Under the plans a new universial vaccination programme could start in the autumn of 2014 with a nasal spray vaccine, called Fluenz, that avoids the use of needles.
Schoolchildren from the age of five would be vaccinated every year. Currently only children with serious long-term illnesses are given the seasonal flu jab.
A panel of independent experts which advises the government believes the move could save lives and stop flu spreading through the general population.
The panel is in the final stages of evaluating research on vaccinating schoolchildren before formally recommending the expansion of the programme.