Civil Partnerships, Marriages and Deaths (Registration Etc.) Bill

(Limited Text - Ministerial Extracts only)

3rd reading: House of Commons & Report stage: House of Commons
Friday 26th October 2018 Commons Chamber

[Tim Loughton]

My hon. Friend pre-empts my closing remarks. If there is a problem getting this Bill through the House, it must be one of the most complicated private Member’s Bills there has ever been, which is my fault. It so happens, however, that all four tenets of the Bill are now Government policy, so there should not be a problem. We still have some way to go before, hopefully, the Bill passes to another place and becomes subject to the vagaries there. If we do not get there, there is the important issue of adding mothers’ names to wedding certificates—that has been an anomaly since the reign of Queen Victoria and should have been addressed ages ago. Now at last we can do it.

The Bill contains important provisions on allowing coroners to look into certain stillbirths, and again, huge cross-party support for that has been aired on many occasions. There are also other important matters regarding how we view stillbirths before the 24-week gestation period. This Bill is not just about civil partnerships; it is about a whole load of other things for which there is widespread support. I hope that the Government will see that the new clause is well intended and will hold the feet of officials to the fire as they work long hours to get this legislation through. It is achievable. I have tabled new clause 1 in the spirit of being helpful to the Government in achieving equality. Consequential amendment 1 has now become redundant, because it is now Government policy to allow civil partnerships, and the new clause will ensure that we get on with it.

[The Minister for Immigration (Caroline Nokes)]

When warned that I might be speaking early, Madam Deputy Speaker, I had not expected it to be this early.

My hon. Friend the Member for East Worthing and Shoreham (Tim Loughton) has raised important points, and I am grateful to him for having promoted this Bill in its entirety and for his enormous and, as he pointed out, long-standing campaigning work in support of civil partnerships.

As most hon. Members will know, when the Bill was first introduced back in February, the Government had not yet taken a final decision on the future of civil partnerships. We were clear that the current situation, in which same-sex couples can marry or enter a civil partnership but opposite-sex couples can only marry, needed to be addressed. Indeed, earlier this year, we published a Command Paper that set out how we would proceed with our deliberations to ensure that we chose the right course of action. Events over the past few months have moved on substantially, not least thanks to the efforts of my hon. Friend in promoting this Bill, and I am pleased that the Prime Minister recently announced our intention to make civil partnerships available to both opposite-sex and same-sex couples. We intend to introduce specific legislation to do just that, and I know that in conversation with my hon. Friend the Minister for Women and Equalities made those intentions clear.

[Chris Bryant (Rhondda) (Lab)]

When?

[Caroline Nokes]

If the hon. Gentleman will have some patience, I will come to that in due course.

[Chris Bryant]

I have no patience.

[Caroline Nokes]

I can hear that the hon. Gentleman has no patience at all—that may not be news to the Chamber.

[Chris Bryant]

Play nice!

[Caroline Nokes]

I shall undertake to play nicely with the entire House today, because there are some really important components to the Bill and I feel hugely passionate about the inclusion of mothers’ names on marriage certificates—I do not, however, hope that my young daughter will be in a position to demand my name on her marriage certificate any time soon, but you never know, she is 20. [Interruption.] I doubt she would find a partner in that manner of haste.

I am very conscious that my hon. Friend’s amendment has the support of a large number of right hon. and hon. Members from across the House. We support the common objective of an early move to enable opposite-sex couples to form civil partnerships. We made clear our position and the reasons for our concerns about the amendment in a written statement laid this morning by my right hon. Friend the Minister for Women and Equalities.

--- Later in debate ---

[Andy Slaughter (Hammersmith) (Lab)]

I do not want to delay the Bill; I want us to get through the business with all speed. It was for that reason that I read the written statement very carefully. It discloses nothing to me that should mean the Government cannot support the Bill promoter’s new clause 1. Will the Minister just indicate whether she will support the new clause, so that we can get on and get the Bill through?

[Caroline Nokes]

There are a number of important points I would like to make with particular reference to the amendment and some of the challenges we think it poses. Perhaps the hon. Gentleman will be patient and allow me to get to them.

There are a number of reasons why we are concerned about my hon. Friend’s amendment and a number of reasons why the Bill may not be the most appropriate legislative vehicle in which to equalise access to civil partnerships between same-sex and opposite-sex couples. As I have said, the Bill contains a number of important measures that we certainly do not wish to jeopardise by allowing the substantive amendment on civil partnerships at this late stage in the Bill’s progress through Parliament. I think that these substantive changes deserve to have been debated more thoroughly at earlier stages of the Bill’s progress, rather than just in the limited time available to us today.

