
- Non-current liabilities: Conversely, our liabilities include loans and bonds that have been taken out to fund capital projects, the long-term liabilities related to our Pension funds, and any other provisions that we need to make as a result of past actions and activities where there is a strong obligation that these will need to be repaid.
- Taxpayers equity: Taxpayers equity represents the accumulation of previous surpluses and deficits and is equal to the total net assets that we hold.
Balance Sheet Forecasts
In recent years, our Island has maintained a strong balance sheet position, and this is forecast to be maintained throughout this Government Plan. Our property and equipment assets will increase as we invest in capital projects. At the same time, we will protect our capital reserve funds, reinvesting returns to ensure that our investment balance grows to help manage risks and protect the long-term sustainability of the Island s finances.
2020 2021 2022 2023 2024 (£000) (£000) (£000) (£000) (£000)
Non-current assets
Property and equipment 3,959,546 4,029,052 4,072,276 4,096,648 4,113,625 Loans to external organisations and other assets 248,567 253,227 258,257 257,477 255,767 Strategic investments 376,192 376,192 376,192 376,192 376,192 Investments 3,019,363 2,897,840 2,832,153 2,883,580 3,033,584 Total non-current assets 7,603,668 7,556,311 7,538,878 7,613,897 7,779,168
Working capital (net current assets) 349,443 527,788 579,607 641,212 674,714
Non-current liabilities
Provisions (24,989) (24,989) (24,989) (24,989) (24,989) Borrowing (305,926) (641,979) (713,308) (708,427) (702,296) Pension liabilities (443,764) (475,587) (480,785) (485,660) (490,170) Total non-current liabilities (774,679) (1,142,555) (1,219,082) (1,219,076) (1,217,455)
Total net assets 7,178,432 6,941,544 6,899,403 7,036,033 7,236,427 Taxpayers equity 7,178,432 6,941,544 6,899,403 7,036,033 7,236,427
Table 27 balance sheet forecast
Consolidated Fund
The Consolidated Fund is the main fund through which we collect tax, other revenues, and spend money in providing services.
All money received by us or on our behalf is paid into the Consolidated Fund, except where specified in law. Expenditure from the Consolidated Fund is approved by the States Assembly in the Government Plan. The Council of Ministers must not lodge a Government Plan which shows
a negative balance in the Consolidated Fund at the end of any of the financial years that the plan covers.
During 2020, the additional expenditure incurred in responding to Covid-19 has meant the Consolidated Fund unallocated balance i.e. the balance after deducting all expenditure budget approvals, including unspent ones, moved from a positive balance to a deficit position of £89 million. In 2021, the lower forecast income and higher expenditure result in a borrowing requirement of £336 million to return the consolidated fund to a balanced position.
Further borrowing is required in 2022, before the borrowing then reduces, as small surpluses are forecast in 2023 and 2024.
There are several planned transfers into the fund to support investment into the Jersey Care Model, capital projects and other expenditure items.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 228,914 0 0 0
Adjustment in respect of Personal Taxation Accrual (318,342)
Opening Balance restated on a cash basis (89,428) 0 0 0 General revenues income 806,350 863,153 915,559 965,916 Departmental expenditure (931,476) (857,555) (843,411) (893,368) Forecast Operating Surplus/(Deficit) (125,126) 5,598 72,148 72,548
Major projects
Capital Programme (117,373) (98,125) (81,724) (74,142) Transfers
HIF to Consolidated Fund Revenue 11,300 13,000 12,160 7,825 Charitable Funds to Consolidated Fund 1,044 989
Loans Funds to Consolidated Fund 0 5,700 0 0 Criminal Offences Confiscation Fund to Consolidated Fund 1,956 1,609 2,396 0
Consolidated Fund Float Working Balance
Consolidated Fund Working Balance (18,326)
Net movement in borrowing required 335,953 71,229 (4,981) (6,231) Closing balance 0 0 0 0
Table 28 Consolidated Fund
Trading Funds
Jersey Car Parking Trading Fund
The Jersey Car Parking trading operation manages the provision of the public parking places that are within the functions of the Minister for Infrastructure. The projections for 2021 and beyond include a considerable reduction in income following the pandemic and lockdown measures in the early part of 2020 and assume a modest return to normality over the coming years.
This reduction in income has also necessitated a review of the capital projects to be undertaken by the trading operation and the figures are adjusted accordingly. Priority is given to maintenance and refurbishment of car parking facilities, with the modernisation programme expected to re-start in 2022.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 13,338 7,274 5,327 4,065 Trading Income 6,199 6,999 7,505 8,030 Expenditure (5,670) (5,672) (5,695) (5,758) Capital Expenditure (6,593) (3,274) (3,072) (3,826)
Closing balance 7,274 5,327 4,065 2,511 Table 29 Jersey Car Parking Trading Fund
Jersey Fleet Management Trading Fund
The Jersey Fleet Management trading operation manages the acquisition, maintenance, servicing, fueling, garaging and disposal of vehicles and mobile plant and machinery on our behalf.
Charges are set to recover the up-front cost of the asset, routine maintenance and servicing, and the costs of managing the fleet operations.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 5,376 4,410 4,769 5,205 Trading Income 4,902 5,042 5,195 5,325 Expenditure (3,008) (3,073) (3,149) (3,243) Capital Expenditure (3,000) (1,750) (1,750) (1,750) Asset Disposals 140 140 140 140
Closing balance 4,410 4,769 5,205 5,677 Table 30 Jersey Fleet Management Trading Fund
Special funds
The Government has several special funds established by individual legislation. This provides the public with the confidence that the funds remain ring-fenced and used for the specific purpose for which they
were established. However, for the purposes of investment, the funds are pooled together into the Common Investment Fund, thus achieving the benefits of economies of scale, and more effective risk management of the overall Government investment portfolio. Each individual fund has its own investment strategy which reflects the long-term aims of that fund, and investment returns are estimated based on the target investment return for each fund.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening Balance 3,019,363 2,897,840 2,832,153 2,883,580 Returns on Investments 43,400 41,900 166,900 172,750 Operational Income 322,494 353,886 365,155 440,458 Operational Expenditure (474,161) (441,164) (466,072) (484,698) Transfers (13,256) (20,309) (14,556) 21,494
Closing Balance 2,897,840 2,832,153 2,883,580 3,033,584 Table 31 movements in Special Funds
Special funds balances 2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Strategic Reserve Fund 890,300 904,900 952,900 1,003,600 Stabilisation Fund 0 0 0 0 The Health Insurance Fund 79,340 62,517 47,467 35,027 The Long-Term Care Fund 35,220 39,566 43,810 46,190 The Social Security Fund 91,746 86,020 75,294 66,818 The Social Security (Reserve) Fund 1,667,068 1,609,813 1,634,638 1,751,338 The Currency and Coinage Funds 107,800 108,600 109,400 109,400 The Jersey Reclaim Fund 14,300 14,300 14,300 14,300 Housing Development Fund (14,665) (13,270) (11,815) (10,290) Climate Emergency Fund 3,097 3,382 3,657 3,272 Fiscal Stimulus Fund 0 0 0 0 Other Special Funds 23,634 16,325 13,929 13,929
Total 2,897,840 2,832,153 2,883,580 3,033,584 Table 32 Special Funds balances
Strategic Reserve Fund
The Strategic Reserve is a permanent reserve and is to be used in exceptional circumstances to protect the Island s economy from severe structural decline, such as the collapse of a major Island industry or from major natural disaster. It forms a critical part of the infrastructure of financial risk management and helps to protect the long-term financial sustainability of our Island. The Strategic Reserve also supports the £100 million of funding, if called upon, for the Bank Depositors Compensation Scheme.
No extra money will be deposited over the Government Plan period due to current economic circumstances, however in the long-term, the Fiscal Policy Panel recommends that the Strategic Reserve continues to grow to a long-term target of 30% of Gross Domestic Product, by retaining earned investments and depositing funds when the economy is expanding.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 876,000 890,300 904,900 952,900
Return on investments 14,300 14,600 48,000 50,700
Closing balance 890,300 904,900 952,900 1,003,600 Table 33 Strategic Reserve Fund
Stabilisation Fund
The Stabilisation Fund exists to support the Island through major economic shocks, with the recent focus of the fund being to manage the effects of Covid-19 and the subsequent worsening of the budget position. We are acting on the Fiscal Policy Panel s advice to utilise the stabilisation fund this year to support economic recovery, and this includes a transfer of
the complete value of the fund to the Consolidated Fund, hence the fund shows a closing balance of zero each year. No contributions into the fund are planned for the next four years, however the long-term aim is to rebuild the fund when enough income is available and the economy recovers.
