They should be used sparingly, in exceptional circumstances, otherwise the entire act becomes meaningless.
That is your interpretation not supported by the law. The Equality Act places no such limitations on the use of exemptions. It's entirely illogical to claim it does. How would you quantify sparingly in a country with 33 million female residents? Which of them are not entitled to single-sex provisions? Everyone outside of London? Urban dwellers?
Neither "exceptional circumstances" nor "sparingly applied" are words used in the text of the Equality Act or the Explanatory Notes (in fact, "sparingly" does not appear at all in either, while "exceptional" is only used in regard to schooling).
The Equality Act places precise limitations on the use of measures designed to lawfully discriminate against someone on the basis of a protected characteristic. Quantity of application or unique and uncommon circumstances of application are not limits imposed by the law.
On the contrary, the use cases specified are those commonly expected to be single-sex for all 33 million of us.
For the protected characteristic of sex, the actual limitations are:
- Excluding someone on the basis of sex must be a proportionate means to a legitimate aim
and
- It can only be done if one of six distinct conditions is met
So no, a misogynist cannot simply discriminate against women by not employing them as he pleases. But if he only offers services to males (which would meet one of the six conditions I mention above), an employer can specify that only male candidates qualify under Schedule 9.
Where your case satisfies one of the six conditions, you only need to show exclusion is justified.
If every store in the country, however many tens of thousands that may be, provided changing rooms on a strictly male-only and female-only basis with alternatives provided to those who identify as trans, that would be entirely in both the letter and the spirit of the law. And this exact example - of changing rooms - is used in the Explanatory Notes as legitimate and proportionate.
In practice, not every store has the space, not everywhere is sex segregation strictly enforced or even necessary. And the choice how to provide changing rooms is up to each store. Of course, how its clientele reacts will also play a role. If a place like my local Debenhams for instance, suddenly turns the female only waiting room into a mixed-sex one, then even loyal customers like me may choose to stay away.
But what each store should know is that if they wish to do so, providing single-sex changing rooms is legal. When they do so, they must consider how to meet the needs of customers who identify as trans. If a store offers male-only and female-only changing rooms and also offers a unisex cubicle, this would satisfy the legal requirements.
In some circumstances, like here, the exemptions are applied on a voluntary basis. In other circumstances, the provider is legally obliged to. Such as with separate sex facilities in schools once children are 8 years old.
However, if you do not accept that women and girls are entitled to single-sex provisions where privacy, dignity and safety are an issue, I do understand that this is hard to accept.