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“inquire generally into any
matter, including any enactment
or law, or any practice, or any
procedure, whether governmental
or non-governmental, if it appears
to the Commission that the
matter involves, or may involve,
the infringement of human rights”.
Terms of Reference
1. The Commission will inquire into:
(a) the nature and extent of
discrimination experienced by
transgender people
(b) the accessibility of public health
services to transgender people
(incorporating the minimum core
obligations of both the primary and
secondary health services, including,
but not limited to, gender reassignment
services)
(c) the barriers faced by transgender
people when attempting to gain full legal
recognition of their gender status.
2. To consider, as a result of these
inquiry processes, whether to make
recommendations on:
(a) changes to legislation, regulations,
policies and practices
(b) other steps required to reduce the
level of marginalisation experienced by
transgender people.
1>6 *7;201=<,86 6 2<<287e=;*7<0.7- .;;.9 8;=
Executive Summary
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1>6 *7;201=<,86 6 2<<287e=;*7<0.7- .;;.9 8;=
"
Contents
Ngä Kaupapa
1. Introduction
10
;NYX[]\][^L]^[N
1^VJW[RPQ]\O[JVN`X[T
2WZ^R[bY[XLN\\
=N[VRWXUXPb
9[X¸UN\
2. Social Context
3. Children and Young People
24
28
<]JWMJ[M\XOLJ[N
1NJU]QY[XON\\RXWJU\°NaYN[RNWLN\
1NJU]QYXURLbMN_NUXYVNW]\
<YNLRJU1RPQ,X\]=[NJ]VNW]9XXU
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6. Citizenship
8O¸LRJUMXL^VNW]\
66
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!
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"
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"
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4. Equality and Freedom
from Discrimination
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36
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!
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"
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5. Health
50
7. Intersex people
80
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!
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!
8. Legal Framework
88
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!!
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9. Findings and
Recommendations
94
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Appendices
101
1. Introduction
Kupu Whakataki
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Why punish the innocent?
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I am at peace with myself.
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Gemmah Huriwai (Ngati Porou)
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I have always been Aunty Gemmah.
1>6 *7;201=<,86 6 2<<287e=;*7<0.7- .;;.9 8;=
Allyson Hamblett (Auckland)
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We don’t often get jobs in the
public view.
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We are not the same.
Phylesha Brown-Acton (Auckland)
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Headlines display us as frauds
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I am 100 per cent human.
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2. Social Context
Horopaki ä Iwi
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ehWb^_ijeho$<[_dX[h]"'//,
Historically, societies in all parts of the world included people who, today,
would be described as trans. Traditionally ‘trans people’ were often revered
and given specific religious or sacred roles. Yet, throughout the ages, there
have been periods when people were punished severely for defying strictly
defined categories of what was morally or legally appropriate behaviour and
dress for women or men. Trans people were included in these attacks be
because their gender role or identity did not match their biological sex.
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All human
beings have
the right
to define
and express
their own
gender
identity.
!
3. Children and Young People
Ngä Tamariki me ngä Taiohi
CodWdd_[iWbmWoiiW_Z"Ç][j^[h[m_j^ki"oekmedÊj[l[hX[i_jj_d]kfj^[\hedjm_j^j^[c[dÈ$M^WaWmW^_d[
From an early age young trans people knew they were different. This often
led to tension and distress at school and at home. The Inquiry identified an
urgent need for better information to provide a clear, thoughtful context for
young trans people at school, at home and when seeing health professionals.
At home
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It’s a
minefield
trying
to fit in
and be
accepted.
4. Equality and Freedom from Discrimination
Te Mana Örite me te Whakawätea mai i te Aukati
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The incidence of discrimination faced by trans people is high. Four out of
five submissions described examples of discrimination that ranged from
harassment at work to vicious assault and sexual abuse. For some trans
people discrimination has become so common they have come to expect it.
Trans people require support to advocate for their place and to overturn
stereotypes that lead to public and institutional discrimination.
Family
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Being
trans
isn’t a
lifestyle,
and it
isn’t a
choice.
"
5. Health
Hauora
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Trans people and health professionals consistently raised the difficulties
trans people have in obtaining general health services and being treated
with dignity and respect when they did use them. The Inquiry has identified
major gaps in availability, accessibility, acceptability and quality of medical
services required by a trans person seeking to transition. The provision of
public health services is patchy and inconsistent. Trans people and health
professionals need to work together to address these issues.