Health Insurance Fund
The Health Insurance Fund receives allocations from Social Security contributions from employers and working-age adults, and supports the wellbeing of Islanders by subsidising GP visits, the cost of prescriptions and other primary care services. The table reflects the anticipated costs of current services over the period as they are presently provided for.
During this Government Plan period, it is anticipated that the Jersey Care Model will be implemented to deliver an improved system of healthcare provision for all Islanders. It is intended that £28 million of this investment in the JCM will be met from the current balance in the Health Insurance Fund. In addition, £16 million of the Health Digital Project is proposed to be funded from transfers out of the Health Insurance Fund. This, when combined with other cost pressures and planned additional assistance to financially vulnerable patients, means that the value of the fund is planned to reduce as outlined in the table below. This is anticipated to result in the fund holding £35 million at the end of 2024, representing well under one years worth of expenditure.
Given that the ageing demographic will also increase the underlying annual costs to be met by the fund during the 2020s, changes will be needed to maintain a sustainable funding model for primary care costs. Therefore, a further commitment in the 2021-2024 Government Plan is to design and implement this sustainable funding model in 2021 for approval by the 2022-2025 Government Plan. It is envisaged this new model will be implemented alongside the Jersey Care Model.
The Minister for Social Security will bring forward legislation to create a transfer of £11.3 million from the Health Insurance Fund, to support the Jersey Care Model and the Health Digital Project costs budgeted for 2021.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 97,679 79,340 62,517 47,467 Return on investments 1,600 1,400 3,000 2,250 Contributions Income 32,778 36,781 37,877 39,006 Benefits and other expenditure (41,417) (42,004) (43,767) (45,871) Transfers - Jersey Care Model & Digital Care (11,300) (13,000) (12,160) (7,825)
Closing balance 79,340 62,517 47,467 35,027 Table 34 Health Insurance Fund
Long-Term Care Fund
The Long-Term Care Fund provides universal and means-tested benefits to individuals with long-term care needs, and is funded through a central grant from general revenues and income-related contributions from income tax payers.
As part of the Government Plan 2020-23, an increase in the contribution rate of an additional 0.5% was agreed and implemented. The Long-
Term Care rate now stands at 1.5%. Most people pay less than 1.5% of their income into the Long-Term Care Fund each year, because of the availability of allowances and reliefs, particularly marginal relief within the personal income tax system.
The current rate is expected to enable the balance on the Long-Term Care Fund to continue to increase throughout the period of the Government Plan. It is anticipated that there will need to be further increases in the Long-Term Care contribution rate in future years, as the number and proportion of older people with long-term care needs is expected to increase. However, the implementation of the Jersey Care Model, and
the proposed introduction of the new Care Needs at Home Benefit, are intended to reduce the number of individuals who will need a care home placement through the provision of alternative care options and improved support at home and in the community. These actions are expected to reduce the extent of future increases in Long-term Care expenditure.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 30,972 35,220 39,566 43,810 Return on investments 300 400 400 400 Existing Long-Term Care charge 31,889 34,471 37,264 38,866 Grant to Long-Term Care Fund 31,000 32,100 33,300 34,200 Benefits and other expenditure (58,941) (62,625) (66,720) (71,086)
Closing balance 35,220 39,566 43,810 46,190 Table 35 Long-Term Care Fund
Social Security Fund
The Social Security Fund receives allocations from Social Security contributions from employers and working-age adults and in normal times, an annual States Grant. The Fund supports the wellbeing of Islanders by providing old age pensions and a range of working age benefits.
Following a States debate in 2020, it was agreed that no grant would be paid into the Social Security Fund in 2020 to allow £65.3 million of cash, in the consolidated fund, to be allocated to support Covid-19 related financial pressures. Additionally, due to the exceptional financial pressure being faced by the Government as a consequence of the pandemic, it has been proposed that the States Grant is not paid in 2021, 2022 and 2023, allowing an additional estimated £235 million to be allocated to urgent financial pressures. This is a critical element in enabling the Government to cope with the lost income and additional costs associated with Covid-19 and fund its capital and revenue expenditure programmes. If we don t
do this, borrowing will need to increase over the period to fund these additional transfers.
In addition to the removal of the States Grant, the Social Security Fund is also facing reductions in contributions income because of:
The economic downturn resulting from the response to the pandemic
The decision to reduce employee social security contributions by 2%
from October 2020 to June 2021 as part of the Economic Stimulus programme
The decision to enable businesses and self-employed people to defer
social security contributions, payable in the first 2 quarters of 2020, to be repaid over 2 years.
In 2020, the Social Security Minister has managed these pressures by transferring resource from the Social Security Reserve Fund. The Reserve has substantial financial assets which have built up over many years. It is proposed that a proportion of these assets are now utilised to help the Government to manage the extreme financial pressures it is currently facing. It is recognised that the temporary removal of the States Grant and other reductions in income, come at a time when the ageing population demographic is also placing increasing pressure on the Fund.
The Council of Ministers will undertake an urgent review of the sustainability of the Social Security Funds. This will draw on the work already completed, which has gathered views on the future of the fund, contributions and benefits. The review will include a long-term plan and funding model for the Social Security Fund given the ageing population, the need to encourage greater retirement saving, and the pressure on its reserves brought about by the economic impact of Covid-19 and social restrictions. A transfer of up to £150 million was approved by the Social Security Minister in May 2020 and further transfers from the Reserve Fund, estimated at £263 million, will be required during 2021 to 2023 to support the on-going payment of pensions and benefits. A planning assumption that the States Grant will be set at £65.3 million, and that sustainability
measures will be used to address the balance of £29.3 million, has been made for 2024. These assumptions will be examined as part of the
review, which will identify an appropriate balance of income into the Fund between contributions from employers and workers, and the annual grant from the Consolidated Fund.
For the purposes of this Government Plan, the Minister for Social Security will only be proposing a change to the Social Security Law to remove the States Grant for 2021. Further changes to the value of the Grant will be proposed during 2021, following agreement on the outcome of the review of the Social Security scheme.
The implementation of a parental allowance to replace the current maternity allowance has been delayed for six months and is now due to be implemented from early 2021. The additional costs of the new benefit are being met through an increase in employer and Class 2 contributions in respect of earnings above the Standard Earnings Limit. This increase was implemented in January 2020.
It is also anticipated that a major new project will be commenced in 2023 to begin work on a new, modern IT system to administer benefits. This will be a significant capital investment in a new platform to enable the efficient management of social security.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 92,722 91,746 86,020 75,294 Existing Contributions income 199,054 205,507 211,627 217,929 Changes to Contribution rates (15,894) 0 0 0
Sustainability Measures 0 0 0 29,319 Transfer from Social Security Reserve 94,932 81,255 87,175 0 Grant to Social Security Fund 0 0 0 65,300 Existing benefits and other expenditure (275,879) (284,475) (296,398) (310,018) New Benefits proposed (2,939) (3,013) (3,130) (3,256) Capital Investment in New Benefits System (250) (5,000) (10,000) (7,750)
Closing balance 91,746 86,020 75,294 66,818 Table 36 Social Security Fund
Social Security (Reserve) Fund
The Social Security (Reserve) Fund holds the balances built up in the Social Security Fund and is a key way in which we are managing the impact of an ageing population on future pension costs.
As outlined above, it is proposed that some of the assets in the Reserve Fund are utilised to support the cost of Social Security pensions and benefits. The treasury management and investment strategy will ensure that these reserves are drawn down in the most advantageous way possible. Consideration is also being given to modifying the investment strategy of the Reserve Fund to allow it to invest in local infrastructure, providing greater benefit to the Island while still providing a healthy financial return to the fund.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 1,736,400 1,667,068 1,609,813 1,634,638 Return on investments 25,600 24,000 112,000 116,700 Transfers (94,932) (81,255) (87,175) 0
Closing balance 1,667,068 1,609,813 1,634,638 1,751,338 Table 37 Social Security (Reserve) Fund
Currency and Coinage Funds
The Currency and Coinage Funds principal purpose is to hold assets to match the value of Jersey currency in circulation, such that the holder of Jersey currency could, on request, be repaid. The Currency and Coinage Funds can also invest in Jersey infrastructure. The fund currently has investments in Jersey infrastructure including Gigabyte Jersey, valued at £10 million and the liquid waste plant investment, valued at £25 million. Excess monies, above those required to match currency in circulation, are generally transferred to the Consolidated Fund annually.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 106,600 107,800 108,600 109,400 Return on investments 1,200 1,100 2,900 2,100 Expenditure 0 (300) (2,100) (2,100)
Closing balance 107,800 108,600 109,400 109,400 Table 38 Currency and Coinage Funds
Jersey Reclaim Fund
The Jersey Reclaim Fund receives the balances of dormant accounts held in Jersey banks for distribution for charitable and other purposes, subject to reclaim by transferring banks under certain conditions. The fund was set up in 2017, and initially received transfer of dormant account monies from local banks, along with a small volume of customer reclaims. The fund is required by legislation to ensure that monies are managed prudently, to enable the payment of claims when they are made.
