A Department for Health and Social Care spokesperson said: "Despite our actions to protect patients during the colder months, including vaccinating more people than last winter, we know hospitals are feeling the strain.
"Annual winter pressures should not automatically lead to an annual winter crisis." It says its "decisive action" included ending the junior doctors' strikes and rolling out the country's first RSV vaccine.
The Royal College of Emergency Medicine said in response to the report there was a "clear roadmap" and that the urgent and emergency care plan and a 10-year plan for the NHS, which are both due soon, offered "an unmissable opportunity to implement changes that are so desperately needed".
In a separate move the Department of Health and Social Care said a target for increasing the number of hospitals in England allowing patients to view appointments through the NHS app had been exceeded. The target was 85% by March and the outcome was 87%, up from 68% last July, it said.
The department also said because more patients could get access to correspondence via the app, 12 million fewer letters had been sent since July. There were 1.5 million fewer missed appointments, it said. Ministers said this was helping cut waiting lists and saving taxpayers money.