There are a couple of issues, only some of which are addressed by this policy change.
One is that, under Pope John Paul II, the Vatican was far more reluctant (than under Paul VI) to laicize priests who requested it. As a result, many priests gave up, left the priesthood, and married, despite the fact that they had not been formally laicized.
During John Paul’s half year as Pope, the Vatican has received more than 300 petitions from individual priests. So far he has refused to endorse a single one. By contrast, in 15 years Pope Paul VI got 32,357 requests, granting all but 1,033 of them.
In John Paul’s view, men spend years preparing to take vows, and once they have done so, that commitment should be indissoluble. He spoke of “the inner maturity” and “personal dignity” of “keeping one’s promise to Christ, made through a conscious and free commitment to celibacy for the whole of one’s life.” A priest, he then added, should not seek an “administrative” remedy, as though a matter of conscience were not involved. If John Paul continues his freeze on laicization, says one prelate familiar with Vatican processing, “I am sure that many priests will just walk out as they did in precouncil years.” (Priests who leave without permission and then marry, as many do, are excommunicated.)
Read more:
time.com/time/magazine/article/0,9171,920259,00.html#ixzz1ZkiTE0VO
The second issue is that even priests who had been laicized were restricted in their participation in parish life. They could not:
- Celebrate any of the sacraments except for hearing deathbed confessions. It is especially noted that he can’t give homilies.
- Serve as an extraordinary minister of holy Communion.
- Serve any “directive office in the pastoral field” (e.g., serving as a parish administrator).
- Do anything at all in a seminary.
- Serve as a director or teacher in a Catholic university.
- Teach theology or any closely related discipline (e.g., religious studies, history of theology) in a non-Catholic university.
- Serve a director (e.g., school principal) in a parochial school.
- Serve as a teacher in a parochial school unless he gets the bishop’s permission.
- Live in or frequent places where his status as an ex-priest is generally known, unless he gets the bishop’s permission.
jimmyakin.org/2006/05/what_expriests_.html
I would guess that the restrictions on the lay involvement of former priests applies only to those who have been laicized, and not to those who decided not to even bother seeking laicization because the Vatican under John Paul II was not approving of laicization requests.