A transfer was made in 2020 from the Reclaim Fund to charitable organisations that are working to protect at-risk Islanders during the pandemic. Any excess balance on the return on investments will be allocated to further charitable purposes.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 14,300 14,300 14,300 14,300 Return on investments 400 400 600 600 Expenditure (400) (400) (600) (600)
Closing balance 14,300 14,300 14,300 14,300 Table 39 Jersey Reclaim Fund
Housing Development Fund
The Housing Development Fund exists to help support the development of social rented and first-time buyer homes. In June 2014, the States issued a £250 million bond with a 40-year maturity, the proceeds of which were placed in the Housing Development Fund and issued to Andium Homes, or equivalent facilitating agencies, to fund construction and improvement works on social housing.
In the initial stages of drawdown, proceeds from the bond issuance were held in a defensive portfolio to protect the capital from losses before sufficient money could be drawn by Andium Homes, or equivalent facilitating agencies, to meet coupon payments. During this interim period coupon payments reduced the net value of the Fund as interest payments exceeded income.
The fund is now fully drawn, holding only interest-bearing loans issued predominantly to Andium Homes. Interest receipts are in excess of the external coupon associated with the States issued bond, net gains will
be recycled into further housing loans and used to rebuild the fund value over time. The fund Strategy currently focusses on consolidating gains to rebuild the fund over time. In due course the Strategy of the fund will be reassessed and optimised to repay the external bond due in 2054.
In addition to bond interest payments, Andium pay an annual return to the Government of Jersey, this payment however is not paid to the Housing Development Fund and so not recorded in the table below.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance (16,000) (14,665) (13,270) (11,815) Income 10,710 10,770 10,830 10,900 Expenditure (9,375) (9,375) (9,375) (9,375)
Closing balance (14,665) (13,270) (11,815) (10,290) Table 40 Housing Development Fund
Climate Emergency Fund
Following on from the declaration of a Climate Emergency and the agreement to set up the Climate Emergency Fund in 2019, a Carbon
Neutral Strategy was bought before the States Assembly in February
2020. This was unanimously agreed and outlined the strategic context and the principles upon which a community driven, participatory democracy approach would be used to develop Jersey s detailed road map towards carbon neutrality A Long-term Climate Action Plan. In addition, it outlined some strong start carbon reduction and sustainable transport projects,
to be funded from the Climate Emergency Fund, and that would be undertaken in parallel with the community engagement and a Citizens Assembly process.
Between April and August, resources were redeployed across the Government to address the Covid-19 response, causing a pause in these workstreams. However, the political commitment and resolve in tackling the climate emergency, has in no way diminished during or because of Covid-19. Resources have now returned, and work is beginning again on this major strategic initiative, which is arguably even more important as we move forward in a changed world. The financial information reflects the deferral of some projects into 2021.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 5,100 3,097 3,382 3,657 Income 2,700 4,000 4,000 4,000 Expenditure (4,703) (3,715) (3,725) (4,385)
Closing balance 3,097 3,382 3,657 3,272 Table 41 Climate Emergency Fund
Income estimates have been adjusted for 2021 due to the potential impact of Covid-19 on imp ts fuel duties.
Expenditure from the Fund approved in 2019 on sustainable transport initiatives, was dependant on the States Assembly s agreement of a Sustainable Transport Plan, which was secured in March 2020. A suite of strong start transport projects were agreed against the first year s projected expenditure of £1.3 million. Although some projects have been deferred due to the impact on resources of Covid-19, delivery is now underway and where they cannot be completed in 2020, they will be addressed in 2021 where the funding will still be available.
[11]It is proposed that further climate related work that strengthens environmental protection is funded in 2021 to 2024 from the Climate Emergency Fund. This will build on work that began in 2020 and will maintain momentum in these areas whilst the Long-Term Climate Action Plan is being developed. Work will focus on soil health, biosecurity (especially related to invasive and non-native species) and wider conservation work including marine research, habitat management and support for the new Conservation of Wildlife Law, should it be adopted by the States Assembly in 2020.
2021 (£000)
Policy Development on Carbon Neutral and Sustainable Transport Plan 500 Strengthening Environmental Protection 295 Sustainable Transport Initiatives 3,150 Additional expenditure to strengthen the protection of the natural environment 458 Tree Preservation Initiatives[12] 300
Total expenditure 4,703 Table 42 2021 expenditure from Climate Emergency Fund
Fiscal Stimulus Fund
Proposals to establish the Fiscal Stimulus Fund were lodged in October 2020 to create a fund to support economic recovery after the Covid-19 pandemic. Subject to approval of the Fund by the States Assembly, funding bids will be received during the remainder of 2020 and it is expected that the full balance will be allocated in 2021.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Opening balance 50,000 0 0 0 Expenditure (50,000) 0 0 0
Closing balance 0 0 0 0
Table 43 Fiscal Stimulus Fund
Other special funds
There are several smaller special funds that operate for specific purposes. These funds hold lower balances and are similarly established either under legislation or through bequests made to the Government. Income and expenditure are generally equal.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Government of Jersey Group forecast
The financial forecast for the Government of Jersey Group takes into account the income and expenditure through trading operations and special funds. An operational surplus is forecast to be generated over the period of the Government Plan. Investment returns of the funds also form part of the accounting surplus, although the use of these returns is restricted.
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Forecast Operating Surplus/(Deficit) (179,772) (51,101) 13,310 13,274
Trading Operations Net Income 2,423 3,296 3,856 4,354 Special Funds Net Operational Expenditure (151,667) (87,278) (100,917) (44,240)
Group Operational Surplus/(Deficit) (329,016) (135,083) (83,751) (26,612) Target Investment Returns 43,400 41,900 166,900 172,750
Group Surplus/(Deficit) (285,616) (93,183) 83,149 146,138 Table 45 Government Of Jersey Group forecast
Key Fiscal Measures for Consideration in 2021
Classification of Government spending
In accordance with P.94/2019, we will pursue opportunities to progress classifying all States expenditure in accordance with the United Nations Classification of the Functions of Government system, so that the Annual Accounts of the States of Jersey 2021 and all subsequent government documents presenting financial information (including the Government Plan 2023) classify public spending in accordance with this standard framework.
An infrastructure fund for Jersey
The previous Government Plan identified that an Infrastructure Fund in Jersey could provide a way to fund major projects. Many places have successfully established infrastructure funds, with these funds typically taking the form of a recyclable or evergreen fund, whereby funds are reinvested over a medium to long-term to create a sustainable fund.
The original intention was to establish the fund in 2020 by lodging a proposition that would have set out how the fund could operate, the necessary safeguards, governance and transparency measures for projects to be funded through this mechanism. The impact of Covid-19 on this Government has shifted the priority for Treasury to ensuring liquidity and financing in place for existing expenditure proposals, as outlined in the Plan. This, combined with uncertain market appetite, delayed the implementation of this initiative but the intention is to continue with an intent to lodge a proposition to create the Infrastructure Fund in 2021.
The Infrastructure Fund can widen the participation of third-party investors who wish to take a holistic view of the long-term success of the Island and give us the opportunity to fund longer-term projects in a different way. These funds not only reduce the dependency on public sector finances
but can also be used to strengthen skills and resource planning capability. We can choose to invest at a fund or project level, or both.
We can play an active role in project definition, prioritisation, promoting initiatives, land assembly and attracting investors. We can widen the participation of third-party investors who wish to take a holistic view of the long-term success of the Island, as well as securing maximum leverage from third-party investors to support individual projects.
Robust transparency and accountability are an essential prerequisite
of any fund where decisions are taken by elected Members following independent advice. This will not only underpin the legitimacy of decision- making but will enable elected Members to exercise strict control over funding and long-term investment strategy. The decision to establish a new fund will be informed by a business case and can only be taken by the States Assembly.
Funding is included in the central planning reserve to work towards
the establishment of a fund and sets out how it could operate the necessary safeguards, governance, and transparency measures, prior to a proposition being lodged for debate in 2021.
Refinancing of pension debt
We have two pension schemes which currently operate with a debt, which is being repaid though annual sums. These are the Public Employees Contributory Scheme (PECRS) Pre-87 Debt and the Jersey Teachers Superannuation Fund (JTSF) Pension Increase Debt (PID). As at 31 December 2019, these debts were valued at a combined £447 million.
