RIS321810 Den Haag Strijdbaar voor de transgemeenschap bijlage 4

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ANNUAL REVIEW OF THE HUMAN RIGHTS SITUATION OF LESBIAN, GAY, BISEXUAL, TRANS, AND INTERSEX PEOPLE COVERING THE PERIOD OF JANUARY TO DECEMBER 2024

AZERBAIJAN

ACCESS TO GOODS AND SERVICES In April, Azerbaijani author Nazli Chalabi published an LGBTIthemed novel titled Blue Fear, which is available for sale on the Azerbaijani market.

BIAS-MOTIVATED SPEECH In March, following a yearly Women’s Day march where protesters requested effective access to trans healthcare, the governmentaffiliated Real TV channel aired a report targeting LGBTI people with discriminatory hate speech.

BIAS-MOTIVATED VIOLENCE In March, the murder of a trans woman in Baku was met with a police response that lacked a comprehensive investigation process, sparking community-wide requests for a thorough examination.

EDUCATION A new policy on equality, diversity, and inclusion was adopted by various universities in Azerbaijan, explicitly including sexual orientation and gender as grounds for protection. The policy aims to ensure clear, fair, and accessible services at university, guarantee that people are treated equally, receive the respect and dignity that they deserve, and that their diversity is acknowledged.

FAMILY In May, a woman from Krasnoyarsk forcibly transported her 18-year-old daughter to Baku, confiscating her documents, phone, and antidepressants after she revealed her sexual orientation. Her current whereabouts are unknown.

INSTITUTIONAL SUPPORT In April, the ECtHR issued a ruling on several applications against Azerbaijan concerning LGBTI rights. These applications stemmed from events in September 2017, when Azerbaijani police arrested multiple LGBTI people under various pretexts, leading to their mistreatment, illegal detention, and discrimination. In 2019, Azerbaijan acknowledged the violations and offered compensation through a unilateral declaration. However, the applicants expressed dissatisfaction, citing inadequate compensation and acknowledgment. The ECtHR reviewed the government’s submission and removed 19 applications from its list, stating that further examination was unnecessary given the government’s admission and compensation offer.

representation and active engagement in such important electoral events, Nafas facilitated the involvement of LGBTI people in the monitoring of the elections, contributing to the fight for both electoral transparency and LGBTI political representation. Despite the intention to foster inclusivity in electoral processes, the efforts of LGBTI observers were met with backlash from local media, which accused them of staging provocations and smearing the election process. An article published by Axar.az released four hours before the election, warned about “groups planning to sabotage election day,” while singling out Nafas as one of the leaders of such groups. On 9 February, in another article published by Musavat, Nafas was exclusively targeted and accused of being “the main interlocutors for smearing the election process.” Following the backlash similar events occurred during the parliamentary elections which were held on September 1. Although there was no such plan of observation by any LGBTI groups in the country, an article titled “Rainbow” Observers - What and Who Do They Serve? was published on the Azvision media platform just days before the election and warned against the same scenario.

PUBLIC OPINION In June, discussing the package proposal being considered by the legal committee of the Georgian parliament on the outlawing of alleged ‘LGBTI propaganda’, a well-known Azerbaijani lawyer, Akram Hasanov expressed his support for more prohibitive norms against LGBTI rights. Hasanov claimed that “Azerbaijan should refer to Georgian practice in this matter” and advocated for a similar approach to be implemented worldwide. In July, Georgia’s anti-LGBTI draft law caused political discussions in Azerbaijan, with pro-government media contributing to the creation of an unofficial network of public officials and relevant figures in the Azerbaijan context who share a same opposition to LGBTI rights. In September, discussing Georgia’s anti-LGBTI draft law being adopted in the 2nd hearing by the Georgian parliament, a wellknown Azerbaijani sociologist, Elchin Bayramli, expressed his support. Bayramlı, while advocating for legislative and policy measures to counter so-called “LGBTI propaganda,” proposed harmful actions targeting LGBTI people, including identifying and forcibly confining them. He also claimed that LGBTI advocacy was directed and financed by Azerbaijan’s “enemies” in global circles.

