Mark1
Apologies for my slightly flippant remark but I, like you, have a pretty good understanding of the way the whole RRO/guidance thing works.
If the ODPM had really listened, unlike the 'targeted consultations' and lip service paid to some other well meaning organisations, then many of the delays will not have occurred.
The FSAB was disolved, I believe, on a political/civil service whim and this removed a valuable layer of advice from the department.
Several of this group, including most of the main stakeholders, argued in favour of a risk assessment guide followed by short guides targeted at particular purpose groups. I believe, unofficially, that the consultants now emptying the ODPM's coffers, also would prefer to re-write in this format.
Several problems were pointed out in the RRO, some as long ago as late 2003 and yet they were only addressed last week.
If the ODPM didn't appear to think that all stakeholders only had a narrow self interest agenda then much of this would have been sorted months ago.