I took it to mean if you are allowed to act as a representative of the state in legal marriage, you aren’t allowed to perform a wedding ceremony and leave the license out. So if a person isn’t qualified in the eyes of the state they can perform all the ceremonies they want, but if a pastor is qualified in the eyes of the state they then can’t have a ceremony without state involvement.
I don’t even know if it is enforced on the state’s end or what. I do know that sometimes pastors refuse to have a ceremony for people who don’t want the state involved for the reason that the state considers it illegal to so.
Freegards
This is an example of why the only way to really solve the problem is to effect a separation of marriage and state.