Registration of Marriage Bill [HL]

(Limited Text - Ministerial Extracts only)

Committee: 1st sitting (Hansard): House of Lords
Friday 29th June 2018 Lords Chamber

[Lord Blunkett (Lab)]

My Lords, I shall not hold up the Committee. As a Methodist, and having sat through Second Reading and heard the right reverend Prelate this morning, I just wanted to say how grateful I am for a masterclass in how the Church of England operates.

[The Minister of State, Home Office (Baroness Williams of Trafford) (Con)]

My Lords, I thank the right reverend Prelate the Bishop of St Albans for his continued support in bringing forward changes to the way in which marriages are registered. Under present legislation, the marriage register entry provides space for the name of the father of each of the couple to be recorded but not that of the mother, and that has been the case since 1837.

This situation is outdated and it is widely accepted that changes are required to address this inequality. There has been growing pressure both from within Parliament and from the public for reform. For example, an online petition attracted in excess of 70,000 signatures. However, it should be noted that when deciding how the marriage entry should be updated we will need to ensure that we allow for all the different family circumstances in society today—for example, same-sex parents.

The most efficient and economical way to introduce these changes is to reform the way in which marriages are registered in England and Wales by moving to a “schedule”- based system similar to that in place for marriages and civil partnerships in Scotland and Northern Ireland and for civil partnerships in England and Wales.

The basis of a schedule system is that the couple sign a marriage schedule instead of the marriage register book. Couples will still be able to have that all-important traditional photo taken after the ceremony with their witnesses, but instead of signing the marriage register they will sign the marriage schedule with their witnesses. The schedule will contain all the information to be entered into the electronic marriage register maintained by the Registrar-General.

Those marrying in the Church of England or Church in Wales will still be able to marry by ecclesiastical preliminaries—for example, the publishing of banns or the issue of a common licence. Where ecclesiastical preliminaries are used, the member of the clergy will issue a “marriage document” similar to the schedule issued by the superintendent registrar, which will be returned to—

[Lord Cormack]

Why cannot we use the traditional word, “register”? Why do we have to go in for “schedule”?

[Baroness Williams of Trafford]

I think that it is because we are dealing here with the legality rather than the tradition. I understand my noble friend’s point, but I would hope that such a small but important matter did not derail this important Bill. I am not for a moment suggesting that that is my noble friend’s intention; I understand his point.

Moving from a paper-based system to registration in an electronic register will facilitate the updating of the marriage entry to include both parents of each of the couple without having to replace all register books and it would introduce savings of £33.8 million over 10 years. The changes which the right reverend Prelate seeks are not controversial and have received a lot of cross-party support, hence the support in the Chamber today.

As the Bill contains delegated powers. I advised at Second Reading that the Home Office would produce and publish illustrative regulations prior to Committee to demonstrate to noble Lords how the powers in Clause 1 would be used. I can confirm that the draft regulations were made available in the Library of the House on 17 April.

I must emphasise that the regulations are an early draft and further drafting is required. We would welcome any comments from noble Lords on the content. It is our aim to be transparent during the process of amending the Marriage Act 1949 as we move towards the introduction of the schedule system.

We will continue to work with all key stakeholders, including the Church of England, in developing the policy. I will make further drafts of the regulations available in the Library in due course. I assure noble Lords that the changes to the Marriage Act will be made using the affirmative resolution procedure, ensuring they are debated in both Houses of Parliament and providing parliamentary oversight.

My noble friend Lord Blencathra expressed concern at Second Reading about the use of delegated powers in the Bill. To address those concerns, I can confirm that Home Office officials have been working with the right reverend Prelate to make technical amendments to Clauses 1 and 2 to limit the use of delegated powers to introduce these changes and to provide noble Lords with some reassurance as to how the powers are intended to be used.

The scope of the enabling language in Clause 1 will be narrowed to reflect the policy intent of the Bill to replace the current paper-based system with an electronic schedule-based system. Amendments required to primary legislation will be limited to the Marriage Act 1949. The broad power in Clause 1(2), which gives the Secretary of State the power to amend, repeal or revoke provisions in other Acts of Parliament, will be removed. As the right reverend Prelate has already explained, it is also proposed to include a sunset clause in the Bill limiting the power for the Secretary of State to make regulations which amend primary legislation to a period of three years beginning on the day on which the regulations are first made.