I also need to make the point that, while we are happy to have announced our intention to extend civil partnerships to opposite-sex couples, there are still quite a number of significant issues that need to be resolved before we can move on to implement opposite-sex civil partnerships. Some of these are entirely practical. [Interruption.] The hon. Member for Rhondda (Chris Bryant) from a sedentary position is yelling, “Such as”. If he will give me a chance, I will get to them. For instance, we need to check all the existing legislative provisions that cross-refer to the civil partnership regime to make sure that they still work as intended for opposite-sex couples as well as same-sex couples. These existing provisions are spread across a wide range of current legislation, from arrangements for adoption through to pension entitlements, so this is not an insignificant body of work. Any existing provisions that are not appropriate to extended civil partnerships will need to be changed. There are also a number of sensitive policy issues that will need to be resolved, such as whether convergence from a marriage to a civil partnership should be allowed and whether the terms for the dissolution of an opposite-sex civil partnership should mirror those for same-sex couples or be the same as for opposite-sex marriages.

We also need to resolve a number of cross-border and devolution issues, such as how we should provide for recognition of similar relationships entered into in other countries and how our own relationships should be treated in other parts of the United Kingdom, which have their own legislation on civil partnerships.

I am disappointed that the amendment tabled today seeks to replace the provisions in clause 2, particularly the requirement for Government to consult and report to Parliament on the way in which they intend to equalise civil partnerships between same-sex and other couples. We particularly supported this original requirement, as we see consultation prior to the implementation of the extension of civil partnerships as key in both helping us to set out the Government’s views on the issues I have just mentioned, as well as getting a broader view of the implications of the various options.

[Tim Loughton]

My hon. Friend will acknowledge, of course, that the requirement for review and consultation is not a statutory requirement. It did not need to be in the Bill, but it was the only way of getting it through. And of course the Government, by their own admission, have started that review and consultation, albeit at a late stage. Taking the clause out of the Bill does not mean that it stops it, so it is actually not required.

[Caroline Nokes]

This is a subject on which we conduct long conversations, reviews and consultation across the Government, and the fact that the review has started does not mean that it should stop, but we do want to conclude it. It is important to us to have those views.

The Government are keen to progress the review and to do so as quickly as possible. The planned consultation is not some sort of prevarication; it is a necessary step to help us to ensure that when we introduce legislation it is fit for purpose and does not slow down its parliamentary passage. Officials are already starting to identify all the matters on which we want to consult. I hope that we will soon be in a position to say more about our proposed timing for that consultation, but we wish to conduct it as soon as possible. I stress that the consultation will be about how we make the provisions to ensure that civil partnerships work as intended for opposite-sex couples, not about whether we intend to extend them in that way.

[Sandy Martin]

Will the Minister accept that it is not just about how; it is also about when? Given that there is a High Court ruling against her, she needs to move quickly.

[Caroline Nokes]

It is about how and we are proceeding. We are determined to do it. The hon. Gentleman is right to highlight the court judgment. [Interruption.] The hon. Member for Rhondda says we are doing nothing. In fact, the reality is very much that we are seeking to move forward on this as quickly as we can, but we do think that consultation is important.

However other people may view civil partnerships, our intention is clear. They are intended to have at least one thing in common with marriage: to be a formal bond between couples in a loving relationship. I do not wish to digress too much, but a couple of hon. Members raised this point. I am aware, however, that there are those in this place and the other place who wish to see civil partnerships extended to sibling couples. We do not consider that to be a suitable amendment to either my hon. Friend’s Bill or to a future Government Bill to extend civil partnerships. In the context of today’s debate, I merely note that the addition of substantive amendments on civil partnerships to my hon. Friend’s Bill would make it an easier target for amendments on siblings that would then wreck the Bill, and all its valuable provisions on marriage registration and pregnancy loss would be jeopardised. I note that there is already a Bill in the other place that proposes the extension of civil partnerships to sibling couples. We consider that that Bill, rather than this one, offers an appropriate opportunity to debate the merits of how cohabiting sibling couples should be protected in older age.

The amendment put forward today introduces a wide-ranging delegated power. This causes us concern for several reasons, as I mentioned earlier. We are not yet in a position to know precisely what will be required legislatively, which is why it would be too risky to take a power to change the law by secondary legislation when we are not yet able to explain how we intend to use that power.

[Justine Greening (Putney) (Con)]

When does the Minister think the Government will be in a position to understand the scope of legislative changes that are needed? Does she plan to publish a further written statement setting out to the House that information once she has it?

[Caroline Nokes]

I am sure that my right hon. Friend the Minister for Women and Equalities is best placed to make written statements on this matter rather than me, but we will provide as much detail to the House as we possibly can. Hopefully, that will be provided as soon as possible.

