Marriage (Same Sex Couples) Act 2013 (Consequential and Contrary Provisions and Scotland) Order 2014
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Baroness Northover
That the draft orders and regulations laid before the House on 23 and 24 January be approved.
Relevant documents: 20th Report from the Joint Committee on Statutory Instruments, 29th Report from the Secondary Legislation Scrutiny Committee
Baroness Northover (LD)
My Lords, with the leave of the House, I beg to move the six Motions standing in my name on the Order Paper en bloc. Both this House and the other place overwhelmingly supported the passage of the Marriage (Same Sex Couples) Act. The Bill was fully debated in detail, passed through all its parliamentary stages with overwhelming support in both Houses, and received Royal Assent on 17 July 2013. The passage of the Act was a historic moment, delivering, at last, full legal equality for lesbians and gay men in England and Wales. As such, it is a hallmark of the fair and inclusive society that we all wish to see. The Act, quite simply, extends the important institution of marriage to same sex couples, ending the unfairness which has prevented people from marrying simply because of their sexual orientation.
Noble Lords will recall that in our debates during the Act’s passage, some were worried that it would change the nature of marriage in some way. However, we made it clear then, and I am happy to make it clear again now, that the Act does not affect marriage as it currently exists between opposite-sex couples in any way at all. Nor does it affect the understanding of marriage held by many religious organisations and individuals that marriage should only be between one man and one woman. The Government entirely accept and respect that view of marriage, and the quadruple lock of religious protections in the Act ensures that no religious organisation or representative can be compelled in any way to participate in the marriage of a same-sex couple against their beliefs.
The Act does not change marriage but simply opens it up to more couples; that is the basis on which it secured wide agreement on all Benches in your Lordships’ House. The statutory instruments we are considering today simply give effect to the matters we have already agreed in the Act. These six affirmative instruments, along with the six negative instruments laid on 23 January and 13 February, are concerned only with the practical implementation of the Act’s provisions that will make marriage a reality for same-sex couples in England and Wales.
I will briefly explain each of the affirmative instruments in turn. The Marriage (Same Sex Couples) Act 2013 (Consequential and Contrary Provisions and Scotland) Order 2014 does three main things. First, in Schedule 1, it makes amendments to primary legislation that are consequential on the coming into force of the 2013 Act, the Civil Partnership Act 2004 and the Human Fertilisation and Embryology Act 2008. These amendments give effect to the central aim of the 2013 Act—that the existing institution of marriage should be extended to same-sex couples. That general position is achieved, in the main, through provisions in the Act which we refer to as the gloss—Section 11(1) and (2) and Schedule 3—which provide that references to marriage in existing law will be read as including the marriage of a same-sex couple, and a reference to a married person is to be read as including a reference to a person married to someone of the same sex.
However, in some cases there is also a need to make a consequential change to the law to ensure that the correct result is achieved so that the marriage of same-sex couples has the same effect as the marriage of opposite-sex couples. This is the case where there are historical gender-based differences and we need to equalise provision between married opposite-sex couples in order to treat all married people in the same way. In some cases we are also correcting minor omissions made when the Civil Partnership Act was brought into force.
We have always been clear that there are exceptions to this general approach, where for practical reasons married same-sex couples will be treated differently from married opposite-sex couples. In these cases we therefore need to make provision that is contrary to the gloss in order to achieve the right result, so the second thing that this order does this is to make contrary provision in Schedule 2. This approach is needed where the Government’s policy is that married same-sex couples should be treated in the same way as civil partners rather than married opposite-sex couples, and where historical gender-specific provisions are to be maintained. For example, we agreed this approach during the passage of the Act in relation to pension survivor benefits—although noble Lords will recall that we also committed to reviewing that position, and I will return to that review later. Schedule 3 to the order then makes textual amendments to existing provisions where this is needed to make the effect of the law on different couples completely clear.
Thirdly and finally, the order provides for marriages of same-sex couples under the law of England and Wales to be treated as civil partnerships in Scotland. The Scottish Ministers have given their consent to this provision, which is necessary pending the extension of marriage to same-sex couples under Scottish law.
