The Parliamentary Under-Secretary of State for Schools (Lord Hill of Oareford)
My Lords, like others, I begin by congratulating the right reverend Prelate the Bishop of Chester on securing this important debate on the role of marriage and marriage support. It has been an extremely good discussion with interesting suggestions, a number of which I will follow up in writing, if I may. The themes of the debate have emerged fairly clearly and I shall return to those in a moment.
I also congratulate my noble friend Lady Tyler of Enfield on her excellent maiden speech. I welcome her out of the officials’ Box—a journey which I myself have made. My advice to my noble friend is, “Come on in, the water’s lovely”. Today’s debate comes a week after the excellent debate led by the noble Lord, Lord Northbourne, on the importance of parenting, which has been referred to. As the noble Lord, Lord Patel of Bradford, said, there have been common themes in both debates, of which perhaps the most striking is the benefits to children of being born and brought up in a stable and loving family. That point was made very eloquently by the noble Lord, Lord Sacks. Strong and stable families are the bedrock of a strong and stable society. They are the key to making sure that children grow up in a loving and nurturing environment and develop into healthy, happy and successful adults. As many noble Lords have pointed out, that makes sense financially, but much more importantly it makes sense socially.
None of this is to say that single parents do not often do a wonderful job bringing up well-adjusted, happy, successful children, nor that a fighting married couple cannot do terrible damage to their children. We all know from our personal experience the dangers of generalisation. We also know—and it has become clear in the debate—that relationships ultimately are not about statistics. We should not have KPIs for marriage, although I am sure that a management consultant somewhere is working on them as we speak. However, we should consider figures of the kind referred to by my noble friend Lord Patten and the right reverend Prelate the Bishop of Hereford, among others.
The Centre for Social Justice has found that those not growing up in a two-parent family are 75 per cent more likely to fail at school, 70 per cent more likely to become addicted to drugs and 50 per cent more likely to have an alcohol problem. The Joseph Rowntree Foundation has found that children from separated families have a higher probability of living in poor housing and developing behavioural problems. Evidence from the Millennium Cohort Study referred to by the noble Lord, Lord Anderson of Swansea, suggests that even the poorest 20 per cent of married couples are more stable than all but the richest 20 per cent of cohabiting couples. Approximately one in three parents cohabiting at the birth of their child will separate before the child is five years old, compared with one in 10 married parents. Those all seem to me compelling facts that we should take into account.
I start from the standpoint that government have to be extremely careful about poking around in people’s private lives, but as the right reverend Prelate the Bishop of Chester argued, there is a connection between personal decisions and society as a whole. That is why government have a role in ensuring that there are no penalties to living together, helping people who want to stay together, developing family-friendly policies—as the noble Lord, Lord Patel of Bradford, said—and a role, through education, in helping young people to understand the importance of stable relationships.
As has been well explored, the evidence also shows that the strength and stability of adult relationships are vital to the well-being of children. If the relationship is strong, the adults are more likely to support each other through whatever challenges they face. As a result, their children are more likely to succeed. If the relationship is weak and there is a lot of parental conflict, then, sadly, the opposite is true. Indeed, so strong is this link that the quality of parenting is the single most important determinant of the life chances of a child.
Although we need to be realistic and sensible about what is possible and what is within the realms of any of us individually, and the Government in particular, to do, I accept that government can make a positive difference in this area. We need to have a range of practical policies that can have a positive impact on families.
Twelve years ago, Sir Graham Hart recommended that government should raise its level of support to the voluntary sector as a worthwhile use of public funds. At that time, central government spending was some £3 million a year. His arguments for public funding remain as valid today. They are arguments we have listened to and acted upon.
In announcing that annual funding for supporting relationships will increase to £7.5 million a year from April—£5 million more than last year—my right honourable friend the Prime Minister has, I hope, sent a clear signal about the importance we attach to the family and to giving support to people whose relationships are in difficulty. I certainly understand the argument made in the debate about the importance of training and volunteering. I understand that some of that grant can be used for training, but I will follow noble Lords’ points and respond to them specifically.
