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ABSTRACT TAYLOR, JAMI KATHLEEN. the Adoption of Gender Identity Inclusive Legislation in the American States. (Under the Direct

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ABSTRACT TAYLOR, JAMI KATHLEEN. the Adoption of Gender Identity Inclusive Legislation in the American States. (Under the Direct ABSTRACT TAYLOR, JAMI KATHLEEN. The Adoption of Gender Identity Inclusive Legislation in the American States. (Under the direction of Andrew J. Taylor.) This research addresses an issue little studied in the public administration and political science literature, public policy affecting the transgender community. Policy domains addressed in the first chapter include vital records laws, health care, marriage, education, hate crimes and employment discrimination. As of 2007, twelve states statutorily protect transgender people from employment discrimination while ten include transgender persons under hate crimes laws. An exploratory cross sectional approach using logistic regression found that public attitudes largely predict which states adopt hate crimes and/or employment discrimination laws. Also relevant are state court decisions and the percentage of Democrats within the legislature. Based on the logistic regression’s classification results, four states were selected for case study analysis: North Carolina, Pennsylvania, Maryland and Massachusetts. The case studies found that legislators are often reluctant to support transgender issues due to the community’s small size and lack of resources. Additionally, transgender identity’s association with gay rights is both a blessing and curse. In conservative districts, particularly those with large Evangelical communities, there is strong resistance to LGBT rights. However, in more tolerant areas, the association with gay rights advocacy groups can foster transgender inclusion in statutes. Legislators perceive more leeway to support LGBT rights. However, gay activists sometimes remove transgender inclusion for political expediency. As such, the policy core of many LGBT interest groups appears to be gay rights while transgender concerns are secondary items. In the policy domains studied, transgender rights are an extension of gay rights. The Adoption of Gender Identity Inclusive Legislation in the American States by Jami Kathleen Taylor A dissertation submitted to the Graduate Faculty of North Carolina State University in partial fulfillment of the requirements for the Degree of Doctor of Philosophy Public Administration Raleigh, North Carolina 2007 APPROVED BY: _________________________________ _________________________________ Traciel Reid Henry Schaffer _________________________________ _________________________________ Dennis Daley Co-chair of Advisory Andrew Taylor Co-chair of Advisory Committee Committee DEDICATION This dissertation is dedicated to my family and friends. Without their assistance, completion of this endeavor would not have been possible. Special thanks are extended to Ann Cyptar for helping me find the courage to dream. ii BIOGRAPHY Jami Kathleen Taylor is a native of Norfolk, Virginia. She holds a bachelor of arts in economics and a masters degree in public administration from Old Dominion University. Additionally, she holds a masters degree in library and information science from the University of North Carolina at Greensboro. Prior to admission in the PhD program in public administration at North Carolina State University, Jami was a municipal real estate appraiser. Currently, she teaches political science at Ohio University. Jami is blessed to have one child, Jessica. iii TABLE OF CONTENTS LIST OF TABLES ........................................................................................................... viii LIST OF FIGURES ........................................................................................................... ix CHAPTER 1: PRIMER ON TRANSGENDER AND PUBLIC POLICY ......................... 1 The Concept of Transgender ................................................................................... 2 The Fragmented Nature of Public Policy Regarding Transgender Issues .............. 5 Vital Records: Differences in State Law and State Sanctioned Outing .................. 6 Transsexuals and Marriage Law: Echoes of the Same-Sex Marriage Debate ........ 9 Case Study: Federalism, Same-Sex Marriage, and Marriages Involving Transsexuals ............................................................................................. 12 Transgender People and Employment Law .......................................................... 13 Health Care Policy and Gender Identity Disorders ............................................... 16 Education and Transgender Identity ..................................................................... 19 Gender Identity and Sexual Orientation Inclusion under Hate Crimes Laws ....... 20 Criminal Justice and Transgender Persons in Prison ............................................ 21 Conclusion ............................................................................................................ 22 Table 1.1: Vital Records Laws and Sex Reassignment ........................................ 23 Table 1.2: Marriage Entered Into by Post-operative Transsexuals ....................... 24 Table 1.3: Gender Identity and Sexual Orientation Discrimination Protections .. 25 Table 1.4: Comparison of Hate Crimes Laws ....................................................... 26 CHAPTER 2: LITERATURE REVIEW AND METHODOLOGY ................................ 27 Research Methodology ......................................................................................... 30 Dependent Variable: Transgender Inclusive Legislation ......................... 31 Independent Variable: Ideology ............................................................... 32 Independent Variable: Education ............................................................. 33 Independent Variable: Religion-Evangelical Church Membership ......... 33 Independent Variable: Attitudes toward Homosexuality .......................... 34 Independent Variable: Status Quo Policy-Transgender Inclusive Judicial Decisions ................................................................................................... 35 Independent Variable: Democratic Party Control of the Legislature ...... 35 Independent Variable: Party of Governor ................................................ 35 Qualitative Research ............................................................................................. 36 Case study methodology ....................................................................................... 38 Conclusion ............................................................................................................ 38 Table 2.1: Classification Table ............................................................................. 40 CHAPTER 3: QUANTITATIVE FINDINGS .................................................................. 41 Discussion ............................................................................................................. 45 Conclusion ............................................................................................................ 51 Table 3.1: Means ................................................................................................... 53 Table 3.2: Principal Components Analysis ........................................................... 54 Table 3.3: Logistic Model-Dependent Variable Transgender Inclusive Laws ..... 55 Table 3.4: Logistic Model Comparison ................................................................ 56 iv Table 3.5: Logistic Model; Dependent Variable Sexual Orientation Inclusive Laws ...................................................................................................................... 57 Table 3.6: Logistic Model with Single IV Comparison ........................................ 58 CHAPTER 4: NORTH CAROLINA CASE STUDY ...................................................... 59 Federal Politics...................................................................................................... 59 North Carolina Government and Politics .............................................................. 60 Governor ................................................................................................... 61 History of Gender Identity Inclusive Legislation in NC ....................................... 61 Barriers to Gender Identity Inclusive Legislation ................................................. 65 Nonsalience ............................................................................................... 65 Negative Attitudes ..................................................................................... 68 The Political Socialization of Negative Attitudes: Political Culture ........ 70 The Political Socialization of Negative Attitudes: Religion ..................... 72 General Opposition to These Laws and the Conflation with Gay Rights . 74 Legalistic Arguments ................................................................................ 75 Partisanship .............................................................................................. 76 Conclusion ............................................................................................................ 78 Table 4.1: Religious Adherance-1990 .................................................................. 80 CHAPTER 5: PENNSYLVANIA CASE STUDY ........................................................... 81 Pennsylvania: Background.................................................................................... 81 Federal Politics...................................................................................................... 81 Pennsylvania Politics ...........................................................................................
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