The repayment of the Public Employees Contributory Scheme Pre-87 Debt has been set within regulations, with a fixed repayment date of 2053 and a defined method of calculating annual repayments. Repayments, currently £8.5 million per annum, increase annually by the actual increase in pensionable salaries for members employed throughout the previous financial year. Increases in pensionable salaries arise through pay awards, increments and promotions.
The repayment of the Jersey Teachers Superannuation Fund Pension Increase Debt has not been formalised and there is no fixed repayment date. The repayment arrangement established in 2007, pending formal agreement to the repayment mechanism, involves us paying 5.6% of pensionable salaries (currently £3.4 million per annum) towards the Pension Increase Debt as part of the overall employer contribution rate. The Jersey Teachers Superannuation Fund Pension Increase Debt is not expected to be repaid until early 2100s, at significant long-term cost.
Latest estimates show that the total repayments of this debt over these timeframes will amount to £4 billion. Options for repayment of the pension increase debts have been analysed, and significant long-term savings
can be achieved through the early repayment of the debts. It would
be advantageous to borrow, or otherwise refinance in the current low interest rate environment to repay the debts. Subject to further work and borrowing capacity, consultation with stakeholders, and further technical work and exploration of other options, proposals will be progressed with a view to implementing them by the Government Plan 2022-25.
Introduction of independent taxation
In November 2019, the States Assembly agreed a proposed roadmap for changes to Jersey s personal tax system ultimately to introduce a system of independent taxation.
This is a significant change to the personal tax system that will affect all Islanders in a marriage, or civil partnership, and have financial implications on thousands of Islanders who are currently jointly assessed. Research indicates that moving immediately to independent taxation would
require approximately 8,300 married couples and civil partners to pay additional tax. Managing the financial impact on individuals is a particularly
challenging aspect of the proposals, and further public consultation is planned for 2021.
As a transitional step, it is anticipated joint access to tax information will be introduced for couples in a legal relationship in 2021. It remains the government s goal to implement full independent taxation for the year of assessment 2022.
Review of Social Security sustainability
We are determined to place the Social Security Fund in a fully sustainable position for future generations, and will undertake a full review of the various components of the Social Security scheme over the coming months. These components include the contributions levied, other income coming into the Fund, the range and level of benefits and pensions provided and the size and investment strategy of the Reserve Fund. In particular, the balance of contributions and States Grant will be reviewed in the context of the burden of overall government levies (taxes and contributions) on individuals, workers, businesses and employers.
The review will build on the public consultations, previously conducted in 2016 and 2017, and will lead to proposals to be incorporated into the Government Plan 2022.
Health Insurance Fund
The combination of underlying demographic pressures and the proposed funding of the Jersey Care Model, the Health Digital Strategy, and the new low-income access scheme are projected to reduce the value of
the Health Insurance Fund significantly over the next four years. This is anticipated to result in the Fund holding £35 million at the end of 2024, representing less than one years worth of expenditure.
This investment in the Jersey Care Model and the health digital strategies is absolutely essential, and will reduce the growth in the long-term costs of health care on the Island. However, it brings forward the need to deliver a solution to ensure that all health costs are funded sustainably. We will undertake a full review over the next six months to determine an appropriate model for future health funding, with particular reference to the funding of primary care, incorporating the low income access scheme, and the extended primary care services envisaged within the Jersey Care Model.
This review will be co-ordinated with the parallel review of sustainable funding for Social Security pensions and benefits, and proposals will be brought to the States Assembly by the Government Plan 2022-2025.
Zero Based Budgeting
The implementation of zero-based budgeting was a Government Plan commitment in 2020. A project was established to set up a rolling programme of zero-based budgeting across the government. Under the scheme, budget Managers start from a clean sheet (i.e. from zero) with no assumptions. All activities conducted are justified on their contribution to
outcomes, and all required resources to support delivery are evidenced and objectively challenged. Zero-Based Budgeting will provide greater control over our budgets and make it easier for us to redirect resources towards our strategic priorities. This increases the connection between our spending and our objectives, introduces increased cost transparency and control across the organisation, and creates a sustainable culture change in how we financially plan. The method seeks to align our operational and financial planning, with better management and better ability to shift resources towards priorities which will lead to better government.
In 2020, the first phase of work developed zero-based budgeting infrastructure for our incorporating training assets, templates and tools. This is to conduct the exercise and develop a series of standardised
rollout methods that could be deployed within each department. Whilst Covid-19 slowed progress on the programme, the methodology was rolled out to Treasury and Exchequer and Health and Community Services,
and is planned to be rolled out into two further departments before the end of 2020. These exercises have generated substantial insight into
the departments and identified both opportunities to deliver efficiencies in the short-term, and priority areas where further work can be focused. This ongoing challenge and review are a key part of embedding zero- based budgeting as a way-of-working across our Government, and the accompanying shift in culture.
In 2021 zero-based budgeting will be rolled out to all remaining departments in the Government, as part of establishing a rolling programme of zero-basing to inform decision making in future government plans.
Review of fuel duty
In the 2019 budget, it was identified by the Council of Ministers that a shift towards increased purchase and usage of electric and hybrid vehicles will, at some point in the future, result in reducing revenues from road fuel duty and Vehicle Emission Duty. It is therefore necessary to consider options to deliver the fairest and most sustainable means of taxing vehicle usage and ownership in the longer run. Tackling the climate emergency is likely to accelerate this decline in revenues and increases the urgency for options to be considered. Work will continue and be considered over the period of this plan.
Parking charges
As part of the Sustainable Transport Plan a rapid analysis review of
car parking is being undertaken that will consider how we encourage behaviour change and model shift away from private car use, including the current and future cost of parking.
Coastal Management Strategy/Shoreline Management
Jersey s Shoreline Management Plan outlines how the Island s low-lying coastal areas will be defended from flood risk and erosion over the next 100 years. It sets out a framework to manage these risks to the community,
environment and economy of Jersey in a sustainable manner up to 2120, over three time periods in line with future climate projections and sea level rise. Some capital is available for implementing short-term infrastructure maintenance and improvement, but further funding will need to be sought over the longer-term, accepting that maintaining the line is the minimum policy and in some cases we would seek to adapt or advance the line . Work will need to be undertaken to assess how to secure the required funding.
Appendices
Appendix 1: Key to Abbreviations
Minister
CM | Chief Minister |
MEDTSC | Minister for Economic Development, Tourism, Sport and Culture |
MEDU | Minister for Education |
MER | Minister for External Relations |
MID | Minister for International Development |
MINF | Minister for Infrastructure |
MSS | Minister for Social Security |
MCH | Minister for Children and Housing |
MHA | Minister for Home Affairs |
MTR | Minister for Treasury and Resources |
MHSS | Minister for Health and Social Services |
MENV | Minister for the Environment |
CSP Common Themes
CT1 | We will enable Islanders to lead active lives and benefit from the arts, culture and heritage |
CT2 | We will promote and protect Jersey s interests, profile and reputation internationally |
CT3 | We will work in partnership with Parishes, Churches, community groups, the third sector, volunteers, businesses and key stakeholders |
CT4 | We will make St Helier a more desirable place to live, work, do business and visit |
CT5 | We will improve transport infrastructure and links |
CT6 | We will prepare for more Islanders living longer |