There is a lot of evidence to suggest that while people initially look to families and friends for help with problems they face, when things get more difficult they need more expert advice. When couples are helped through their problems, relationships can be revived and, if not, breakdown can be managed in a way that ensures the best possible outcome for children. That is why we are working with the experts in the voluntary and community sector, including organisations such as Relate, Marriage Care, the Tavistock Centre for Couple Relationships and One Plus One. Providing them with the resources they need to support relationships strikes me as an effective use of money in these financially straitened times. I also take the point raised by the noble Baroness, Lady Warwick of Undercliffe, about the importance of early advice, on which we agree. The £7.5 million will be dedicated to supporting relationships over the next four years to provide a degree of certainty for funding, which I hope will help organisations plan for the future.
Another area where the Government and perhaps the Church can help is in tackling the stigma against seeking relationship advice. Many people feel they cannot seek help because of what others might think; and when they seek that help, it is often too late to save their relationship.
Another area where the Government can act is in reviewing sex education in schools, so that young people learn about the importance of relationships early on. As we are announced in the White Paper, the Importance of Teaching, we will review how schools can be supported to improve the quality of PSHE teaching, including giving teachers the flexibility to use their judgment about how best to deliver it. My department is carrying out an internal review of that. I hope that that picks up on comments of the noble Lord, Lord Marks of Henley-on-Thames.
I certainly recognise the work of the previous Government in setting up the network of Sure Start children’s centres. I entirely endorse the point of view expressed by the noble Lord, Lord Patel of Bradford, that they can play a key role in supporting families. We have put enough money into the early intervention grant to retain a national network of children’s centres, but I accept the point that he and other noble Lords made in previous debates: that the removal of the ring fence pushes responsibility for those decisions down to a local level, which will lead to difficult decisions for local authorities in prioritising their funding. I agreed with the noble Earl, Lord Listowel, about the importance of learning from best practice in Sure Start children’s centres and I shall certainly relay that suggestion to my honourable friend the Minister of State for Children and Families.
All the evidence shows that there are particular times in a family’s life that put extra pressure on relationships—for example, when a first child is born. We know that more parents split up in the first years after a child’s birth than at any other time. A Swedish study has shown that couples are almost a third less likely to split up if the father is involved early on. As my right honourable friend the Deputy Prime Minister announced recently, we will be consulting on a system of more flexible parental leave to enable mothers and fathers to share childcare during that important first year. We are also increasing the number of Sure Start health visitors by 4,200. Crucially, we hope that they will act as a gateway to other services that a family might need, including, if necessary, relationship support.
We are also addressing how best to support adults and children when, regrettably, relationships founder. Our recent child maintenance Green Paper sets out proposals to offer parents more choice and to encourage them to reach family-based arrangements that are collaborative, flexible and based around the welfare of their children. Too many couples break up without fully understanding the consequences for their children and without positive arrangements being put in place to support their children post-separation. We know that children are more likely to prosper and do well in later life when both parents continue to be involved in their lives. Therefore, we want to ensure that parents are encouraged to play a full role in their children’s lives and that co-parenting is the norm post-separation.
One theme that emerged concerned what I think at one point was described as a penalty on marriage. This was mentioned by the noble Baroness, Lady Murphy, the right reverend Prelate the Bishop of Hereford and the noble Lord, Lord Anderson of Swansea. It relates both to the tax system generally and the benefits system. It is the case that couples living together and claiming benefits receive less than they would if they each claimed separately. Therefore, it is no surprise that research by the Centre for Social Justice found that a majority of people out of work or in part-time work think that low-earning and unemployed people are better off living apart than as a couple.
