Agenda that spells trouble in Scotland Looming Holyrood election slows reform of the NHS ANALYSIS

The trouble for the prime minister, and his Scottish colleagues, is that his writ on public services stops at the border, and as The Herald revealed two weeks ago, progress in Scotland is lagging behind England in six of the nine key health indicators.

The Queen's speech only exacerbates the problem. The prime minister could not have made it clearer. The juggernaut of reform will continue in England. Mr Blair may have his own problems at Westminster over some aspects of public service reform but he is prepared to fight his corner. In Scotland, it is up to the Scottish Executive. Many Scottish MPs want the Labour leadership north of the border to do the same, to drive forward a vision of public service reform.

Nothing concentrates the mind of politicians more than the prospect of an election. The next election in Scotland will be in two years' time, and the Labour hierarchy believes it will pay a heavy price at the polls in 2007 if public service delivery does not improve.

Alistair Darling, the Scottish secretary, has already - uncharacteristically - told Jack McConnell publicly to stop mucking about with health service reform. Gordon Brown met the first minister shortly after the election. It is likely he repeated the message.

Mr McConnell's Westminster colleagues believe he understands what needs to be done but is hampered by Scottish colleagues, who refuse to make any decisions that may be unpopular with the vested interests opposed to the English reforms. Now they hope the general election results, which left large swaths of Scotland without Labour MPs, and the LibDems breathing down the necks of some, will be the spur they need to make the difficult decisions.

Mr Blair even gave Mr McConnell the political space to take on the Liberal Democrats, to distance Labour from the LibDems on the executive.

He told MPs: "They run to the right of Labour in Tory constituencies, to the left of Labour in Labour constituencies and in this parliament we are going to make them choose."

Nichol Stephen, the frontrunner for the LibDem leadership in Scotland, is already making his own space. Asserting that change is taking place in Scotland, he is nevertheless already poised for more.

He said yesterday: "It is vital to come forward with new solutions that work. I don't believe in putting barriers in the way of change. We must deliver improvements for patients in all communities in Scotland.

"I am prepared to take on any vested interest whether it's the college of physicians, the trades unions, the GPs. I hope it is not necessary but all organisations should be putting patient care first."

The Queen's speech may have thrown up other headaches for Mr McConnell.

The legislation allowing for the phased introduction of ID cards is reserved, so will proceed through Westminster, but if it succeeds it already looks certain that ID cards will have to be produced by consumers of the NHS in England to prevent fraudulent use of NHS services.

MSPs have already rejected that option but they may then have to contend with an influx of health visitors to Scotland.

As expected, the Queen's speech promised to reform incapacity benefit. The details were sparse, probably because they have not been worked out, but it seems that David Blunkett, the new work and pensions secretary, may have to be content with using the carrot rather than the stick. Not only will the government's reduced majority militate against compulsion but a majority of Mr Blunkett's cabinet colleagues will not support it.

Not much was made of it yesterday, but it is understood that Mr Blairwill try to oversee reform of the pension scheme before he leaves office. While senior members of the government, including the chancellor, do not believe pensions provision is as dire as sometimes portrayed, the prime minister has accepted that the current system has to be changed.

Underpinning the entire Queen's speech was the government's determination to restore respect. Promising to reclaim the street for the decent majority, he promised measures on crime and anti-social behaviour.

Mr Blair sounded like a man in a hurry. He is. He delivered a big agenda, and he knows and we know that his time at the top is running out. He said so himself.

RESPECT: AN ETYMOLOGY

The word, borrowed from Old French, first appeared in English around 1380 as a noun. It was first recorded in its present meaning - as high regard or honour - in 1586. The verb was first recorded in English in 1560.

407 years later, it was given a feminist floss when Aretha Franklin covered the Otis Reading's hit song.

It was given a political gloss by George Galloway who launched Respect as an anti-war party last year.

Tony Blair now hopes to instil a "culture of respect" in today's youth.

THE BILLS

A total of 44 bills and six draft bills are in the 2005 Queen's speech. One further bill - on reforming the House of Lords - is included, but no legislative timetable was given. They include:

Identity cards A UK-wide measure and likely to be one of the most controversial bills of the parliament. It would cost an estimated pounds-3bn.

Each UK citizen would be issued with a "biometric" card bearing fingerprints and other personal details stored on a new National Identity Register database.

Although they would not initially be compulsory, ID cards would be required for access to benefits and services supplied by the UK government. The Scottish Executive has said it would not require ID cards for access to services it provides.

Alistair Darling, Scottish secretary, believes Scots will "come to accept" ID cards as "convenient".

Violent crime Although mostly England-only, it includes measures on firearms that would apply in Scotland.

Scottish ministers have been in talks with their Westminster counterparts over measures to reduce the availability of replica guns and the misuse of airguns.