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I wish
that people,
especially
doctors,
would
understand
and
accept me.
6. Citizenship
Raraunga
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Birth certificates and passports are among the important documents that
affirm citizenship, protect New Zealanders from identity fraud and allow
citizens to travel safely overseas. Most trans people cannot obtain official
documents that provide consistent and accurate information about their
gender identity and sex. Government agencies share trans people’s concern
that official documents need to be accurate and trusted.
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"
!
7. Intersex People
Te Ruaruanga Taha Wahine, Taha Täne
Iec[j_c[i?medZ[hWXekjekhh_]^jiWi_dj[hi[nf[efb[X[YWki[_jjWa[iiebed]\ehej^[hf[efb[jeWYjkWbbo
kdZ[hijWdZehb_ij[djeki$?dj[hi[nf[hied
While the Inquiry’s terms of reference were limited to trans people, intersex
people made submissions that have raised significant human rights issues.
These require urgent consideration and will require broader consultation
with intersex people and their families, relevant government agencies and
health professionals.
Intersex people’s experiences
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We are not
ashamed of
who we are,
those issues
are created
by how we
are treated.
!
!!
8. The Legal Framework
Pou Taräwaho ä Ture
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The legal framework protecting the human rights of trans people is complex
and confusing. The process for changing sex details on official documents
should be simplified to reflect the reality that most trans people do not have
full gender reassignment surgeries, and common law cases no longer rely on
such surgeries as objective proof of someone’s sex. Trans people would have
clearer legal protection from discrimination if section 21(1)(a) of the Human
Rights Act 1993 stated that sex includes gender identity.
New Zealand law
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Broader implications
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=QN2WZ^R[bOX^WM]QJ]UR]]UN`X[TQJ\KNNWMXWNJU]QX^PQ
Conclusions
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!=QNL^[[NW]UNPJUO[JVN`X[TR\LXVYUNaJWMLXWO^\RWP
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^WMN[]QN1^VJW;RPQ]\*L]""+NLJ^\NJUUYNXYUN
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WX]QJ_NKJ[[RN[\YUJLNMRW]QN`JbXO]QNR[Q^VJW[RPQ]\
\RVYUbKNLJ^\N]QJ]MR_N[\R]bY[N\NW]\UNPJULXVYUNaR]b*UU
YN[\XW\N_N[b`QN[NJ[NNW]R]UNM]X[N\YNL]OX[]QNR[MRPWR]b
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RWKN]`NNWJUUJ[NNW]R]UNM]XY[X]NL]RXW^WMN[PNWN[JU
UJ`=QN2WZ^R[bLXW\RMN[NM`QN]QN[\XVNJVNWMVNW]
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*L]""2WURPQ]XO]QNLQJWPRWPLXVVXWUJ`JWM
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"
"
9. Findings and Recommendations
Ngä Hua me ngä Taunaki
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Wcoekha[oijWa[^ebZ[hÊ$?jÊiWXekjcWa_d]f[efb[WYYekdjWXb[$M^WaWmW^_d[
The Inquiry has revealed that the lives of trans people in New Zealand
are marked by discrimination, severe barriers to equitable health services
and limited legal and public recognition of who they are. They face
pervasive and entrenched barriers to the enjoyment of the same rights and
responsibilities as other New Zealanders. Trans people have shown courage
and the determination to assert their identity and needs and to live in
the sex they consider themselves to be. Wider society needs to listen and
government agencies should ensure their polices and practices are inclusive
of all trans people.