Baroness Northover
My Lords, I am grateful to all the noble Lords who have contributed to this debate. I thank the noble Lords for their tributes, their thanks and, above all, for working together on this. It has been incredibly heart-warming to work on this Act and to be taking through these SIs now. As my noble friend Lady Barker has said, what a joy it was to wear the pink carnations of the noble Lord, Lord Alli, and to go outside and be serenaded by the London Gay Men’s Chorus. It really was a tremendous joy. Extending marriage to same-sex couples is about righting a historical unfairness. The principles and arguments for doing this have already been fully debated and supported by both Houses and the Act is on the statute book.
Noble Lords will remember that there were majorities for this legislation in every group in this House. My noble friend Lord Jenkin reminded us of that. They may also remember—I analysed it at the time—that there was a very interesting gender difference in our voting patterns. Among women who voted at Second Reading, 83% thought that the Bill should proceed, while 17% dissented. May I suggest to the noble Lord, Lord Collins, that he consider us all as bridesmaids? I am sure we would enjoy it.
I noted the generosity of spirit that was shown, especially in the later stages of the Bill, by those for whom this legislation was a very difficult challenge. I commend them for that generosity of spirit. I echo what the noble Lord, Lord Alli, said in this regard and what the right reverend Prelate has just said.
As I made clear, I hope, when I introduced this debate, these orders simply implement the decisions we made during the passage of the Act. They make sensible arrangements for the treatment of marriages of same-sex couples in a range of legislation. I went over the details in my introduction.
I shall address some of the points made by noble Lords. My noble friend Lord Jenkin asked me to provide more detail on what processes and procedures are required before couples can convert their civil partnership into marriage, and I heard what the noble Lord, Lord Collins, said about his husband’s anxiety that we proceed extremely speedily. Briefly, the procedures and processes that we are looking at are changing various IT systems used by the General Register Office. I realise that this is not very romantic information, and neither are the other bits here. There is also delivering guidance and training to operational staff for making legislative changes and designing new application forms and certificates. Although these things are under way, I know that noble Lords will appreciate that they all take time. The conversion process will ensure that the rights and responsibilities of a couple in a civil partnership are protected—so do not get divorced—when they convert their relationship into a marriage. The effect of the conversion will be that they will be treated as if their marriage started on the date that their civil partnership was formed, although it sounds as if the noble Lord may be celebrating two dates in future. This is important for the couple, so we need to ensure that the new legal and administrative arrangements work properly.
My noble friend Lord Jenkin asked whether further orders will be required. I can confirm that various further pieces of secondary legislation will be required. I am sure that noble Lords look forward to discussing them.
My noble friend asked about delays and about when people in a civil partnership die before they have managed to convert their relationship into a marriage. We completely understand that couples in this difficult situation want to be able to fulfil their dream of being married, and we are working hard to make that possible as soon as we can. I remind my noble friend that the legal rights of such couples are assured by their civil partnership, so there will be no practical detriment to them by being civil partners rather than a married couple. However, we hear what noble Lords had to say. We are glad that they are pleased that we have managed to bring forward this date, and we are working very speedily to address the other issues. I will certainly feed back the points that noble Lords have made, especially the one made by the noble Lord, Lord Collins, that he needs to know what the date might be.
The noble Baroness, Lady Thornton, asked a number of questions, and I am very grateful to her for flagging to me in advance the areas that she wanted to probe. She asked about pensions and, in particular, the review of survivor benefits that I mentioned in my introductory remarks. I can confirm that the review is under way and the terms of reference have been published in the Libraries of both Houses. The Department for Work and Pensions and the Treasury are assessing the costs involved with any changes to the arrangements in public service and private occupational schemes. I spoke to my honourable friend Steve Webb about this the other day. They are also making arrangements to consult external stakeholders in line with the requirements of the Act. I assure the noble Baroness that these stakeholders will include representatives of the LGB community and trade unions as well as pension trustees, industry bodies and parliamentarians with a key interest in this review. We are continuing to make arrangements over the next few weeks so that the consultation begins in March. There are a number of issues that it needs to cover and a final report will be published on 1 July. We note the interest of the noble Baroness in this.
