At the top of the next page, we can see Mr Dorrell's thinking:
"We must not exhaust all our armoury at once. Even given John Wakeham's more robust approach, a future breakdown of press self-regulation comparable with the one precipitated by the Mirror papers cannot be ruled out. With the tort enacted, we shall be left with only the nuclear threat of statutory regulation to encourage improvement. As you know, I'm not attracted to the rhetoric of the last-chance saloon but my proposal still keeps the tort up our sleeves."
So I suppose he's saying there would be the intermediate step before the final nuclear option, that we can introduce the tort if press regulation breaks down, take it in stages. Is that what he's saying?