Nature and extent of discrimination
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Section 28
(3) The Court shall issue the declaration if,
and only if,—
(c) Either—
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(i) It is satisfied, on the basis of expert
medical evidence, that the applicant—
UX`N[]Q[N\QXUMOX[NWJKURWPJ][JW\`XVJW]XXK]JRW
(A) Has assumed (or has always had)
the gender identity of a person of the
nominated sex; and
[N¹NL]RWP]QN>WR]NM4RWPMXVJYY[XJLQ#
(B) Has taken decisive steps to live fully
and permanently in the gender identity of
the nominated sex; and
(C) Will, as a result of those decisive steps,
maintain a gender identity of a person of
the nominated sex; or
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Intersex people
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"!=QN2WZ^R[b[NLXVVNWM\LXW\RMN[RWP]QN\YNLR¸L
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"1X`N_N[RWLXW\R\]NWLRN\RWY[JL]RLNJWM]QN
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]QJ]R]`X^UMKN^\NO^U]XQJ_N[N\X^[LN\]QJ]MNJU
Role of the Human Rights Commission
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""=QN1^VJW;RPQ]\,XVVR\\RXWQJ\JLXW]RW^RWP
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=QN,XVVR\\RXW°\\YNLR¸L[XUNRWLU^MN\Y[X_RMRWPQ^VJW
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[RPQ]\NM^LJ]RXWXWR\\^N\OX[][JW\YNXYUNJWMOJLRUR]J]RWP
""
MRJUXP^N\KN]`NNW][JW\YNXYUNJWMPX_N[WVNW]
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[NLXVVNWMJ]RXW\R\LXUUJ]NMRW*YYNWMRa
WXVRWJ]NM\Na°
Recommendations
"=QN2WZ^R[b[NLXVVNWM\#
 JUUX`RWP]QN/JVRUb,X^[]]XVJTNJMNLUJ[J]RXWJ\]X\Na
OX[X_N[\NJ\KX[W7CLR]RcNW\
Consider the specific human rights issues facing
Enable effective participation by trans people in
decisions that affect them by:
[NLXPWR\RWPJWM\^YYX[]RWP]QNUNJMN[\QRYJWMJM_XLJLb
XO][JW\YNXYUNJWM
 RWL[NJ\RWPPX_N[WVNW]JPNWLRN\°LXW\^U]J]RXWJWM
LXUUJKX[J]RXW`R]Q][JW\YNXYUN\]J[]RWP`R]Q]QNY[RX[R]b
J[NJ\X^]URWNMRW]QR\[NYX[]
Reduce discrimination and marginalisation
experienced by trans people by:
 LUJ[RObRWPOX[]QNJ_XRMJWLNXOMX^K]]QJ]Y[X]NL]RXW
O[XV\NaMR\L[RVRWJ]RXWRW]QN1^VJW;RPQ]\*L]""
RWLU^MN\Y[X]NL]RXWO[XVMR\L[RVRWJ]RXWXW]QNP[X^WM\
XOPNWMN[RMNW]R]b
 [NLXPWR\RWP]QJ]Y[X]NL]RXWO[XVMR\L[RVRWJ]RXW^WMN[]QN
1^VJW;RPQ]\*L]""[NZ^R[N\YXURLRN\JWMY[JL]RLN\]X
KNRWLU^\R_NXO][JW\YNXYUN`QJ]N_N[]QNR[\NaX[PNWMN[
RMNW]R]b
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YNXYUNMN_NUXYRWPJQ^VJW[RPQ]\NM^LJ]RXWY[XP[JVVN
]XJMM[N\\Q^VJW[RPQ]\JWMMR\L[RVRWJ]RXWR\\^N\OX[
][JW\YNXYUN
Improve trans people’s access to public health
services and developing treatment pathways and
standards of care for gender reassignment
services:
 ]Q[X^PQ]QN6RWR\][bXO1NJU]Q`X[TRWPRWLXXYN[J]RXW
`R]Q][JW\YNXYUNJWMQNJU]QY[XON\\RXWJU\
Simplify the requirements for changing sex
details on a birth certificate, a passport and other
documents to ensure consistency with the Human
Rights Act by:
 *VNWMRWP\NL]RXW!LR+JWM,XO]QN+R[]Q\
-NJ]Q\JWM6J[[RJPN\;NPR\][J]RXW*L]""Kb
\^K\]R]^]RWP]QN¯YQb\RLJULXWOX[VR]b°]Q[N\QXUM`R]Q]QN
intersex people,
 ]Q[X^PQ]QN1^VJW;RPQ]\,XVVR\\RXW^WMN[]JTRWP
O^[]QN[RWMNY]Q`X[TRWLXW\^U]J]RXW`R]QRW]N[\Na
YNXYUNJWMX]QN[[NUN_JW]PX_N[WVNW]JPNWLRN\
Conclusions
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[NYX[]J[NWNLN\\J[b]XNW\^[N]QJ]][JW\YNXYUNJWM]QNR[
OJVRURN\NWSXb]QN\JVN[RPQ]\J\X]QN[YNXYUNRW7N`
CNJUJWM
1>6 *7;201=<,86 6 2<<287e=;*7<0.7- .;;.9 8;=
Appendix 1:
Actions and Recommendations
*,=287
@18
@2=1
Enable effective participation by trans people in decisions that affect them by:
