does not commit it to do too much in its first year in power.

That does not mean that it has not set itself a busy schedule. Much is promised, especially in the education field, and some of the proposals will doubtless be controversial.

But there are few surprises -- rightly so since the Progressive Labour Party laid out a very ambitious programme in its Election platform. Some people may be surprised that more of the platform's promises are not in the Speech, and this underlines the difficult balancing act the PLP must perform: on the one hand, to fulfil the promises it made to the public which elected it, while at the same time not moving so fast that it alienates the rest of the population, or makes fatal errors in its haste to satisfy the voters' expectations.

A Throne Speech has two functions. First, it lays out the Government's basic legislation and policy plans for the year. Secondly it explains its overall philosophy of government.

In terms of legislation, the Throne Speech appears to be somewhat thin. Just four bills are identified for the Parliamentary year, although a range of financial laws, some unidentified and some dealing with electronic commerce and intellectual property are also promised.

In terms of philosophy, Governor Thorold Masefield told Parliament: "You have earned the trust of the people of this country;...You have been elected to lead this Country into a new era -- an immense task that will require a new sense of determination, a new sense of vision, and most importantly a new regard for the people who have elected you.'' These words, written by the Government for the Governor, outline the job before it. The speech adds: "This new Government pledges to involve Bermuda's people at all levels, and at all stages, in the execution of our duties to create an inclusive framework for the building of one Bermuda...The New Bermuda.'' This sense of inclusion is vital, for despite the fact that 55 percent of the population voted for the PLP in the General Election, this Government must ensure it represents all of the people.

If it fails to win and maintain the confidence of the local and international business community, the economy and the tax base will shrink, making it impossible for it to deliver on its promises. When the Government states towards the end of the speech that "the challenges are many and the financial resources are not as adequate as Government would wish them to be'', the need to include all and have the confidence of all becomes doubly important.

It is right for the Government to be cautious and on major policy moves, it is taking what is probably the right approach of study first and move later.

This is what it will do in areas such as international business, the Police and land use. In some areas, such as tourism, some will be surprised that more is not being proposed after years of criticism of United Bermuda Party policies. Nonetheless, Tourism Minister David Allen promised that within 100 days, the community would see the first signs of tourism's new direction plans and the Throne Speech keeps to that promise. We will have to wait and see.

Finally, it is not clear how Government plans to pay for its programmes. Much of that will be revealed in the Budget in February, although it to be hoped that the reference to "inadequate'' is not a harbinger of increases in taxes.

It may be that promises to review Government contracts will be done with a view to increasing efficiency and not with a view to "redistributing pork''.