If possible, come back to the draft the next day and read it afresh. Does the paper as a whole flow logically and coherently? Cut back on non-essential detailed argument.
Ask yourself: is every sentence necessary to support the recommendations? Is every sentence relevant? In not, omit the sentence.
Ask someone who is familiar with the topic and someone who is not familiar with it to peer review the draft.
Remember you are writing not only for your Minister but also for other Ministers on the committee who may have no detailed knowledge of the subject matter.
Imagine you are a busy Minister who has 20 papers to read and understand in a short time frame.
Imagine you are a Minister who does not have a close knowledge of the subject but has a clear understanding of the potential political implications of certain courses of action. Have you explained adequately points that Ministers may focus on?
Ask yourself: Is your Minister going to get the desired result from this paper? What elements of the paper could lead Ministers to decide to do something different or decline the proposal? Do the recommendations give explicit and appropriate direction/authority for the department required to action the proposal?