Whitehall sources said the paper would suggest an end to "spot" listing. This is a tactic used by conservation bodies to prevent a building being demolished, which can hold up regeneration schemes.
The document will propose the transfer of responsibility for grade II-listed buildings from English Heritage to local authorities. This would give councils more freedom to harmonise their conservation and development strategies.
It will also recommend that the decision whether to list a building should take into account its social and economic qualities.
The report will propose that councils be given control of grade II buildings
A joint committee, headed by English Heritage and architecture watchdog CABE, has been set up to oversee the proposals.
Statutory conservation bodies are gearing up to respond to the proposals. The amenity societies, which include the Twentieth Century Society and the Ancient Monument Society, are to meet for the first time next week to formulate their policy.