CT7 | We will explore and use the opportunities offered by digital |
CT8 | We will nurture a diverse and inclusive society |
CSP Ongoing Initiatives
OI1 | A new long-term strategic framework that extends beyond the term of a Council of Ministers |
OI2 | A States Assembly and Council of Ministers that work together for the common good |
OI3 | A modern, innovative public sector that meets the needs of Islanders effectively and efficiently |
OI4 | A sustainable long-term fiscal framework and public finances that make better use of our public assets |
OI5 | An electoral system which encourages voter turnout and meets international best practice |
Department
OCE Office of the Chief Executive
T&E Treasury and Exchequer
COO Chief Operating Office
SPPP Strategic Policy, Planning and Performance IHE Infrastructure, Housing and Environment CLS Customer and Local Services
CYPES Children, Young People, Education and Skills HCS Health and Community Services
JHA Justice and Home Affairs
NM Non-Ministerial Departments: BC - Bailiff s Chambers
LOD - Law Officers Department
JG - Judicial Greffe
VD - Viscount s Department
SG - States Greffe
C&AG - Comptroller and Auditor General
JOA Jersey Overseas Aid
PPC Privileges and Procedures Committee
Appendix 2: Proposition and summary tables[3]
THE STATES are asked to decide whether they are of opinion
to receive the Government Plan 2021 2024 specified in Article 9(1) of the Public Finances (Jersey) Law 2019 ( the Law ) and specifically
- to approve the estimate of total States income to be paid into the Consolidated Fund in 2021 as set out in Appendix 2 Summary Table 1 to the Report, which is inclusive of the proposed taxation and imp ts duties changes outlined in the Government Plan, in line with Article 9(2)(a) of the Law, except that
- the 2021 Estimate for Stamp Duty and Land Transactions Tax shall be increased by £335,000 by amending the Stamp Duty and Land Transactions Tax bands in accordance with the table below, with other affected lines in Summary Table 1 to be updated accordingly
Transaction value up to 2019 rate 2020 rate Proposed new rate 1-50 0.5% up to 50k 0.5% up to 50k -
50,001 300 1.5% on excess up to 300k 1.5% on excess up to 300k - 300,001 500 2% on excess up to 500k 2% on excess up to 500k - 300,001 500 3% on excess up to 700k 3% on excess up to 700k - 700,001 1 3.5% on excess up to 1m 3.5% on excess up to 1m - 1,000,001 1.5 4.5% on excess up to 1.5m 4.5% on excess up to 1.5m - 1,500,001 - 2 5.5% on excess up to 2m 5.5% on excess up to 2m - 2,000,001 - 3 6.5% on excess up to 3m 6.5% on excess up to 3m 7% 3,000,001 6 8.5% on excess up to 6m 8.5% on excess up to 6m 9.5% 6,000,001 + 9.5% on excess 9.5% on excess 10.5%
- the 2021 Estimate for Personal Income Tax shall be reduced by £240,000 by amending Child Care Tax Relief in accordance with the table below with other affected in lines Summary Table 1 to be updated accordingly
Transaction value up to 2020 Allowance Increase Proposed 2021 Allowance Child Care Tax Relief £6,150 £123 £6,273
Enhanced Child Care Tax Relief £16,000 £320 £16,320
- the 2021 Estimate for Personal Income Tax shall be reduced by £260,000 by amending Child Tax Allowances in accordance with the table below with other affected in lines Summary Table 1 to be updated accordingly
Transaction value up to 2020 Allowance Increase Proposed 2021 Allowance Child Allowance £3,000 £60 £3,060
Additional Allowance £4,500 £90 £4,590
- to approve the amounts to be transferred from one States fund to another for 2021, in line with Article 9(2)(b) as set out in Appendix 2 Summary Table 2 to the Report;
- to approve the proposed borrowing to be obtained for 2021, in line with Article 9 (2) (c), up to and including the amount set out in Appendix 2 Summary Table 3 to the Report;
- to approve each major project that is to be started or continued in 2021 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;
- to endorse the efficiencies and other re-balancing measures for 2021 contained in the Government Plan as set out in Appendix 2 Summary Table 6 and reflected within each gross head of expenditure in Appendix 2 Summary Table 5(i);
- to approve the proposed amount to be appropriated from the Consolidated Fund for 2021, 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 General Reserve shall be increased by £100,000 with this amount ring-fenced for care leavers;
- the head of expenditure for the General Reserve shall be increased by £159,000 with this amount ring-fenced for the Jersey Premium;
- the Total Revenue Head of Expenditure for Customer and Local Services shall be increased by £300,000 to provide support as required during 2021 for Beresford Street Kitchen, and that the Council of Ministers shall request officers to work with the organisation to support the development of a financially sustainable business model for future years;
- the Total Revenue Head of Expenditure for Strategic Policy, Planning and Performance shall be increased by £150,000 to provide funding for Statistics Jersey to undertake additional surveys and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey and to provide funding to develop a Poverty Strategy;
- the Heads of Expenditure for Financial Services and Digital shall be increased by £750,000 in 2021 in order to fund the development of Elizabeth Castle, including the Hospital and Officers Quarters and the revised business case for that development, with a commitment that funding shall be provided in subsequent years to complete the development, no later than the end of 2025, subject to the agreement of an updated business case and after the Jersey Heritage Trust and Ministers have worked together to thoroughly investigate other potential funding mechanisms, and that any such funding shall be over and above the 1% allocation for Culture, Arts and Heritage of overall expenditure;
- the head of expenditure for Treasury and Exchequer shall be increased by £50,000 for the purpose of a review into the funding of public services by the Parishes
- to approve the estimated income, being estimated gross income less expenditure, that each States trading operation will pay into its trading fund in 2021 in line with Article 9(2)(h) of the Law and set out in Appendix 2 Summary Table 7 to the Report;
- to approve the proposed amount to be appropriated from each States trading operation s trading fund for 2021 for each head of expenditure in line with Article 9(2)
- of the Law and set out in Appendix 2 Summary Table 8 to the Report;
- to approve the estimated income and expenditure proposals for the Climate Emergency Fund for 2021 as set out in Appendix 2 Summary Table 9 to the Report, except that the expenditure from the Fund shall be increased by £300,000 to fund tree preservation initiatives;
- to agree that the Minister for Treasury and Resources should prioritise the application of any unspent funds in 2020, be these in respect of spending related to COVID-19, departmental revenue expenditure or capital expenditure, to be returned to the Consolidated Fund, and used to minimise the borrowing requirement from the revolving credit facility as set out in part (c);
- to agree that the Minister for Treasury and Resources should prioritise the application of any unspent funds in 2021, be these in respect of spending related to COVID-19, departmental revenue expenditure or capital expenditure, to be returned to the Consolidated Fund, and used to minimise the borrowing requirement from the revolving credit facility as set out in part (c);
- to request the Council of Ministers to agree an estates strategy in sufficient time for the next Government Plan (2022-25) to include a list of potential sales, in order for any funds raised to be prioritised for use to minimise any future borrowing requirements by the Minister for Treasury and Resources; and
- to approve, in accordance with Article 9(1) of the Law, the Government Plan 2021- 2024, as set out at Appendix 3 to the Report, except that
- the heads of expenditure for Strategic Policy, Planning and Performance shall be increased by the following amounts to provide for the establishment of a Public Services Ombudsman
2022; £200,000 2023: £401,000 2024: £412,000 .
- on page 60, after the words when approved by the States Assembly there should be inserted the following words
We commit to funding Statistics Jersey to undertake additional surveys and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey, to ensure that detailed information can be published on current levels of relative low income ( poverty ) in Jersey, using both established measures and also taking account of the work of the Social Metrics Commission; and to develop a Poverty Strategy for inclusion in the 2022 Government Plan ;
- (iii) on page 62 of Appendix 3, after the words going to these sectors in 2022. there should be inserted the following words
We commit to the reinstatement of funding at the agreed rate of 1% of net revenue expenditure for 2024 and beyond
- on page 79 of Appendix 3, after the words Marine Resources management and
natural environment there shall be inserted the following words
Commitment to funding tree preservation initiatives: additional expenditure per year of £75,000 in the years 2022, 2023, and 2024 ;
- the Minister for Treasury and Resources is requested to work with the Minister for Infrastructure and the ComitØ des ConnØtables and firstly agree the Terms of Reference for a review into the funding of public services by the Parishes, as agreed in the Common Strategic Policy, to carry out that work and then to bring forward any recommendations.
