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Making and implementing policy in government is, in many ways, like managing a production line. The process often starts with a ministerial speech which sets out the purpose and scope of a new policy initiative.

Then there will be a White Paper – which may or may not be preceded by a more consultative Green Paper.

Almost invariably, some aspects of the White Paper will require legislation. And it's at this point that there may be a bottleneck in the production line as ministers and departments compete to get parliamentary time for their particular proposals. But, while they are waiting, parliamentary counsel might be instructed to draft the legislation.

The passage of a Bill can take anything from a few weeks to 18 months – depending on whether it is published first in a draft form.  But even when the Bill has received royal assent, the policy process is far from complete as primary legislation is turned into more practical requirements via secondary legislation and statutory guidance. 

It is only at this point that implementation of a policy will start to kick in. As production lines go, it is not the speediest.
It's worth rehearsing this sequence because of how things stand with the White Paper on local government, published by Ruth Kelly in October 2006. It is only now that its proposals and the ensuing requirements of the Local Government and Public Involvement in Health Act are starting to become operational. 

For example, from 1 April, local authorities and primary care trusts have been under a duty to produce a joint strategic needs assessment. And, as authorities start to finalise targets in their local area agreements, they are also designating the specific delivery responsibilities of partners – so that the new accountability arrangements under the Act can come into play. 

But a lot of White Paper and the legislation has still to take effect. We are still waiting for the final statutory guidance on LSPs to be published. There are regulations to come on the new extended powers for councils to scrutinise the role of partner agencies. The councillor call for action is meant to be the subject of guidance.

The new Comprehensive Area Assessment framework is still very much under construction and won't be in operation until 2009/10. 

April 2009 is also the date for the new duty to consult and involve local people to go live.

There are the new arrangements for standard committees and responding to complaints about councillors' behaviour to implement.

And most significant of all, the requirements for council leaders to serve a four-year term and to have mayor-style powers will be phased in from May 2009, as different types of councils come up for election. 

In a nutshell, CLG and local authorities still have a huge amount to do before the revamped local government model rolls off the production line. 

Despite this, a parallel production line looks like it is being commissioned.

Hazel Blears' speech at the beginning of March signalled a new White Paper that will focus on how ‘we can reinvigorate the grass roots of our democracy… reconnect people with politics… and give them a greater say and make sure the local council, school or hospital truly responds to their individual needs'.

But do we need another White Paper? I can understand that the secretary of state wants to respond to the recommendations of the Roberts' commission on councillors. I am also sympathetic to Ms Blears wanting to put her personal and passionate commitment to empowering local people at the heart of the public policy agenda.  But why another White Paper? 

Ms Blears is already implementing schemes for communities to engage in participatory budgeting and manage community assets. Regulations still have to be made as part of the new legislation on consulting and involving local people, so why doesn't the minister use these powers to drive forward her mission? 

Wouldn't it be better to consolidate and use the framework which has just passed into law rather than go down the road of creating yet another one via a new White Paper?

And, if we have to have parallel policy production lines, can we at least make sure that they are working to the same blueprint!

Robert Hill is a former adviser to ex-PM,Tony Blair, and now works as an independent consultant