PARTICIPATION IN PUBLIC, CULTURAL, AND POLITICAL LIFE

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On 7 February, snap presidential elections took place in Azerbaijan. Understanding the importance of LGBTI

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ANNUAL REVIEW OF THE HUMAN RIGHTS SITUATION OF LESBIAN, GAY, BISEXUAL, TRANS, AND INTERSEX PEOPLE COVERING THE PERIOD OF JANUARY TO DECEMBER 2024

BELARUS

BIAS-MOTIVATED SPEECH The state-run Belarusian television channel aired an episode of the youth talk show ‘Yes, But’ which discussed potential punishments for non-normative sexual orientations and gender identities. The program equated LGBTI identities with paedophilia and labelled LGBTI community practices and identities as “a weapon in the hands of the West and the United States” and “a danger to Belarusian statehood.” Belarusian state media is often characterised by the presence of incorrect and offensive language, as well as hate speech, with half of public communications in 2023 containing harmful language and signs of discrimination towards minorities like LGBTI people. An increase in the use of hate speech in state propaganda against the LGBTI community has been recorded by TG House in Belarus in 2024. State media often portrayed LGBTI people as criminals or a threat to traditional values, using discriminatory language, reinforcing stereotypes, and justifying repressive laws and actions against LGBTI people and organisations.

EQUALITY AND NON-DISCRIMINATION In February, Prosecutor General Andrei Shved announced that the Prosecutor General’s Office plans to introduce a law imposing administrative penalties for “LGBTI propaganda”. The draft law has not been tabled yet. Activist reports indicate that at least ten trans people left Belarus last year due to discrimination and repression. Further information about the context is reported under Legal Gender Recognition and Police and Law Enforcement.

FAMILY A new concept of National Security has been adopted, emphasising the protection and promotion of the traditional family, defined strictly as a union between a woman and a man by birth. A trans man from Belarus reported having to flee the country after his son started experiencing bullying at school due to his father’s gender identity, and he was subjected to an investigation that could have resulted in the loss of parental rights due to his gender expression.

FREEDOM OF ASSOCIATION In March 2024, the Central District Court of Minsk declared the informational materials of TG House, a trans-led organisation, including its online resources and social media accounts, as extremist. This marked the first instance in Belarusian history where an LGBTI organisation was officially labelled that way. Back to index <-->

The court’s decision highlights the increasing pressure on the LGBTI community and the State’s efforts to suppress any forms of association and expression related to the protection of the rights of sexual and gender minorities.

FREEDOM OF EXPRESSION At the beginning of 2024, legislative amendments were introduced to expand state bodies’ access to personal data, including without individuals’ consent. In January, President Lukashenko signed Decree No. 32 “On Automobile Carriage of Passengers,” which grants the transport inspection authority to request and obtain personal data from carriers, dispatchers of irregular connections, and taxis without consent. In March the Ministry of Culture revised the regulations on the production, distribution, and promotion of erotic materials, which now also encompass content related to sexual education. These changes expanded the definition of “pornography” to include “non-traditional sexual relations and/or behaviour”. In April, amendments were made to the Military Doctrine, introducing significant changes in its classification of internal and external threats. External threats now include the spread of cosmopolitanism and statelessness, as well as ideas that reject traditional values and obligations to defend the country. According to a Telegram channel linked to law enforcement agencies, a website featuring LGBTI themes has been classified as “extremist material” by a court for the first time.

Starting in October, the Ministry of Information of Belarus started sending letters and emails to bookstores, including online platforms, instructing them to remove from sale any literature that “could harm the national interests” of the country. One of these letters, signed by Deputy Minister Denis Yezersky, was received by Belarusian publisher Zmiter Vishnev who reported that the text highlights the Ministry’s ongoing efforts to identify and prevent the spread of “destructive” literature, particularly works that affect the spiritual and moral sphere.

DATA COLLECTION In Belarus, escalating repression has made accessing information about LGBTI issues increasingly difficult. The government’s crackdown has silenced independent voices and dismantled third sector organisations. As reported by TG House Belarus, those who attempt to gather data or advocate for LGBTI rights face significant risks, including arrest and imprisonment.

