The Queen unveiled 23 bills

Tony Blair's programme for the next year also includes preparation for ID cards, more rights for same sex couples and a bill to allow a euro referendum.

But there was no commitment to ban hunting in a speech the government said centred on "fairness and the future".

The Queen addressed MPs and peers amid the traditional pomp in Parliament.

The speech, written by the government for the Queen, includes plans for 23 Bills, two of them carried over from last year's legislative programme, and seven draft bills.

There are proposals to strengthen the UK's ability to deal with possible terrorist attacks, including updating fire and rescue equipment.

KEY BILLS Immigration and Asylum Higher Education Domestic violence Judicial reform Pensions Bill Civil contingencies Civil partnerships Traffic management Lords reform Finance Bill Child protection Read more about these Bills

One of the most headline-grabbing measures is a bill aimed at tackling roadworks chaos, while there are also plans aimed at tackling traffic disruption caused by the "school run".

The Traffic Management bill would see the creation of uniformed "jambusters" patrolling motorways.

A draft bill setting up the legal framework for a referendum on joining the euro currency has been included despite speculation the plan had been ditched.

But it is the proposals to allow universities to charge students top up fees are likely to cause the most controversy.

They have already been condemned by a large group of Labour MPs, including several former ministers.

Around 100 are threatening to oppose the plans in the Commons - enough to defeat the government.

'Key challenges'

Downing Street said the Queen's Speech - the seventh since Tony Blair came to power - was about "facing up to the challenges of the future, but doing so in a way that pursues social justice".

It said the speech addressed "some of the key challenges of the future".

"The Higher Education Bill is about how we get more children from poorer backgrounds into higher education, and more funding for our universities to compete in the world.

"The Asylum and Immigration Bill is about how we continue to ensure we have an asylum system with real integrity - streamlining the appeals process - so that those fleeing persecution are made welcome, and those who aren't are dealt with quickly."

Other proposals in the Queen's Speech include moves to reform the House of Lords which would create a US-style Supreme Court, abolish the remaining 92 hereditary peers and the role of Lord Chancellor.

The changes would also stop convicted criminals such as Lord Archer from sitting in the upper house.

The lack of a commitment to a hunting bill will anger some Labour backbenchers after the Lords blocked attempts to ban hunting with dogs earlier this year.

Pension fears

Plans to introduce child trust funds, outlined in the Budget this year, are confirmed. The proposals would give every baby up to �500 to start a savings account it can access on its 18th birthday.

Moves to speed up house sales include the introduction of "seller's packs" for prospective buyers.

There are also details of a widely expected Pensions Bill aimed at protecting company pension schemes.

The civil partnership bill is expected to allow same sex couples to register their relationship and gain the same tax and inheritance rights as married couples.

Others bills are aimed at tackling disability discrimination and giving more protection to victims of crime, with the creation of a Commissioner for Victims and Crime.

Child protection

There are also proposals to update the law on domestic violence.

Measures aimed at improving child protection, including the creation of a Children's Commissioner for England, were also outlined.

The plan will mean a record will be kept on every child with the aim of improving information sharing between social workers, police, education welfare officers and teachers.

The measures are the government's response to Laming Inquiry into the death of Victoria Climbie.

The speech also includes proposals to regulate the retention of human tissues, plans prompted by inquiries into the use of organs and tissue from children who had died at hopsitals in Liverpool and Bristol.

The Queen's Speech was given about two weeks later than usual because of a backlog of Bills in the 2002/3 session blamed on time spent debating Iraq.