In that case the government is the property owner.
I don't really see how those are problematic examples. Have these women been using men's rooms all along? If so, then obviously they can just keep doing what they have been doing, and it's no more of a violation of any policies than it always has been. If nobody can tell they're not men, then they're not taking much risk. Of course, if they're using showers, then their genitals will trump their beards, and I have a hunch that they already have a practice of avoiding public showers and will again just continue what they've always done.
This isn't really about people with vaginas who make themselves look so much like men that nobody can tell they're not men using men's rooms just like they have already been doing without getting caught. It's about people with penises who look like men and everybody knows are men but dress like women using ladies' rooms--not just bathrooms, but also locker rooms and showers--and expecting to just be able to get away with it.