According to recent data, 40% of LGBTI people reported their mental health as “bad” or “very bad,” a significant 88% are seriously considering emigration and, among those who left Belarus since 2020, over 70% cited political repression as their primary reason for departure. Human rights defenders report that from 2023 to 2024, LGBTI people have emerged as a new subject of state repression in Belarus.

FREEDOM FROM TORTURE, CRUEL, INHUMAN, OR DEGRADING TREATMENT In April, police officers assaulted trans activist Yulia who was subsequently forced to flee the country after being subjected to relentless pressure and threats. A trans woman reported to TG House that, before managing to flee the country, she was subjected to severe abuse during detention. She described being beaten and having to endure stun gun torture, as security forces mocked her gender identity and coerced her into making false confessions.

INSTITUTIONAL SUPPORT In March, the HRC passed a resolution calling for the immediate establishment of a group of independent experts to oversee the human rights situation in Belarus.

LEGAL GENDER RECOGNITION Monitoring conducted by TG House from 2019 to 2024 has highlighted systemic issues within the Gender Transition Commission in Belarus, revealing a significant increase in rejection rates for gender transition applications. Notably, during the first commission meeting in 2024, 80% of applicants were denied. The monitoring also uncovered widespread procedural inconsistencies, lack of transparency, and discriminatory practices, including arbitrary criteria for decision-making. These barriers have forced many trans people to abandon their efforts or seek assistance abroad, exacerbating the challenges faced by the trans community in accessing legal gender recognition. TG House also documented a case in 2024 where a trans man in Belarus faced coercion from officials to abandon his gender transition. He reported significant pressure, including threats of losing access to essential documents and social services.

POLICE AND LAW ENFORCEMENT In February, amendments were made to Decree No. 355, expanding the military’s authority to use weapons, allowing for more arbitrary use of force against civilians and diminishing institutional safeguards. Back to index <-->

In February, a trans woman was detained multiple times for “harbouring” an LGBTI person from Ukraine. During her detention, law enforcement officials forced her into confessing on camera and circulated the video, as well as details about her gender transition and intimate photos. In April, the House of Representatives passed the draft Law “On Amendments to Laws on the Investigative Committee.” The draft law aims at granting the Investigative Committee the authority to access personal data from information resources and systems without individuals’ consent. In September, a recent wave of arrests targeting the LGBTI community in Belarus was recorded by TG House, with at least eight trans people being detained since August. Throughout the September, authorities intensified the crackdown which began in late August, leading to an estimated 15-20 LGBTI people being detained across multiple cities. Among the detainees, trans people were primarily charged with hooliganism, while others faced criminal charges related to the dissemination of pornography. Many of them cited instances of beatings, psychological intimidation, and verbal abuse during detention. TG House clarified the information regarding the total number of detentions, reporting that, in 2024, at least 32 LGBTI activists were detained.

According to the organisation, activists consistently reported threats, public shaming, and surveillance, as part of a broader campaign to suppress dissent and align with the state’s promotion of so-called “traditional values.” In November, Politvyazynka and TG House reported the case of Evgeniya, a trans woman who experienced significant violence when security forces raided her apartment. As part of the testimony, the organisations reported that police forces found her in her underwear and mocked her, asking, “So are you a woman or a man?” before forcing her to record a video while they ridiculed her gender identity, expressing uncertainty about which cell to place her in due to her gender identity.

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BELGIUM ASYLUM

In September, the Committee of Ministers of the Council of Europe indicated that the Belgian authorities are struggling to provide dignified accommodations for people during their asylum procedures, forcing many to sleep on the streets. This situation particularly affects single men, including those from the LGBTI community. When asylum seekers do receive shelter, their basic safety needs—especially those of LGBTI people—are often inadequately addressed in the main reception centres. Additionally, LGBTI asylum seekers frequently find themselves placed alongside individuals from their countries of origin, which can pose challenges as many have fled their home countries due to anti-LGBTI laws or hostile environments, making their circumstances in these communal settings more complex.

