The Government today published a timetable to ban smoking in the majority of indoor public places in England, but stopped short of meeting growing demands for a blanket ban on lighting up in licensed premises.

Caroline Flint, the Public Health Minister, unveiled detailed proposals on legislation, which would make offices, shops, sports grounds, public transport, restaurants and pubs that serve food smoke free.

Critics said that the proposals constitute a "halfway house'" ban due to a series of potential loopholes: herbal tobacco will not be outlawed, pubs which serve only snacks escape the ban and there is convoluted discussion over the precise definition of an enclosed space.

Publicans said that the nature of the various exemptions meant the ban would be unenforceable, while pro-smoking groups insists that it is unnecessary.

Ms Flint maintained that despite the compromises, the vast majority of workplaces would be smoke-free the end of 2008 and the proposals outlined represented a giant leap for England's health.

She said: "Clearly there are people in the medical profession who would prefer an outright ban. But [it was] also felt there should be some consideration of the fact that cigarettes are not illegal and there should be some element of free choice."

Under the timetable set out in the consultation paper:

- By 2007, smoking will be banned in all Government and NHS buildings

- By 2008, all public enclosed spaces except licensed premises will be smoke free

- By 2009, measures will be in place in licensed premises

The measure on licensed premises is proving the most politically sensitive. Last year, John Reid - then the Health Secretary, raised eyebrows by suggesting that cigarettes constituted one of the "life's very few pleasures" for the working classes.

His successor, Patricia Hewitt, is unlikely to repeat such sentiments but remains mindful of her "nannying" reputation and is keen to ensure she has taken the temperature of public opinion before progressing the measures.

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