There is another long paper from the Government setting out (I think) why they thought it necessarty to use Section 35. This is the 4th section:
Adverse effects in relation to the operation of the Equality Act 2010
(a) Exacerbation of existing issues with the operation of the Equality Act 2010The amendments made by the Bill to the 2004 Act will allow a new and significantly broader category of people, who are currently unable to obtain a full GRC, to do so. This group (the new cohort) comprises:
- applicants aged 16 to 17
- applicants without a diagnosis of gender dysphoria
- applicants who have not lived for 2 years in their acquired gender
The UK government has assessed that the creation of this new and very different cohort of eligible applicants would adversely affect the operation of the 2010 Act, identifying 4 key areas:
- clubs and associations (where exceptions apply in respect of sex but not in respect of gender reassignment)
- the operation of the PSED
- equal pay
- provisions where exceptions apply for both sex and gender reassignment
Clubs and associations (where exceptions apply in respect of sex but not in respect of gender reassignment)The provisions in the 2010 Act relating to associations with 25 or more members (Part 7) mean that associations are able to restrict membership to people who share a protected characteristic, so they could restrict membership to men or to women. Many forms of women’s groups and clubs, including any membership-based[footnote 10] support groups for vulnerable women or women who have been victims of rape or sexual violence, or those designed to foster women and girls’ participation in particular activities or sports, will be covered in respect of associations which have regulated their membership to be women-only. Where an individual has changed their sex for the purposes of the 2010 Act by obtaining a full GRC, the association is therefore not able to refuse membership on the grounds of their previous sex. They also cannot restrict membership to people who are not covered by the gender reassignment characteristic because an association’s membership can only be based on a shared protected characteristic and not the absence of it.
The Bill’s creation of a new cohort with the ability to change their legal sex will significantly change the profile and number of individuals that associations will be unable to exclude from membership on grounds of sex.
The 2010 Act’s measures in relation to associations prevent them from denying membership to a presently small and highly defined group of people who have changed their legal sex under the 2004 Act as it currently applies. This was the context in which the 2010 Act was enacted.
The Bill will adversely affect the operation of the 2010 Act by changing the effect of its requirements on single-sex associations, who will be required to accept, without discrimination, members from a new, larger and different cohort, who would not have met the requirements currently set out in the 2004 Act.
Whereas current GRC recipients have established a stable gender identity for at least 2 years, recipients under the Bill may have done so for only 6 months[footnote 11] and in a manner which is self-defined. Where an association had reason to exclude the opposite sex, it is reasonable to assume that a liberalisation of the process for changing legal sex will create new challenges, problems or concerns. Accommodations, adjustments and compromises that may have been reasonably provided on an exceptional basis, may not be possible for a larger number. Provisions that may have been appropriate for individuals who have lived in their acquired gender over a significant period of time may not be suitable where this is not the case.
The Bill therefore changes the nature and level of expectations of single-sex associations as compared to those set by the 2010 Act when enacted. In doing so, it may lead to associations, including long established associations, being at greater risk of being found to be operating unlawfully (by excluding transgender women, for example) or making decisions to cease operating because of the perceived risks. Similarly potential founders of new such associations may not proceed due to equivalent concerns. These changes could lead to the loss of this provision, undermining efforts to foster greater participation of women in a particular activity, or to the self-exclusion of women who, for religious, philosophical belief or other reasons, may only feel able to attend an association if they understand them to be segregated by biological sex and who are more likely to believe, given the increase and expansion of the cohort if the Bill is enacted, that this is unlikely.