BIAS-MOTIVATED SPEECH In April, a coalition of human rights organisations issued an open letter urging the revision of Article 150 of the Constitution. Article 150 of the Belgian Constitution notably governs the prosecution of “press offenses,” requiring that such cases be judged by a jury in a “court of assizes”, with the exception of cases of hate speech based on racism and xenophobia, which are handled directly by criminal courts. The proposal of the coalition aims to broaden the scope of the law by including LGBTI-phobic hate speech in the list of press crimes prosecutable by criminal courts, thereby subjecting it to the same legal framework that governs racist and xenophobic speech. Leading up to the national and regional elections in June, Vlaams Belang, a political party in Belgium, actively promoted anti-LGBTI rhetoric through hate speech and bias-motivated discourse. Party chairman Tom Van Grieken remarked that “LGBT rights are acquired rights” and stated that “Vlaams Belang does not believe that there are genders”. Van Grieken further justified ridiculing people for expressing their gender identity and asserted that proposals for legislative changes to gender markers in official documents should not be part of governmental discussions.

In their program, Vlaams Belang articulated their opposition to what they termed “gender madness” in early education, specifically targeting toddler, primary, and secondary schools. In their 2023 brochure titled Cultuurstrijd (Culture Battle), they described the teaching of gender theories as “confusing, dangerous, and pedagogically irresponsible.”

In May, the Brussels Criminal Court sentenced a man to one year in prison and to pay €5,000 in compensation for harassment with aggravating circumstances relating to discrimination against Samantha Warginaire, a trans woman from Brussels and candidate for regional elections. In June, the Liège Assize Court handed Jérémy Davin a 30-year prison sentence for the homophobic killing of 43-year-old Mbaye Wade. Wade was fatally stabbed fifteen times at his residence on September 17, 2020, allegedly as an act of vengeance following a previous encounter. The aggravating circumstance of homophobia was retained by the jury against Davin, who identified as bisexual and was deemed by the court to have been influenced by ‘internalized homophobia’ in his actions. In late August, Grindr issued a warning to its users about the risk of homophobic violence following a shooting in Ixelles. The incident, which left a 57-year-old man dead and his son and wife injured, occurred after the son was lured into a fake date arranged through the dating app, where the attackers had set up the meeting to ambush him. Several other complaints were lodged with the Brussels police regarding homophobic attacks. According to Le Soir, the attacks followed a consistent pattern with victims being contacted through a popular dating app using a fake account to arrange meetings before ambushing them.

In September, the Bruges Criminal Court sentenced a couple to 15 years in prison for multiple terrorism-related offences. According to judge Amélie Van Belleghem, there were concrete and elaborate plans to carry out attacks in various locations in Antwerp, including the Jewish neighbourhood, an LGBTI bar, a police station, and a NATO building.

EDUCATION In January, a student at Université libre de Bruxelles publicly criticised the institution on social media following a transphobic incident in the Solbosch campus restrooms. The student notably criticized an alleged gap between the university management’s declared commitment to trans rights and the actual experiences of students. In May, the European Union Agency for Fundamental Rights (FRA) LGBTIQ survey published a report highlighting a troubling rise in school bullying towards LGBTI pupils, with 67% of Belgian

BIAS-MOTIVATED VIOLENCE

respondents experiencing harassment or mockery.

According to European Union Agency for Fundamental Rights (FRA) LGBTIQ survey, in Belgium, 15% of LGBTI respondents reported being assaulted in the five years prior to the survey. Over the past year, 6% experienced assault, and more than half reported being harassed.

EMPLOYMENT

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In February, Belgium introduced a new Criminal Code that removes the distinction between discrimination based on ‘racial’ criteria and other grounds, including sexual orientation,

in employment and goods and services. This means that discrimination against individuals based on sexual orientation is now treated with the same legal seriousness as discrimination based on race, ensuring equal protection under the law.

on individuals with variations in sexual characteristics must be preceded by explicit, informed consent from the person concerned, in line with patient rights. Nonetheless, the proposal did not make it to the parliament before the June election cycle.

FAMILY

In February, the Flemish Parliament voted unanimously to provide better support and care for intersex people by establishing a Flemish centre of expertise for intersex people capable of providing appropriate information, awareness-raising and training to professionals.

The legislation regarding surrogacy remains unclear, leading to discrimination against same-sex families, as the absence of a clear legal framework leads local administrations to employ different methods/practices concerning the registration of children born through surrogacy. The current adoption procedure allows the child’s birth families to specify that they refuse their child to be adopted by same-sex couples, which constitutes clear discrimination.