2021 Estimate 2022 Estimate 2023 Estimate 2024 Estimate
(£000) (£000) (£000) (£000)
Income Tax
Personal Income Tax 460,500 499,500 533,500 560,500 Companies 97,000 103,000 108,000 113,000 Provision for Bad Debt (6,000) (6,000) (3,000) (3,000) Income Tax Total 551,500 596,500 638,500 670,500
Goods & Services Tax (GST)
Goods & Services Tax (GST) 75,700 82,000 85,600 89,400 ISE Fees 8,910 8,910 8,910 8,910 GST Total 84,610 90,910 94,510 98,310
Imp t Duties
Imp t Duties Spirits 7,185 7,293 7,476 7,701 Imp t Duties Wine 8,986 9,122 9,340 9,622 Imp t Duties Cider 860 855 858 868 Imp t Duties Beer 6,569 6,633 6,691 6,791 Imp t Duties Tobacco 16,463 15,715 15,933 15,352 Imp t Duties Fuel 24,993 27,517 27,895 28,307 Imp t Duties Goods (Customs) 200 200 200 200 Vehicle Emissions Duty (VED) 2,730 2,644 2,644 2,644 Imp t Duties 67,986 69,979 71,037 71,485
Stamp Duty
Stamp Duty 26,641 25,842 26,611 27,413 Probate 2,400 2,400 2,400 2,400 Stamp Duty on Share Transfer (LTT) 2,247 2,342 2,442 2,545 Stamp Duty 31,288 30,584 31,453 32,358
Central Scenario 735,384 787,973 835,500 872,653 Annual growth % 2.1% 7.2% 6.0% 4.4% Increased collections - Domestic Compliance 8,600 10,900 12,000 13,500 Additional Tax measures 0 10,000 Additional ISE Fees 3,500 3,500 3,500 3,500
Total General Tax Revenue 747,484 802,373 851,000 899,653
Island Rate Income from Parishes 13,486 13,809 14,155 14,523 Other States Income - Dividends 8,133 8,568 8,918 9,347 Other States Income - Non-Dividends 5,473 5,784 7,967 7,949 Other States Income - return from Andium Homes and Housing
Trusts 31,774 32,618 33,520 34,445 Other Government Income 58,866 60,779 64,560 66,264
Total States Income 806,350 863,153 915,559 965,916 Summary Table 1 - States income
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Health Insurance Fund to Consolidated Fund 11,300 13,000 12,160 7,825 Charitable Funds to Consolidated Fund 1,044 989 0 0 Loans Funds to Consolidated Fund 0 5,700 0 0 Criminal Offences Confiscation Fund to Consolidated Fund 1,956 1,609 2,396 0
Total transfers to/from the Consolidated Fund 14,300 21,298 14,556 7,825 Summary Table 2 - Transfer of monies between States Funds
2021 2022 2023 2024 (£000) (£000) (£000) (£000)
Funding required from Revolving Credit Facility 335,953 71,229 (4,981) (6,231) Summary Table 3 - Borrowing for 2021
2020-2023 Govern- 2021-2024 Govern- Department ment Plan ment Plan
Full Cost Full Cost (£000) (£000)
MS Foundation COO 9,000 7,000 VCP Replacement School CYPES - 17,000 Mont a l Abbe Secondary School CYPES 7,350 Redesign of Greenfields CYPES 7,000 Learning Difficulties - Specialist Accommodation HCS 9,350 Fort Regent (Early Phase) IHE 4,800 Our Hospital (Phase Two) HCS 20,000 Digital Care Strategy HCS 16,185 Office Modernisation OCE 3,450
Total 9,000 92,135
Summary Table 4 Full costs of projects designated as a Major Project, to be started in 2021 and projects with amended totals since Government Plan 2020
Expenditure Head of Expend- In(£c0o0m0e) Allocation iture
(£000) (£000)
Departments
Chief Operating Office 1,029 37,667 36,638 Children, Young People, Education and Skills 19,845 180,131 160,286 Customer and Local Services 9,486 101,201 91,715 Infrastructure, Housing and Environment 32,592 77,163 44,571 Health and Community Services 25,031 252,466 227,435 Jersey Overseas Aid 0 12,374 12,374 Justice and Home Affairs 3,457 33,070 29,613 States of Jersey Police Service 234 27,038 26,804 Office of the Chief Executive 145 8,650 8,505 Financial Services and Digital 54 33,615 33,561 Strategic Policy, Planning and Performance 589 10,586 9,997 Treasury and Exchequer 5,261 72,416 67,155 Covid-19 Response 0 87,277 87,277 Departments total 97,723 933,654 835,931
Non-Ministerial States bodies
Bailiff s Chambers 68 1,909 1,841 Comptroller and Auditor General 69 939 870 Judicial Greffe 1,292 8,885 7,593 Law Officers Department 288 8,740 8,452 Office of the Lieutenant Governor 107 911 804 Official Analyst 53 656 603 Probation 88 2,459 2,371 States Assembly 96 7,244 7,148 Viscount s Department 806 2,518 1,712 Non-ministerial States bodies total 2,867 34,261 31,394 Total Departments and Non-Ministerial States bodies 100,590 967,915 867,325
Revenue Reserves Heads of Expenditure
Reserve for centrally held items 0 10,782 10,782 General reserve 0 54,319 54,319 Total Revenue Reserves Heads of Expenditure 0 65,101 65,101
Total Revenue Heads of Expenditure 100,590 1,033,016 932,426 Rebalancing expenditure to be allocated 0 (950) (950)
Total income/expenditure after rebalancing 100,590 1,032,066 931,476 Summary Table 5(i) 2021 Revenue Heads of Expenditure
2021 Department £ 000
Central Planning Reserve T&E 1,900 Discrimination law, safeguarding and regulation of care IHE 3,600 Schools extensions and Improvements IHE 5,901 Infrastructure including the Rolling Vote IHE 11,732 Drainage Foul Sewer Extensions IHE 1,000
Replacement assets COO 5,000 Phoenix Software - Viscounts NON MIN 45 Court Digitisation NON MIN 1,648 Regulation Group Digital Assets IHE 1,290 Combined Control IT JHA 2,000 Electronic Patient Records JHA 667 Electronic Document Management Solution COO 500 IT for Migration Services COO 1,000 Service Digitisation COO 1,000 Jersey Care Model HCS 1,300
Replacement Assets and Minor Capital CYPES 200 Replacement Assets (Various) HCS 3,250 Sports Division Refurbishment IHE 1,300 New Skatepark (net of Ports of Jersey Funding) IHE 685 Replacement Assets and Minor Capital (1) IHE 3,500 Minor Capital JHA 236 Minor Capital-Police JHA -Police 200 Equipment Replacement JHA -Police 170 Replacement of Aerial Ladder Platform JHA 768
Conversion Courtroom 1 Magistrates Court NON-MINS 440 States of Jersey Police Firearms Range JHA 1,200 Prison Improvement Works - Phase 6b IHE 90 Prison Phase 8 JHA 666 Dewberry House (Sexual Assault Referral Centre) JHA-Police 1,800 Piquet House - Family Court NON-MINS 1,071 Health Services Improvements (including vital IT Investment) HCS 5,000 Five Oaks Refurbishment HCS 2,550 Rouge Bouillon Site review outcome IHE 2,000 In-patient/support services refurbishments HCS 1,044 Reserve for Central Risk and Inflation Funding T&E 1,500
TOTAL 66,253
Major Projects
MS Foundation COO 2,570 Integrated Tech Solution COO 9,200 Cyber COO 6,500 Vehicle Testing Centre IHE 2,000 Learning Difficulties - Specialist Accommodation HCS 2,000 Fort Regent (Early Phase) IHE 4,800 Our Hospital (Phase Two) HCS 20,000 Digital Care Strategy HCS 3,400 Office Modernisation OCE 650
Total Major Projects Heads of Expenditure 51,120 Total Capital Heads of Expenditure 117,373
Summary Table 5(ii) 2021 Capital Heads of Expenditure
Depart- Recurring or Budget
Minister Summary description 2021 value (£)
ment one-off impact
Transfer technology functions from CYPES and HCS into Modernisation and Spend
Chief Minister COO Recurring 900,000
Digital continuing the application of OneGov principles reduction
Spend
Chief Minister SPPP Defer the implementation of the Public Services Ombudsman for one year. One off 378,000
reduction
Merge the support and re-plan commissioned research projects for the States Spend
Chief Minister COO Recurring 200,000
Employment Board and Jersey Appointments Commission reduction
Review and renegotiate the GoJ print contract securing some of the
Spend
Chief Minister COO reductions in print volumes derived from an increase in home working and Recurring 100,000
reduction
continued investment in technology
Defer the development of policy for Financial independence in old age by Spend
Chief Minister SPPP One off 50,000
one year reduction
Minister for Children Spend
SPPP Defer the development of policy for Long term housing by one year One off 25,000 and Housing reduction
Minister for Children Redesign the therapeutic support model for children with complex needs Spend
CYPES Recurring 200,000 and Housing (including neuro assessment) reduction
Minister for Children Review and realign the commissioned budget available for antenatal services Spend
CYPES Recurring 180,000 and Housing with demand. Note there will be no reduction to the service reduction
Minister for Children Review and realign the budget for care leavers with demand. Note there will Spend
CYPES Recurring 100,000 and Housing be no reduction to the service reduction
Minister for Children Review and realign the budget for intensive fostering with demand. Note Spend
CYPES Recurring 50,000 and Housing there will be no reduction in the service reduction
Minister for Health Implement proposals from the HCS Zero Based Budget exercise once Spend
HCS Recurring 5,000,000 and Social Services approved by the Minister reduction
Sell a domestic dwelling no longer required by the Fire and Rescue Service
Minister for Home
JHA whilst compensating for the reduction in rental income (prudent estimate One off Income 450,000 Affairs
pending valuation)
Minister for Home Through the application of enhanced workforce planning implement a Spend
JHA: SoJP Recurring 215,000 Affairs vacancy factor equivalent to approximately 1% of staff costs reduction
Minister for Home Spend
JHA Continue the digital transformation of GST and Customs services Recurring 50,000 Affairs reduction
Minister for Home Continue the organisational implementation of electronic rostering to replace Spend
JHA Recurring 50,000 Affairs paper based rostering processes reduction
Minister for Home Restructure the Intelligence Administration function to reflect known leavers Spend
JHA: SoJP Recurring 20,000 Affairs and vacancies reduction
Revise and release a portion of the budget for the Health Estate in light of
Minister for Spend
IHE progress made with backlog maintenance and to reflect capital allocations Recurring 4,000,000 Infrastructure reduction
within the HCS budget
Reduce a portion of the property maintenance budget to reflect a
Minister for Spend
IHE reprioritisation of assets requiring maintenance; informed by the Office Recurring 300,000 Infrastructure reduction
Accommodation Project
Re-structure Facilities Management across Government to create one