9[X_RMRWPJM_RLNJWMRWOX[VJ]RXWOX[]QNMN_NUXYVNW]
6RWR\][bXO<XLRJU-N_NUXYVNW]
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MRJUXP^NJKX^]]QNR[Q^VJW[RPQ]\
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=[JW\YNXYUN
XO][JW\[NUJ]NMYXURLb[N\NJ[LQJWM[N\X^[LN\
2WL[NJ\RWPLXW\^U]J]RXWJWMLXUUJKX[J]RXW`R]Q
][JW\YNXYUNXWR\\^N\]QJ]JOONL]]QNV
Reduce discrimination and marginalisation experienced by trans people by:
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=[JW\YNXYUN
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6RWR\][bXO3^\]RLN
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<9*;,
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]XLQJWPNWJVNJWM\NaMN]JRU\XWRW\]R]^]RXW\°[NLX[M\
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9[X_RMRWPRWOX[VJ]RXWJKX^]R\\^N\OX[
-NYJ[]VNW]XO5JKX^[
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][JW\YNXYUNRW]QN`X[TYUJLN ][JW\YNXYUNNVYUXbN[\^WRXW\
;NLX[MRWPRWOX[VJ]RXWJKX^]L[RVN\JPJRW\]][JW\YNXYUN
6RWR\][bXO3^\]RLN
-NYJ[]VNW]XO,X[[NL]RXW\
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1^VJW;RPQ]\,XVVR\\RXW
,X[[NL]RXW\9XURLN
KN\]Y[JL]RLNOX[\NJ[LQMN]NW]RXWJWMRVY[R\XWVNW]
2W]N[WJU*OOJR[\5JKX^[
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Improve the health of trans people by:
9[X_RMRWPLUNJ[RWOX[VJ]RXWJKX^]PNWMN[[NJ\\RPWVNW]
6RWR\][bXO1NJU]Q
-R\][RL]QNJU]QKXJ[M\
\N[_RLN\J_JRUJKUN`R]QRWNJLQMR\][RL]QNJU]QKXJ[M ][JW\YNXYUN
9^KUR\QRWPJLJ\N\]^MbXW][NJ]VNW]YJ]Q`Jb\
6RWR\][bXO1NJU]Q
=[JW\YNXYUN
OX[][JW\YNXYUN
QNJU]QY[XON\\RXWJU\
-N_NUXYRWP][NJ]VNW]YJ]Q`Jb\JWMJP[NNM
6RWR\][bXO1NJU]Q
=[JW\YNXYUN
\]JWMJ[M\XOLJ[N
QNJU]QY[XON\\RXWJU\
1^VJW;RPQ]\,XVVR\\RXW
,XW\RMN[RWPQNJU]QRW\^[JWLNLX_N[JPNOX[][JW\YNXYUN
2W\^[JWLNRWM^\][b 1^VJW;RPQ]\,XVVR\\RXW
][JW\YNXYUN
*,=287
@18
@2=1
Enhance the citizenship of trans people by:
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Improve the dignity, equality and security of intersex people by:
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Appendix 2:
Submitters to the Inquiry
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Appendix 3:
Selected Trans Organisations, Networks And Resources
Agender NZ
http://www.agender.org.nz/
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Family Planning Association NZ
http://www.fpanz.org.nz/SITE_Default/SITE_fpanz/
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http://ftmaotearoa.tripod.com/
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GenderBridge
http://www.genderbridge.org
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http://www.rainbowyouth.org.nz/
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Intersex Awareness NZ
www.ianz.org.nz
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http://groups.yahoo.com/group/nztransguys/
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http://www.outthere.org.nz/resources.htm
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Pacific People’s project
http://www.nzaf.org.nz
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http://www.mangereeastfsc.org.nz/contact.html
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http://www.transhelp.net.nz/transcare_trust.html
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http://abcnews.go.com/2020/story?id=3089992&page=1
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http://www.transgender.co.nz/index.php
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Appendix 4:
Selected Bibliography
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DWjkh[")-."! Human Rights Commission
Te Kähui Tika Tangata
```Q[LLXWc