FREEDOM OF EXPRESSION In May, the LGBTI flag hung in front of the municipal administration of Awans (in the Walloon region) was taken down and burned by unknowns. In August, a rainbow flag was torn from a balustrade and set on fire in central Antwerp. A complaint was filed with the local police.

HEALTH In the Namur province, a new consultation service will be established by the Willy Peers centre to better support trans people undergoing transition processes. This initiative addresses the region’s previous lack of tailored support for trans people and aims to meet their specific needs by offering comprehensive care, including psychological, social, and medical support, with on-site hormonal treatment available for those who need it. The city of Verviers, in collaboration with Maison Arc-en-Ciel de Verviers and the local associative network, has introduced its first free public sexual health products dispenser. The municipality plans to add ten more units throughout the city and nine additional locations across Wallonia to enhance accessibility. At the end of 2023, the National Institute for Health and Disability Insurance (RIZIV) launched a call for hospitals to apply as centres for trans-specific care. Several gender-specific teams have already been established. This will make psychosocial support more financially and regionally accessible.

BODILY INTEGRITY In February, Ecolo-Groen submitted a proposal of a bill to protect intersex children from unnecessary medical interventions. The proposed legislation mandated that any treatment or procedure Back to index <-->

DATA COLLECTION A survey conducted by the FRA on equality and non-discrimination for LGBTI people revealed persistent concerns about discrimination, harassment, and hate crimes. 11% of Belgian respondents had frequently or constantly contemplated suicide over the past year. Furthermore, 53% of respondents avoid public displays of affection like holding hands, and 27% steer clear of certain places due to fear of attack. The Prisme Federation Association reported that in 2024, out of a total of 262 municipalities in Wallonia, only 113 participated in its yearly awareness campaign inviting the municipalities to raise the rainbow flag and distribute rainbow pins to their citizens. The number showcased a slight reduction compared to 2023, when 144 out of the 262 municipalities took part in the initiative. Çavaria reported that, in Flanders, all municipalities raised the rainbow flag as part of an initiative of the ‘rainbow houses’ (LGBTI community Centres) During 2024, the Transgender Infopoint at Ghent University Hospital carried out the third instalment of the Belgian TGNB Study, with the publication expected for 2025. This survey, commissioned by the Institute for the Equality of Women and Men, seeks to assess the current living conditions of trans and/or nonbinary people and to identify their experiences of discrimination over the past two years.

FOREIGN POLICY The Belgian presidency of the EU Council organised an international conference on LGBTI rights in Brussels on May 17th.

HOUSING A team from the Institut de la Décision Publique, in collaboration with the Prisma Federation and the Walloon Region, is conducting exploratory research on the risks of precarious health and housing for LGBTI people in Wallonia. The goal of the research is to assess the current situation in the region and to develop recommendations for improving the support provided by the Walloon public authorities in addressing the specific needs of LGBTI people.

INSTITUTIONAL SUPPORT The Belgian LGBTI organisations Prisme, Çavaria, and RainbowHouse Brussels received accreditation under a new framework introduced by the federal government. Accreditation is necessary for accessing subsidies. This accreditation follows a bill amending anti-discrimination legislation, which allows umbrella organisations and associations to apply for recognition every five years. The first accreditation cycle began on January 1, 2024, and will end on December 31, 2028.These organisations were recognised and can now apply annually for subsidies from the Minister (or the Secretary of State) to support their activities. The financial support is intended for the structural operation of the organisations and the implementation of work programs focused on federal policies to combat discrimination based on sexual orientation and gender identity.

unscientific ideological remarks against trans and non-binary people.

POLICE AND LAW ENFORCEMENT Circular COL13/2013 setting out guidelines for public prosecutors, labour auditorates, police forces and inspectorates was amended in March. The reviewed Circular improves the recording of complaints relating to discrimination thanks to a new classification system that identifies several social phenomena to which offences may be linked, including homophobia.

