Complex sentence: White papers are used to educate readers and help people make decisions, and may be a consultation as to the details of new legislation, it does signify a clear intention on the part of a government to pass new law.
Split into simpler sentences: White papers are used to educate readers and help people make decisions, and may be a consultation as to the details of new legislation. The publishing of a white paper signifies a clear intention on the part of a government to pass new law.