A paper under consideration (2,5)

I believe the answer is:

at issue

'under consideration' is the definition.
('at issue' can be a synonym of 'under consideration')

'a paper' is the wordplay.
'paper' becomes 'tissue' (tissue is a kind of paper).
'a'+'tissue'='AT ISSUE'

(Other definitions for at issue that I've seen before include "Being discussed or disputed" , "Questionable" , "In question, under discussion" , "in dispute" , "under debate" .)

I've seen this clue in The Times.

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