Concern has been raised that the powers in Clause 2 may delegate matters currently provided for in primary legislation. Amendments to Clause 2 will limit the scope to making regulations under Section 74(1) of the Marriage Act. I reassure the noble Baroness, Lady Hamwee, and the House that these regulations are intended only to supplement the current provisions in the Act.

I know that noble Lords recognise the importance of taking these changes forward to modernise the process of registering marriages, and I hope that the amendments made to the Bill will provide some reassurance to them of the value we place on parliamentary scrutiny throughout the legislative process.

I want finally to answer a question posed by the noble Lord, Lord Rosser. When the Bill was drafted, the policy was not so advanced and the powers in the Bill provided flexibility. We have been working closely with Home Office officials to develop policy further, which has allowed us to make these changes.

[The Lord Bishop of St Albans]

I am grateful to the Minister for her summary and for responding to the two points made by the noble Baroness, Lady Hamwee, and the noble Lord, Lord Rosser. More importantly, I should point out that part of the problem in the early stages, where I have been grateful to have advice from all sorts of people, is my sheer personal ineptitude in understanding what I might have been proposing. Somebody in my position without legal training does not always understand the breadth of what is offered. I am sorry about that. We have been grateful for the clarity with which the committee pointed out some of the implications. That is why we worked hard to try to get through this very simple legislation.

There is clamour from all over the place for this very simple, focused change, particularly from young women, who are horrified and astonished that it has not happened already. What caught me by surprise was a number of genealogists writing to me to point out that we are out of step with many countries and that, over the decades, this change will make a huge difference to people’s ability to understand their background. I hope that we can fully support it.

--- Later in debate ---

[Lord Rosser]

I shall just add, in light of what the noble Baroness, Lady Morris of Bolton, has just said, that my noble friend Lord Faulkner of Worcester is seeking assurances on this point, as I understand it, and I sincerely hope that those assurances can be given.

[Baroness Williams of Trafford]

My Lords, I hope that I can now give those assurances. I am very grateful to the noble Lord, because he distinguished very much between the argument for another day, which is about same-sex marriages in churches, and the very important point of children of same-sex parents on the register: it is not called the register, of course, but we will probably continue to call it the register.

As the noble Lord pointed out, the Marriage (Same Sex Couples) Act 2013 made provision for couples of the same sex to enter into a marriage. However, under Sections 3 and 4 of the Act, the provisions to solemnise marriages of same-sex couples do not apply to marriages taking place in the Church of England. As with all other religious ceremonies, there is no compulsion on an individual to solemnise a marriage where the reason is that it concerns the marriage of a same-sex couple.

The provisions in the Bill do not seek to make any changes to marriage preliminaries, or to how or where marriages can be solemnised; it simply seeks to change how marriages are registered, moving from a paper-based system of registration to an electronic register. The electronic system of registering marriages will apply to all marriages, irrespective of whether the couple are of the opposite sex or of the same sex.

I have just received a note containing the answer to the point made by my noble friend about the move to a schedule system not creating differences between the registration process for opposite-sex and same-sex couples. To clarify, by the names of the parents it will say “Mother/Father/Parent” for both parents. That will apply to children of opposite-sex couples, same-sex couples and whatever we have to come.

[The Lord Bishop of St Albans]

My Lords, I am grateful to the noble Baroness for clarifying those matters. It only remains for me to say, in response to the noble Lords, Lord Faulkner of Worcester and Lord Cashman, that of course the wider debate about the nature of marriage is going on right across society, but particularly in the Church of England and in other churches. That will continue. That, of course, is not the focus of the Bill today; that will come back at other points, there will be all sorts of discussions in the General Synod and so on, and they will continue. I am grateful to the noble Lords for stating their view on that, but this is particularly about registration and therefore I hope that we can give this the green light and the go-ahead to speed through.