Minister for Spend
IHE centralised function with hub and spoke delivery aligned with the OneGov Recurring 200,000 Infrastructure reduction
principles
Ministers for Development of an IHE TOM to include reviews of the overall structure, sports
Spend
Infrastructure , IHE division, business administration and the transfer of customer facing services Recurring 750,000
reduction
Environment, EDTSC to CLS
Minister for Social Spend
CLS Defer the implementation of the Care needs at home project by one year One off 400,000 Security reduction
Minister for Social Spend
CLS Continued review of, and improvement, to customer services Recurring 61,000 Security reduction
Minister for Treasury Spend
T&E Reduce cash handling fees by increasing non-cash payment options Recurring 30,000 and Resources reduction
Increase income from new charges, and increased cost recovery of existing
Council of MinistersCentral charged services, based on the initial implementation of a fees and charges Recurring Income 950,000
framework
Continue to manage inflationary pressures across government by retaining
Spend
Council of MinistersCentral the budget for non-pay inflation and seeking best commercial outcomes to Recurring 3,718,000
reduction
contract management
Allocated Continue the best practice of reviewing and securing recurring reductions in
Spend
Council of Ministersby depart- non-staff budget including locking in some of the spend reductions evidenced Recurring 750,000
reduction
ment during COVID-19
Spend
Chief Minister SPPP Deferred Island Plan Review activity from 2020 One off (325,000)
increase
Minister for Social Spend
JHA Restructuring advisor posts One off (19,000) Security increase
Minister for Home Spend
JHA Restructure of frontline posts to resource JCIS/SOJPS dog handler One off (20,000) Affairs increase
Subtotal excluding incremental tax revenue 18,763,000 Minister for Treasury Increase tax revenues through the continued enhancement of domestic tax
T&E Recurring Income 1,250,000 and Resources compliance
Total 20,013,000
Summary Table 6 Efficiencies and rebalancing measures 2021 - summary proposals
Estimated Income
In(£c0o0m0e) Annual Ope(£rCa0ot0isn0t gs) trading fund Deprec(£ia0t0io0n)
to be paid into
(£000) Depreciation
Jersey Car Parking 6,199 5,670 529 1,414 Jersey Fleet Management 4,902 3,008 1,894 1,260
Total 11,101 8,678 2,423 2,674 Summary Table 7 - Trading Operations 2021
Head of Expenditure Trading Fund (£000)
Jersey Car Parking - Car Park Enhancement and Refurbishment JCP - Jersey Fleet Management - Vehicle and Plant Replacement JFM 1,000
Summary Table 8 Trading Operations Capital Heads of Expenditure
Climate Emergency Fund (£2000201)
Opening Balance 1/1/2021 5100 Income 2,700 Expenditure: (4,703)
Closing balance 3,097 Summary Table 9 Climate Emergency Fund income and expenditure
Appendix 3: New revenue initiatives
Appendix 3: New revenue initiatives
Appendix 5: Administrative tax measures
Appendix 5: Administrative tax measures
Additional Minor Administration Measures to be included in the Finance Law (debated alongside the Government Plan)
Legislating for Existing Concessions
Following a review of Business Tax and Miscellaneous Concessions and Practice currently published by Revenue Jersey and available to taxpayers it has been determined that the following should be introduced into the Jersey Income Tax Law:
Foreign Tax on Trading Profits
This will allow traders to claim foreign tax paid on profits earned overseas as an expense against their business profits.
Transfer of all Machinery and Plant to Successor
Where all machinery or plant is transferred by a trader to his successor, the capital allowances will be calculated as if the trade had continued, provided that both parties agree.
Capital Allowances: Commencement of Trade
Where a trader s financial period exceeds 12 months (up to a maximum of 18 months allowed by the Income Tax Law) the amendment will increase the annual written down allowance proportionately to reflect the longer financial period.
Loss Relief: Enhancement of Article 107 / 107a Loss by Capital Allowances
This will allow the capital allowances due to a trader to enhance or create a loss for
relief under the above provisions.
Loss relief under Article 107 and 107A does not apply to companies (other than utility
companies taxed at 20%).
Group Life Insurance Schemes
This will allow a business to claim a deduction against its profits for contributions into a Group Life Insurance Scheme subject to the death benefits payable not exceeding specific limits. This removes the current requirement for businesses to seek approval from the Comptroller of Revenue on a case by case basis.
Taxation of Dividends from Non-Resident Companies Paid Out of Capital Profits (Clarifying Provision)
The Income Tax Law will be amended to make it clear that dividends paid out of the capital profits of a non-Jersey resident company are exempt for Jersey tax purposes.
Appendix 5: Administrative tax measures
Other Measures
Pensions: administrative measures
There are two administrative amendments covering pension provisions under Part 19 of the Income Tax Law.
- Withdrawal of approval of a scheme and appeals
This amendment will ensure that the withdrawal of approval of a pension scheme, and the raising of an assessment in respect of that withdrawal, will become a single legislative step that can be appealed against by the taxpayer.
- Date of election for exemption from tax on lump sums paid from overseas schemes
This amendment will ensure the election date for exemption from tax on lump sums paid from overseas schemes under the pension provisions, matches the July date for filing personal tax returns.
Serving Notices
- This amendment will ensure that returns are required to be delivered even if the requirement is not served by a notice in the following year .
- The law will be clarified to ensure that service of a notice of assessment can include an electronic notice retrieved via an online account.
Set-off Provisions
This amendment will ensure that ITIS remittances made by employers are included within the set-off provisions provided for in the Revenue Administration Law.
Penalties
This amendment to the income tax law extends the £50 monthly penalty due under the law to the late delivery of a return by a foundation.
Clos de Paradis housing trust
Amend the Income Tax Law such that the income of the Clos de Paradis housing trust that is applied for the purpose of providing social housing remains exempt from tax.
Proposed Amendment to the Revenue Administration Law
Revenue Jersey is to be given responsibility for the collection of social security contributions.
Appendix 6: Managing risk
Some of the risks addressed in this Government Plan include:
Rebalancing Budgets
Risk
Failure to deliver balanced budgets
Mitigation
In response to the measures taken to respond to Covid-19, this plan lays out the financial plan that balances the long-term sustainability and resilience of our finances against the short-term pressures. This plan has been developed hand-in-hand with the measures being considered as part of the economic recovery plan. We will consider contingency measures should the worst-case financial scenarios become a reality.
We will revisit our growth plans introducing halt, defer, reduce exercises, and consider various revenue-raising measures to help finance major projects and deliver political aspirations in order to replenish our financial reserves.
Economic Recovery Planning
Risk
Failure to implement an economic recovery plan
Mitigations
This Government Plan will be our recovery plan for the island. We are actively developing this plan and the governance structures to support its implementation. The Economic Council is in place and overseeing the recovery agenda. In the short-term we will continue to maintain a range of economic stimulus packages as part of our overall safe exit strategy. In the longer-term our aim is to develop a plan to create a more resilient Island community, including business and household resilience, develop a skills strategy to underpin the future especially for young people and building in inclusivity and sustainability. We will also continue to consider our place in the wider world by advancing the Global Markets Strategy in support of market diversification away from historic UK/EU reliance, especially in light of Brexit.
Information and Cyber Security
Risk
Failure to protect Government and Islanders data from cyber attacks
Mitigation
Investment in cyber security technology was prioritised in the previous Government Plan and continues to drive current arrangements. These were tested during the pandemic and responded well. Further investment is now being deployed in order to further strengthen our controls alongside the wider developments to the modernisation of information management systems, which have seen historical underinvestment. Section 6 Modernising Government provides more details on the initiatives we will undertake.
Jersey Care Model
Risk
Failure to implement significant health and social care reforms
Mitigation
Following the review of the JCM, a multi-year implementation plan has been developed with key projects prioritised in tranches. Given the assessment through the JCM review and through planning it is been determined that the implementation of the JCM over this government plan period will be completed in three tranches. The emphasis of the first tranche will be on detailed planning, particularly around workforce and change management, to be able to support our health and care professionals to be able to deliver in the new model, establishing the necessary foundations to deliver on the new model, and driving care delivery through enhancing intermediate care. Implementation will need to be phased, to be able to shift to the new model, while being able to be responsive to any immediate needs on the system, including COVID-19.
