A possibly related issue here: I've recently been talking to two different MPs about another subject and the lack of viable outcomes, and both of them told me that the issue was the civil service.
If they don't like something, they pretty much won't do it. If you complain about it, they then accuse you of bullying.
One of them even said that "people think MPs run the country, we don't. It's the civil service." Apparently, the problem is all the way down, not just in Westminster, so even if Whitehall is fine, a policy can be stymied on a local level by a senior with a team of five in an office in Leeds.
It's a state within a state.
So if significant strata of the civil service have been captured by TRA rhetoric, it's possible that they are filibustering draft documents to constantly hold up rollout.