this is a legacy from the Labour government called Part P.
Although the consultation document may have been
issued in 2002, it contained the results of the Regulatory Impact Analysis (performed by Civil Servants, not politicians) which must have taken a while, and the first edition of Approved Document P (ditto).
The whole process which led to the consultation document being issued kicked off in response to the Construction Industry Deregulation Task Force’s 1995 report which recommended amongst other things that the Building Regulations should address electrical safety and that the administrative burden on builders should be rationalised. The Government at the time responded to these recommendations by agreeing to review the case for new requirements and how they might best be practically introduced.
Blair/Brown/Prescott were nothing to do with the Government in 1995 (some bloke called Major was in charge), and between 1997 & 2002 there were a few other distractions, like handing back Hong Kong, wars in Kosovo & Afghanistan and the run-up to the 2nd Gulf one, Scottish & Welsh Devolution, House of Lords reform, Foot & Mouth crisis etc. When a report produced after years of work by civil servants and industry experts telling them that painstaking and diligent research showed that this proposed legislation, supported by hundreds of relevant and expert bodies, would save lives arrived it was not unreasonable for them to say "OK, we'll lay it before Parliament", rather than starting all over again to verify the work already done. That's how governments work and that's what would have happened whoever had been in power.