In developing a realistic and achievable implementation plan we reviewed the deliverability of the JCM. Considering the emerging challenges, the island is facing post COVID-19, the phasing of the programme has been amended to allow stabilisation of the platform within Jersey and internationally, with the roll out of programme phased in three risk assessed tranches.
Safeguarding Children and Vulnerable Adults
Risk
Failure to adopt recommendations identified in the Independent Jersey Care Inquiry.
Mitigation
Longstanding systemic challenges to progress in partnership working have been addressed in a Children s Plan, which sets out shared priorities and outcomes with key agencies, including better joint planning and joint working across Government departments and with the voluntary and community sector. Funding has been allocated in the Government Plan to progress a range of initiatives that respond to the recommendations in the various reports. Revised ways of working were put in place due to Covid-19, the success or otherwise of which will be evaluated in the coming months and years.
One Gov Modernisation
Risk
Failure to implement the One Government modernisation initiative
Mitigation
We continue to maintain our commitment to improve, transform and modernise Government services, to improve the way in which Government and public services function so they deliver modern, efficient, effective and value-for-money services and infrastructure, sound long-term planning, strategic and financial planning, and encourage closer working and engagement among politicians and Islanders. We will
also learn from the challenges faced during the pandemic and utilise the learning to help shape future health and community services.
Brexit
Risk
Failure to prepare for Brexit
Mitigation
Throughout 2020 we have continued to allocate resources to the negotiations surrounding Brexit in order get the best deal for Jersey. Our key aim is to support
a sustainable, vibrant economy and skilled local workforce for the future. Delivery
of Brexit action plans through the Brexit Ministerial and officer working groups will continue to be monitored on a regular basis. Detailed contingency planning continues and reflects the range of possible outcomes from existing EU/UK future scenarios. A No Further Negotiated Outcome scenario could impact heavily on Jersey in the short-term, in common with other European countries. Whilst some flexibility has been built into the Government Plan, significant adverse impacts may require additional amendments.
COVID-19 Second Wave
Risk
Failure to adequately plan for a second wave of COVID-19
Mitigation
Planning structures are in place to respond to any resurgence of the Covid-19 pandemic. In both the health department and across other government departments, officers are continuing to monitor the situation and remain ready to respond if medical evidence suggests a need. The Governance Framework during the pandemic has remained in place and ready to respond. Public health department have undertaken a lessons learnt review to inform possible second wave activity. There is an on-going review of hospital resourcing and resilience. The tracking and tracing systems have been put in place to enable rapid response if required.
Appendix 7: Amendments to the Proposed Government Plan
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(1)) as amended by P.130/2020 Amd.(1)Amd), which agreed:
the heads of expenditure for Strategic Policy, Planning and Performance shall be increased by the following amounts to provide for the establishment of a Public Services Ombudsman
2022: £200,000 2023: £401,000 2024: £412,000 .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(2)) as amended by P.130/2020 Amd.(2)Amd), which agreed:
the head of expenditure for the General Reserve shall be increased by £159,000 with this amount ring-fenced for the Jersey Premium .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(3)), as amended by P.130/2020 Amd.(3)Amd which agreed that:
the head of expenditure for the General Reserve shall be increased by £100,000 with this amount ring-fenced for care leavers .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(6)), which agreed:
the 2021 Estimate for Personal Income Tax shall be reduced by £240,000 by amending Child Care Tax Relief in accordance with the table below with other affected in lines Summary Table 1 to be updated accordingly -
Transaction value up to 2020 Allowance Increase Proposed 2021 Allowance Child Care Tax Relief £6,150 £123 £6,273
Enhanced Child Care Tax Relief £16,000 £320 £16,320
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(7)), which agreed:
the 2021 Estimate for Stamp Duty shall be increased by £335,000 by amending the Stamp Duty bands in accordance with the table below, with other affected lines in Summary Table 1 to be updated accordingly
Transaction value up to 2019 rate 2020 rate Proposed new rate 1-50 0.5% up to 50k 0.5% up to 50k -
50,001 300 1.5% on excess up to 300k 1.5% on excess up to 300k - 300,001 500 2% on excess up to 500k 2% on excess up to 500k - 300,001 500 3% on excess up to 700k 3% on excess up to 700k - 700,001 1 3.5% on excess up to 1m 3.5% on excess up to 1m - 1,000,001 1.5 4.5% on excess up to 1.5m 4.5% on excess up to 1.5m - 1,500,001 - 2 5.5% on excess up to 2m 5.5% on excess up to 2m - 2,000,001 - 3 6.5% on excess up to 3m 6.5% on excess up to 3m 7% 3,000,001 6 8.5% on excess up to 6m 8.5% on excess up to 6m 9.5% 6,000,001 + 9.5% on excess 9.5% on excess 10.5%
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(8)), which agreed that:
the 2021 Estimate for Personal Income Tax shall be reduced by £260,000 by amending Child Tax Allowances in accordance with the table below with other affected in lines Summary Table 1 to be updated accordingly
Transaction value up to 2020 Allowance Increase Proposed 2021 Allowance Child Allowance £3,000 £60 £3,060
Additional Allowance £4,500 £90 £4,590
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(10) as amended by P.130/2020 Amd.(10)Amd), which agreed that:
the head of expenditure for Treasury and Exchequer shall be increased by £50,000 for the purpose of a review into the funding of public services by the Parishes and
the Minister for Treasury and Resources is requested to work with the Minister
for Infrastructure and the ComitØ des ConnØtables and firstly agree the Terms of Reference for a review into the funding of public services by the Parishes, as agreed in the Common Strategic Policy, to carry out that work and then to bring forward any recommendations .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd).(11) as amended by P.130/2020 Amd.(11)Amd), and P.130/2020 Amd. (11)Amd(2), which agreed that:
the Total Revenue Head of Expenditure for Customer and Local Services shall be increased by £300,000 to provide support as required during 2021 for Beresford Street Kitchen, and that the Council of Ministers shall request officers to work with the organisation to support the development of a financially sustainable business model for future years .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd).(12) as amended by P.130/2020 Amd.(12)Amd), and P.130/2020 Amd.(12)Amd(2), which agreed that:
the Heads of Expenditure for Financial Services and Digital shall be increased by £750,000 in 2021 in order to fund the development of Elizabeth Castle, including the Hospital and Officers Quarters and the revised business case for that development,
with a commitment that funding shall be provided in subsequent years to complete the development, no later than the end of 2025, subject to the agreement of an updated business case and after the Jersey Heritage Trust and Ministers have worked together to thoroughly investigate other potential funding mechanisms, and that any such funding shall be over and above the 1% allocation for Culture, Arts and Heritage of overall expenditure .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd).(13), which agreed that:
on page 62 of [the proposed Government Plan 2021-24], after the words going to these sectors in 2022. there should be inserted the following words We commit to the reinstatement of funding at the agreed rate of 1% of net revenue expenditure for 2024 and beyond. .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(14)), which agreed:
the Minister for Treasury and Resources should prioritise the application of any unspent funds in 2020, be these in respect of spending related to COVID-19, departmental revenue expenditure or capital expenditure, to be returned to the Consolidated Fund, and used to minimise the borrowing requirement from the revolving credit facility and
that the Minister for Treasury and Resources should prioritise the application of any unspent funds in 2021, be these in respect of spending related to COVID-19, departmental revenue expenditure or capital expenditure, to be returned to the Consolidated Fund, and used to minimise the borrowing requirement from the revolving credit facility and
that the Council of Ministers are to agree an estates strategy in sufficient time for the next Government Plan (2022-25) to include a list of potential sales, in order for any funds raised to be prioritised for use to minimise any future borrowing .
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd).(17), amended by P.130/2020 Amd.(17)Amd), which agreed that:
the Total Revenue Head of Expenditure for Strategic Policy, Planning and Performance shall be increased by £150,000 to provide funding for Statistics Jersey to undertake additional surveys and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey and to provide funding to develop a Poverty Strategy and
on page 60 [of the proposed Government Plan 2021-24], after the words when approved by the States Assembly there should be inserted the following words
We commit to funding Statistics Jersey to undertake additional surveys and analysis as needed to complement the results of the 2019/2020 Living Costs and Household Income Survey, to ensure that detailed information can be published on current levels of relative low income ( poverty ) in Jersey, using both established measures and also taking account of the work of the Social Metrics Commission; and to develop a Poverty Strategy for inclusion in the 2022 Government Plan.
- The States Assembly adopted an amendment to the Government Plan 2021 2024 (P.130/2020(Amd)(21)), which agreed:
the expenditure from the [Climate Emergency] Fund shall be increased by £300,000 to fund tree preservation initiatives and
on page 79 of [the Government Plan], after the words Marine Resources management and natural environment there should be inserted the following words Commitment to funding tree preservation initiatives: additional expenditure per year of £75,000 in the years 2022, 2023, and 2024 .