The study by the Improvement and Development Agency (IdeA) reveals that one in four councils do not expect to have appointed a director of children's services by the Bill's main deadline of 2006.
Every single social services authority in England responded to the survey, which found that 17 per cent of them had a director in place.
However, 59 per cent have not got a director in place and 23 per cent have made "alternative arrangements". This latter group of 35 authorities believe they are already delivering the integrated agenda without the formal structures required by the Children Bill.
Of those who did not have a director in place, 19 per cent said they had no timescale and four per cent said it would definitely not be before 2008.
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