The Bill, as introduced, contained provisions for such a power to be included, but those provisions were removed in Committee as we did not wish to provoke parliamentary opposition in either place that could prevent the Bill as a whole from proceeding. Those are the reasons why our preference would be to introduce our own Bill in the next session to extend civil partnership as soon as a suitable legislative opportunity is available, which is what my right hon. Friend the Minister for Women and Equalities has indicated in her written statement. However, I do not want anyone to think that the Government are merely paying lip-service to the need to press on with resolving this matter.

Government research that was originally due to conclude next autumn has already been brought forward by a year. It has been wound up and officials are now using its findings to help with the impact assessment for the new civil partnerships. The Government Equalities Office has also been in contact with Departments across Whitehall to begin discussions on how to undertake the necessary legislative sweep and with its counterparts in the devolved Administrations to identify UK cross-border issues that will need to be considered.

I am very conscious of the keen interest that Members of both Houses take in extending civil partnerships to opposite-sex couples and of the private Member’s Bill brought forward by my right hon. Friend the Member for Meriden (Dame Caroline Spelman) and her continued support for our introducing measures through that Bill. In addition, as I have said, a Bill has also been introduced in the Lords on this matter.

My hon. Friend the Member for East Worthing and Shoreham has pursued this matter with passion and enthusiasm, and these are legislative proposals that will get on to the statute book, but we are keen to do so in the right way. I hope that this reassures the House that the Government are working hard to extend civil partnerships to opposite-sex couples, as well as same-sex couples, despite not being able to actively support his new clause for the reasons I have outlined.

[Sir Christopher Chope (Christchurch) (Con)]

The Minister speaks in riddles. Is she saying that the Government are not actively supporting my hon. Friend’s excellent amendment and new clause and so will abstain, or is she saying that the Government are opposing them?

[Caroline Nokes]

I think I made it clear that we are not actively supporting my hon. Friend’s amendments, but he has done an excellent job over the last few days of making sure he has enormous support for his amendments both on paper and in the House today.

[Sir Christopher Chope]

I take it from that that, because of the forces lined up against the Government, they are throwing in the towel, which is good and encouraging news. I congratulate my hon. Friend on the progress he has made.

I despair at the way the Government have been dragging their feet over this issue for so long. It was on 21 May 2013—more than five years ago—on the Third Reading of the Marriage (Same Sex Couples) Act 2013 that I intervened on the then Secretary of State for Culture, Media and Sport and Minister for Women and Equalities asserting that I believed that doing what the Government were doing in that Bill would be in breach of human rights law. The answer from the Minister, obviously on the advice of Government lawyers, was that the provisions of the European convention on human rights would not be compromised by the fact that the legislation made unequal provision for civil partnerships.

How wrong were the Government and the Minister! For five years people have been in limbo, while the Government have connived over legislation that is at odds with human rights requirements under the European convention. Surely there must be a greater sense of urgency from the Government than was demonstrated in my right hon. Friend’s response to the new clause. I also find it extraordinary that today’s written statement makes no mention of the Supreme Court ruling.

I hope that when the new clause and amendment are put to the vote, they will go through without a Division, but if there is a Division, I will be interested to see whether the Government try to argue against what the Prime Minister has already assured us of—namely, that the Government are on the side of the proposal in the new clause.

--- Later in debate ---

[Caroline Nokes]

As my hon. Friend the Member for East Worthing and Shoreham (Tim Loughton) has described the Bill as one about hatches, matches and dispatches, I feel it is incumbent on me to dispatch it swiftly from the Dispatch Box, so I shall not detain Members for long. My hon. Friend has been described today as tenacious. I certainly know that he is very diligent and committed in relation to these issues, and I thank him for his work to raise the profile of them.

We have heard excellent contributions from Members on both sides of the House, particularly the hon. Member for Washington and Sunderland West (Mrs Hodgson). She spoke about the work she has done alongside colleagues, but also alongside the Department of Health and Social Care. Many tributes have been paid to the Under-Secretary of State for Justice, my hon. Friend the Member for Charnwood (Edward Argar), and I delighted to see that the Under-Secretary of State for Health and Social Care, my hon. Friend the Member for Thurrock (Jackie Doyle-Price), is also now in the Chamber. I know that she has worked very closely with Members on these issues, particularly when it comes to baby loss, and I congratulate her on that.

