Annabel Goldie yesterday set out plans to focus the Tory election campaign on drugs, families and affordable homes - but pledged not to get into government to deliver them.

Instead, the party's Scottish leader wants to be in opposition, influencing other parties' ministers on a selective range of issues.

Publishing her programme of policies for the May 3 election at a children's play centre in Galashiels, the Scottish Tory leader said she is not willing to compromise with other parties, and promised no coalition, pact or horse-trading. Goldie argued she wants to continue using her opposition role, claiming already to have shaped policy on drugs, prisoner release and Scottish Water.

The Tory manifesto is not a complete programme of government, though she did not rule out bidding for a place in government at another election. Instead, it seeks to focus on selected "bread and butter" issues, and to steer away from arguments about independence.

It makes clear that Tories do not want to use Holyrood's power to cut income tax, though they want to halve council tax for pensioners and reduce small business rates.

Since Westminster leader David Cameron toned down the party's support for more nuclear power, saying it should be a last resort, Scottish Tories have changed their nuclear enthusiasm to say they would not block a new plant. They would, however, freeze on-shore wind farms.

Tackling crime, drugs and drug rehabilitation would cost £1bn over four years, with a budget set out yesterday that sought to explain how that could be found. Much of it would come from slashing the role of Scottish Enterprise and axeing Highlands and Islands Enterprise along with local enterprise companies. Their functions would be shared around a new Skills Agency and councils.

The manifesto spelled out parts of Tory policy already partly announced. One new aspect was a commitment to review NHS24, the out-of-hours helpline to reduce GP call-out costs. Tories believe the call centre approach should be scrapped and want to see out-of-hours local centres with clinicians on hand. Their health policy also courted controversy by admitting the introduction of choice for elective procedures under the NHS would lead to hospitals closing if they fail to attract patients.

The opposition to taking any partnership role in government is partly because Tory members would not accept that. "Coalition has failed Scotland," said Miss Goldie. "I think what we've seen is eight years of fudge, compromise, dodging issues and frankly reducing everything to the lowest-common political denominator. That has failed Scotland. I think it's time for a fresh approach."

The budget plans, even though there is no intention to implement them, would shift £916m per year into Tory priorities. Slimming down the enterprise network would cut £413m, though £200m would be recycled into the skills agency and council budgets.

The £190m annual allocation to Scottish Water would be removed by its change of status, and government agencies would be required to produce £313m in savings and efficiencies. Abolition of Communities Scotland would save £25m, Tories want to cut one sixth of the cost of the £600m Edinburgh airport rail link, and they would make cuts in arts and culture spending.

The budget would see £240m spent annually on crime and drugs, with £35m allocated on the recruitment of the 1500 extra police officers and £25m to build a new prison.

Labour's response focused on the Tory freeze on on-shore wind farms, the effect of cutting back Scottish Enterprise and criticising the plan to axe Highlands and Islands Enterprise.

LibDems said the Tory manifesto was short on ideas and replaced policy with reviews on health, education, transport and local government. The SNP claimed to have YouGov poll findings that 68% of people do not trust Conservatives to be their voice in the Scottish Parliament - including some Conservative supporters.

Doctors at the British Medical Association warned that the health policies would require more GPs while the plans for more patient choice would "ignore quality of care and fail to protect rural services".

Conservative plans:

Justice

  • Tougher sentences after three convictions. Less bail for serious offences. Youth courts for 14 and 15 year olds. 1500 more police in neighbourhoods. £1bn over four years to fight drugs, including £100m per year on rehabilitation.

Economy

  • Half-price council tax for pensioners. Cut back size of public sector, starting with MSP numbers, and review Holyrood powers. Cut down Scottish Enterprise to quarter of its budget.

Transport

  • Review to consider high-speed rail links, including Maglev between Edinburgh and Glasgow. Remove tolls on Forth and Tay bridges and build new Forth crossing. £15m annual fund for road accident black spots.

Education

  • More power for head teachers. Councils required to set out plans to boost science and technical subjects in schools. Reinstate school boards. School bus services to pick up and drop off children.

Families and communities

  • More flexibility on childcare. Affordable Housing Trusts, with £33m to support people onto property ladder.

Energy

  • Freeze on on-shore wind farms. Grants of up to £4000 for home-owners or businesses to install renewable energy. No block on nuclear power.

Health

  • Closed and threatened casualty and maternity wards should be preserved. Dental hygienists in schools, with £10m annually. Improved mental health services, with waiting times measured.

Government

  • Review local government, more power to directly-elected provosts. Shift council elections to mid-point of Holyrood term.