Government is considering proposals to ban or license air guns. Specific plans will be announced at the end of July.

Incapacity benefit The government wants to reform incapacity benefit (IB) to ensure those who can work, do work. With one in five men in Glasgow on IB, this legislation would have huge implications for Scotland, where in some areas IB is a bigger expenditure than unemployment benefit.

Immigration and asylum This is part of the five-year strategy to modernise the UK system. It includes measures for a points system for work permits to help counter the negative effect of Scotland's falling population on the Scottish economy. It would also increase penalties for those who employ illegal workers.

Consumer credit Consumer credit laws are to be updated in an attempt to give people greater protection from unfair lending practices. It would help protect people from loan sharks who have long infested Scottish housing schemes.

Work and families:

parental rights Would extend statutory maternity pay for mothers across the UK from 26 to 39 weeks from 2007, and would permit some to be paid to the father.

Company law reform Ministers want to make it easier to set up and run a UK company as part of its drive towards a more flexible and competitive economy.

Armed forces This would establish a single system of service law for the armed forces.

Civil aviation Intended to strengthen the regulation of aircraft noise and emissions of all UK flights.

EUreferendum Laws setting out the rules for a vote on the draft EU constitution, which could take place in spring 2006. Would require a Sewel motion.

EUaccession This would pave the way for Bulgaria and Romania to join the European Union in 2007.

Housing benefit A housing benefit shake-up designed to extend tenants' personal responsibility for paying their rent; provide local authorities with clearer powers to investigate benefit fraud; give tenants more choice when making housing decisions. It would apply across the UK.

Road safety It would overhaul penalties for road traffic offences with a more flexible system of fixed penalties for offences like speeding.

Judicial pensions This would maintain the current value of judges' pensions within their overall remuneration package.

Merchant shipping Would increase compensation available in case of an oil spill.

Regulatory reform Legislation to streamline regulatory structures and make it simpler to remove outdated or unnecessary legislation. It would apply in Scotland only in relation to reserved matters.

National Lottery Aims to streamline the process for applying for lottery cash by establishing a Big Lottery fund and giving the public more say in lottery distribution decisions.

The bill would confer functions on Scottish ministers in relation to the Lottery in Scotland. The Scottish Parliament has already passed a Sewel motion on it.

Regulation of financial services Would regulate reversion schemes, where the elderly sell a share of equity in their home in return for an annual income.

Animal welfare Mostly England-only, but contains a provision to enable the Scottish courts to recognise convictions in English courts that would be subject to the consent of MSPs under the Sewel convention.

Electoral administration Would establish new electoral fraud offences to ensure the security of postal ballots for UK elections.

Counter-terrorism (draft) Would remedy any "gaps or deficiencies" in the Prevention of Terrorism Act which became law at the end of the last parliament.

Equality This would aim to extend protection against discrimination to religious faith and would also establish a single Commission for Equality and Human Rights. A Sewel motion would be sought to ensure this applies to areas devolved to the Scottish Parliament.

Health improvement and protection Mainly England-only and includes measures to ban smoking in enclosed public places in England by 2008 and measures to tackle MRSA, the hospital superbug. Only those aspects of the bill regarding reserved matters - such as the Medicines Act - would apply in Scotland.

Natural environment and rural communities Mainly England-only, but some aspects of the bill may touch on issues such as climate change and energy that would have implications for Scotland.

Mental health Would provide a legal framework for treating people with a mental disorder without their consent when they pose a risk to others or themselves. Some aspects would apply in Scotland.

Management of offenders Mostly England-only, it would extend powers of tagging and allow lie detector tests for sex offenders.

Olympics This bill will only be introduced if the UK wins the Olympics bid.

Scotland would host some events.

Pensions (draft) Not expected before the Turner Commission reports in the autumn.

House of Lords A free vote will be allowed on further reform of the upper chamber.

Bills that will apply in England and Wales only:

Charities - Aims to increase volunteering.

Childcare - Places duty of care on local authorities.

Child contact and inter-country adoption - Would give courts more flexible powers.

Common Land - Greater protection for common land.

Compensation - Discourages the "compensation culture".

Corporate Manslaughter - Holds bosses to account for dangerous workplaces.

Coroner Reform - Following two independent reviews.

Criminal Defence - Limits the use of legal aid.

Crossrail - Paves the way for a Crossrail link across London.

Education - Gives good state schools more freedom to expand.

Fraud - Strengthens current law.

Incitement to religious hatred - Makes it a criminal offence.

NHS redress - Allows patients to claim compensation for mistakes.

Safeguarding vulnerable groups.

Bills that apply to other parts of the UK only:

Commissioner for Older People (Wales) Bill.

Government of Wales Bill.

Transport (Wales) Bill.

Northern Ireland CounterTerrorism Bill.

Northern Ireland Election Bill.