My hon. Friend the Member for Banbury (Victoria Prentis) brought a perfect combination of humour and seriousness to what is sometimes a difficult subject for us to talk about, and I congratulate her on that. Many Members raised issues faced by their constituents—the hon. Member for Bedford (Mohammad Yasin) mentioned bereaved parents in his constituency, and the hon. Member for Hammersmith (Andy Slaughter) spoke about his constituents who were successful at the Supreme Court. My hon. Friend the Member for Solihull (Julian Knight) made an excellent and thoughtful contribution, speaking about a difficult experience in a moving way. He made an interesting point about the distinction between civil partnerships and marriage, and those who may simply not wish to go through a marriage, but for whom a civil partnership would be the right thing.

We had an interesting discussion across the House with my hon. Friend the Member for Harborough (Neil O'Brien) and I thank him for the points he raised, which clearly provoked strong feelings and interesting conversations. My hon. Friend the Member for Croydon South (Chris Philp) wished to know a specific point about marriage certificates and schedules and whether couples who marry in a church would still be able to sign a schedule. I reassure him that they and their witnesses will be able to sign that schedule, which will include all the relevant information such as name, date of birth and occupation, as well as, for the first time, the details of both parents. That is something we all welcome and have wanted to happen for a long time.

I thank my hon. Friends the Members for Erewash (Maggie Throup) and for Copeland (Trudy Harrison), as well as my hon. Friend the Member for Colchester (Will Quince). He has spoken previously in the Chamber about his personal experience and the work he is doing with the hon. Member for Washington and Sunderland West. He always speaks thoughtfully, and Ministers welcome his serious thoughts on this matter.

As we have heard, the Bill will introduce the first reform of how marriages are registered since 1837. It removes the requirement for paper marriage register books to be held in more than 30,000 religious buildings and register offices, moving to an electronic system of marriage registration. I assure my hon. Friends that the Bill will not prevent couples who want to marry in the Church of England or Church in Wales from marrying following ecclesiastical preliminaries, such as the calling of banns and the issue of a common licence. As I said earlier, instead of a schedule, the clergy will issue a marriage document that will be signed at the ceremony by the couple, and returned to the register office for entry into the register. The Government—I know this will put fear into the heart of the hon. Member for Rhondda (Chris Bryant)—will aim to implement those reforms as soon as possible, subject to the successful passage of the Bill, and will enable changes to be made to include the names of both parents of the couple.

Clause 3 has progressed with strong support from hon. Friends, all of whom agree that the report is both timely and urgent. Work on that report is already under way, and the Department of Health and Social Care is engaging with many key stakeholders, including health practitioners, registrars, charities and academics. The review team has spoken to parents with lived experience of losing a baby before 24 weeks’ gestation to learn about their experience and how best to ensure that the NHS is able to provide the best possible care and support when such a tragedy takes place. The clause requires the Secretary of State to publish a report. Many hon. Friends have already contributed to the report for which the clause provides, and I encourage Members on both sides of the House to support that extremely important work.

On civil partnerships, the Bill certainly sets the Government a challenge, particularly on timing. As I pointed out, there is a great deal of work to be done, including a substantial legislative trawl to ensure that the existing statute book works for opposite-sex civil partnerships. There are policy decisions to be made, and consultations on issues such as the conversion and dissolution of marriages and civil partnerships, as well as the resolution of cross-border issues. Although the Government are firmly committed to equal civil partnerships, for all those reasons, we must ensure that we proceed carefully and thoroughly, as I am certain we will.

The Government are grateful to all those who have taken time to speak to the matters raised by clause 4, and it is important that a broad and diverse range of views is heard and considered carefully. It is clear that when considering whether to enable coroners to investigate stillbirths, we must engage the wider public so that any proposals are thoroughly explored and understood. We think that the review is the right approach, and the Bill is an important step in that direction.

I once again thank my hon. Friend the Member for East Worthing and Shoreham for bringing forward these important issues, and I congratulate him on his tenacity. I look forward to the future passage of the Bill.

Question put and agreed to.

Bill accordingly read the Third time and passed.

[Judith Cummins (Bradford South) (Lab)]

On a point of order, Mr Deputy Speaker. On Wednesday I raised with the Prime Minister the police pension shortfall of £165 million. In my area alone, 400 officers could be lost. The Prime Minister responded:

“She refers to pensions; this issue has been known about for some years.”—[Official Report, 24 October 2018; Vol. 648, c. 276.]

Yesterday, the National Police Chiefs Council and the Association of Police and Crime Commissioners issued a joint statement saying:

“no guidance has been given to what that would mean in terms of costs for employers or a timeline for implementation of those changes.”

It went on to state:

“The first notification that has enabled forces to calculate the impact of pension changes came in September 2018.”

I will write to the Prime Minister demanding an urgent meeting with me, the NPCC and the APCC. Can you advise me, Mr Deputy Speaker, on how the Prime Minister can correct the record?