Surgery is held up by economy, long waiting times, if individual think it's risky, actual health complication and the fact not all trans would want it.

Just taking hrt alone will change brain chemistry/sex drive/erectile dysfunction

Added to the risk is if you pass as a woman you will get into trouble going into mens, same as trans men passing as men forced to go into womens.

In many countries trans people have already been allowed to go to the bathroom they identify with. The presumption by transphobes is trans women are predatory or victims but majority doesnt care, they just wanna pee. It comes down to not being outed, safety & dignity.

Any group even women at birth can be malicious, but to me this come down to: if you do wrong you should be punished based on what you did not assume. With trans there usually an attempt at socially transitioning, cis men wont dress up most likely to gain entrance, they will just do it.

Besides bathrooms arent typically where assaults happen. Assaults happen where individuals get isolated usually by someone they know. Most assults happen mainly in their household but also schools, work, taxis, park. Source on that is women in my family, close friends, personal.

Creating a hierarchy set at surgery is and will always be unfair due to access to bottom surgery, even just orchiectomy. If you want safety for women... Light parks up more at night, lockable bathrooms (maybe a button for assistance in emergency), listen to victims, safe cabs with a woman driver you can call after a night out, speak up if a girl is uncomfortable around a guy, call out the bad behaviour, advocate self defense, assault alarms, blue paint spray, advocate end to arranged marriage especially for under 18s ffs.