The Government are looking hard at how we can reduce the couple penalty in the welfare system. A recent report by the Institute for Fiscal Studies confirmed that the universal credit should help to meet our commitment in the coalition agreement to tackle the couple penalty in the tax credit system. Our own analysis suggests that the universal credit will reduce the couple penalty where it will have the greatest impact—among low-earning couples. This is the group under most financial pressure when it comes to a decision on whether to commit to marriage.
The right reverend Prelate the Bishop of Chester, the noble Baroness, Lady Hollins, and the noble Lord, Lord Anderson of Swansea, asked specifically about tax. I confirm that the Prime Minister remains committed to looking at recognising marriage and civil partnerships in the tax system. As noble Lords will know, given the current economic situation, the Government’s first priority is to help people on low and middle incomes, but we remain committed to looking at ways to support marriage through the tax system. Proposals on that will be brought forward by the Chancellor of the Exchequer at the appropriate time.
Pre-nuptial agreements were referred to. Speaking for myself, I am a heart rather than a head man, and I certainly had no thought at all of financial considerations when I plunged headlong into marriage. The Government will await the outcome of the Family Justice Review before making any decisions on comprehensive divorce law reform. I listened with great care to the points made by the noble Baroness, Lady Deech, and the noble Lord, Lord Ahmed, about the implications for Muslim communities, as well as the comments of my noble friend Lord Marks of Henley-on-Thames about pre-nuptial agreements. The interim report from the Family Justice Review is due out at the end of March and I shall ensure that a copy is laid in the Library of the House. The Family Justice Review will also consider the Supreme Court’s finding on pre-nuptial arrangements and any subsequent recommendations from the Law Commission. The commission itself launched a consultation in January, inviting views on reforming the law on pre-nuptial, post-nuptial and separation agreements. That consultation closes on 11 April.
The question of forced marriage was also raised, with the distinction being properly drawn between forced marriage and arranged marriage. The Government take seriously the need to tackle forced marriage and they also place great emphasis on tackling early child marriage. Measures to tackle it will form part of the Government’s new violence against women and girls strategy, due to be published in the spring. However, I take the point made by the noble Lord, Lord Parekh, about the importance of working with ethnic communities on these sensitive issues. The Government have stepped up their efforts to tackle forced marriage in a range of ways: by strengthening legislation; by providing statutory guidance, practice guidelines and online training for professionals; by raising awareness and understanding of the issues, including among children and young people; and by providing one-stop support for individuals through the Forced Marriage Unit.
I was asked by the right reverend Prelate the Bishop of Ripon and Leeds whether I could use my influence to speed up the agreement of guidance by immigration Ministers. The Government very much welcome the initiative of the House of Bishops to produce guidance for the clergy to reduce the incidence of marriage to circumvent immigration requirements. I shall certainly raise the issue with the immigration Minister and follow that up.
From today's debate, a very clear theme has emerged of the importance of families and of stability for children growing up. Particularly important is marriage, which, according to statistics, alone seems to demonstrate better results, as regards the environment in which children grow up, than any other form of relationship. I was struck by the summary of the noble Lord, Lord Parekh, about the nature of marriage: that it is a mutual commitment; that it forms a ritualisation of a relationship; that it is a public commitment; and that it helps us to form collective units. All noble Lords who have spoken in the debate recognise that.
I also recognise the point made by the noble Lord, Lord Patel of Bradford, that in today's society relationships come in all shapes and sizes and that the key is to support a stable couple relationship whether or not they are married. However, I do not think one should ignore the evidence of the figures about the benefits of marriage—the case for marriage—as enunciated by the most reverend Primate the Archbishop of York.
I am extremely grateful to the right reverend Prelate the Bishop of Chester for securing this important debate, coming as it does during National Marriage Week. It was also particularly timely coming only a week after our debate on parenting. There is broad consensus across the House that we must return to these issues. The Government recognise the strength of the case that has been made today, as was the case last week. On behalf of the Government, I underline our commitment to addressing these issues and to working with a whole range of organisations—religious organisations, the charitable sector and others—to see what further progress we can make in encouraging and supporting the strongest possible families.