The panel said the amendment aimed to guarantee fees would only be introduced once assurances and safeguards were adequately developed, published and approved by the assembly.
It added while an in principle decision was reasonable at this stage, the current lack of “scoping and analysis work” meant it would be inadvisable for members to not debate or influence the introduction of fees.
Panel chairperson deputy Louise Doublet said: “The panel did have concerns about how patients might be impacted, about the health of people using the services, but also the staff.
“How do they make those decisions on who can access care in A&E and who can’t?”
Binet said he was happy to accept a move to give the assembly the chance to make checks before the proposals were put in place.
He added: “We did make it clear we wouldn’t be introducing any changes until we’re absolutely certain that it wouldn’t put anybody’s health at risk.”