The legislation does not require a full public consultation, so we have not made additional plans for publication via the website. I am happy to feed back the concerns of noble Lords to the Treasury and DWP.
The noble Baroness asked about the implications of a particular case at the Employment Appeal Tribunal. On 18 February, the tribunal upheld the appeal and accepted the Government’s submission that the framework directive did not have retrospective effect in relation to employment and pension rights accrued before the directive came into force. In this particular instance it is open to Mr Walker to apply for permission to appeal to the Court of Appeal. I am happy to write to the noble Baroness with any further details if that would help.
The noble Baroness also asked about a transgender person who might seek to marry in Scotland and whether they would be subject to a “spousal veto” when applying for gender recognition. She flagged up a difference in the Scottish legislation. She asked whether a couple whose marriage was registered in Scotland but who subsequently lived in England would be able to apply to the sheriff court for their interim gender recognition certificate and whether we would review that area. From the outset I will be clear that there is no spousal veto in the Act that we passed. Regardless of a spouse’s views, all applicants will be able to obtain their gender recognition. The Scottish system will work in a very similar way to the English system in most respects: couples who wish to stay together following gender recognition will each need to complete statutory declarations to that effect. If a statutory declaration is not received from the non-trans spouse, the gender recognition panel will issue an interim gender recognition certificate, which will enable proceedings to be brought to end the marriage.
However, the Scottish Act differs from our own Act in that applicants in a marriage registered in Scotland will have the option of applying to the sheriff court for their full gender recognition certificate before their marriage has ended. Applicants in England and Wales will have to wait until their marriage is ended to obtain their full certificate. In those circumstances there will be no automatic entitlement to a new marriage certificate and the non-trans spouse will be able to use the issue of the interim gender recognition as a ground for divorce indefinitely.
Jurisdiction in matrimonial proceedings depends primarily on whether a couple is able to establish the necessary connection with the country in which the couple is applying. In England and Wales the jurisdiction rules are set out in the Domicile and Matrimonial Proceedings Act 1973, as amended by the 2013 Act. In every case it will depend on the couple’s circumstances as to which court will have the jurisdiction to hear the proceedings. Following implementation of our Act, I assure the noble Baroness that we have committed to monitor the position and we will continue to consider very carefully any further evidence that trans-stakeholders and, indeed, anyone else affected provides.
The noble Baroness asked me about a situation that may arise in Scotland in which civil partnerships or civil unions established in a foreign country are converted to a marriage in Scotland and whether they will be recognised as marriages in England and Wales. The Scottish Government will be consulting on this issue and we will of course work very closely with them to ensure that the law across the UK is coherent and help them to implement their own Bill. It is too soon to anticipate what may happen as a result of that.
The noble Baroness also asked about guidance and training in support of the Act. A wide range of public and internal staff guidance is being produced by various organisations, including the General Register Office, the Department for Work and Pensions and NGOs such as the Equality and Human Rights Commission, Stonewall and Citizens Advice. The guidance covers a range of practical, legal, operational and other issues and is aimed at a variety of audiences. We are confident that there will be sufficient information for those wishing to marry, register buildings, appoint authorised persons and so on, to find out what they need to know. For example, the General Register Office has produced and is producing a variety of guidance and training materials in different formats for registration staff in local authorities, in addition to information and guidance on how to register buildings to faith groups and the public. I pay tribute to Ben Summerskill, as did the noble Lord, Lord Alli, for his indomitable work in that area. Stonewall has produced guidance for same-sex couples considering marriage and converting their civil partnership to a marriage, which covers their rights and responsibilities and the steps that they need to take when arranging a marriage, and the Equality and Human Rights Commission will also produce a range of guidance. I hope that the husband of the noble Lord, Lord Collins, will find all those pieces of paper useful.