The Queen's Speech still matters for both the Government and the public — even though there are no surprises and virtually all the measures have been foreshadowed.

In the past, this has often happened unofficially via ministerial speeches and consultation papers. But, this year, for the first time, the new Brown Government published a draft legislative programme in July setting out the list of the main Bills. And this list found its way in almost exactly the same form in the Queen's Speech. One of the few new items is the proposed Bill to strengthen protection of depositors in banks and building societies, which has emerged only after the Northern Rock affair in mid-September.

As always, the attempts by Downing Street to present a clear, over-arching theme are only half-convincing. The most telling word is “aspiration”: used both generally in taking forward policies — “to respond to the rising aspirations of the people of the Untied Kingdom” — and, more specifically, in meeting “people's aspirations for better education, housing, healthcare and children's services, and for a cleaner environment”. Make of this what you will.

In the accompanying briefing note, there is the characteristic Brownite phrase: “The priorities of Britain's hard-working families who play by the rules are the priorities of the Government.”

The new feature of the coming programme — and one where there is a different priority from the Blair era — is housing. A Bill is being proposed to “support the delivery of the three million new homes needed by 2020”, notably by the creation of a new Homes and Communities Agency to bring land and housing together. This will be reinforced by a Bill to simplify the planning system, to accelerate decision-making.

Among the other key measures are ones ensuring that young people stay in education or training until the age of 18; the creation of a Care Quality Commission with new powers to inspect hospitals; improving services for vulnerable children; protecting the environment; strengthening of powers to fight terrorism; reducing the regulatory burden on business; approval of the Lisbon European reform treaty; and improving the accountability of the executive to Parliament, as part of a wider programme of constitutional renewal.

These measures are far from negligible. They could make a real difference in a wide range of areas. However, many key issues have been left unclear. For instance, there is no reference to an increase in the present 28-day period for detention before charging for terrorist suspect, though a doubling to 56 days is expected. Similarly, the formal Speech merely states that the Government “will bring forward proposals on the regulation of party funding and expenditure”. After the collapse of the cross-party talks on funding last week, ministers have not yet decided what form any spending limits might take.

A common theme is an interventionist state, working to help the vulnerable and broaden opportunities. How far the State can assist in these ways is likely to be at the heart of the political debate over the coming year.

Of course, this list of Bills covers only part of what the Government will do over the next year. Many of the most important actions are non-legislative — responding to events, both at home and abroad. The standing of the Government is as likely to be affected by what happens in the economy, the impact of the credit squeeze, as by this new programme of legislation.

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