The Institute for Gender Equality released an awareness-raising report to encourage trans and non-binary people to exercise their human rights by putting them in contact with competent actors and service-providers. As part of the Walloon Plan for the inclusion of LGBTI people for 2022-2024, Wallonia launched an awareness campaign developed by the SPW IAS in close collaboration with the Prisme Federation on the discrimination and violence experienced by LGBTI people. The campaign aimed to highlight many organisations and support structures available for victims or witnesses of violence or discrimination based on sexual orientation, gender identity, or expression. In May, in celebration of the IDAHOBIT, the Museum of Walloon Life launched a collection of objects, archives, photos, and testimonies related to the history of LGBTI movements in Wallonia. This social history museum committed to tracing the evolution of Pride marches, queer culture, sexual orientations, and gender identities within its collections.

SEXUAL AND REPRODUCTIVE RIGHTS (See more under ‘Family’)

PUBLIC OPINION In September, the Université Libre de Bruxelles released the findings of their 2023 Report on Anti-Gender Campaigns in Belgium, highlighting a trend of anti-LGBTI rhetoric and biasmotivated violence across Belgium. The report detailed how opposition to sex education and LGBTI topics has intensified, resulting in demonstrations, media interventions, lobbying and even political vandalism. In July, Vice-Prime Minister David Clarinval took to social media to endorse a book noted for its conspiratorial, hateful, and Back to index <-->

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ANNUAL REVIEW OF THE HUMAN RIGHTS SITUATION OF LESBIAN, GAY, BISEXUAL, TRANS, AND INTERSEX PEOPLE COVERING THE PERIOD OF JANUARY TO DECEMBER 2024

BOSNIA AND HERZEGOVINA BIAS-MOTIVATED SPEECH

Throughout the year, 11 cases of hate speech based on SOGIESC were documented by the Sarajevo Open Centre (SOC). Out of these, four were related to pre-election hate speech that targeted the LGBTI community. One of the most notable cases involved the Central Election Commission fining Milorad Dodik, the President of the Republika Srpska (RS), for hate speech directed against the LGBTI community.

BIAS-MOTIVATED VIOLENCE Throughout the year, eight instances of bias-motivated violence were documented by SOC, but only two of them were reported to the police/prosecutor’s office. Out of these 8 documented cases, two took place in educational settings.

EDUCATION There is currently no system to monitor and respond to incidents of anti-LGBTI bullying in the education system put in place by law, as documented in a recent ECRI report.

EQUALITY AND NON-DISCRIMINATION Although the Law on Prohibition of Discrimination in Bosnia and Herzegovina already recognises sexual orientation, gender identity, and sex characteristics in national anti-discrimination provisions, its implementation is inconsistent at the entity, district, and canton levels, which have yet to align with statelevel legislation. Civil society organisations have underscored the need for incorporating these national measures at the local level, stressing that while the state Action Plan to Improve the Human Rights and Fundamental Freedoms of LGBTI People in Bosnia and Herzegovina for the period 2021-2024 took effect in 2021, its formal adoption did not occur until the summer of 2022, resulting in a limited implementation timeline of less than 18 months. Recognising the urgency of the situation and the challenge of achieving the plan’s goals within such a short period, the BiH Council of Ministers, upon the recommendation of the Ministry of Human Rights and Refugees, has extended the Action Plan’s implementation period to the end of 2025. Enhancements to the judicial information system now allow for the comprehensive collection of data on discrimination cases within BiH courts, including details regarding the relationship between victims and perpetrators in instances of gender-based violence.

FAMILY Same-sex partnerships still cannot be legally registered in the country. The Federal Ministry of Health is intentionally blocking the appointment of their expert as part of the Inter-Ministerial Working Group for drafting the Law on Same-Sex Partnership Back to index <-->

of the Federation of Bosnia and Herzegovina. This blockade has been ongoing since June 2023.

FREEDOM OF ASSEMBLY In June, Sarajevo hosted its fifth Pride march, with hundreds of participants marching through the city centre. The event saw the participation of Bosnian public figures and LGBTI rights advocates from abroad. No political or national symbols were allowed at the rally. Emerging legal frameworks addressing freedom of assembly gained significant traction across multiple cantons in 2024. According to the cantonal governments, these new laws have been carefully aligned with international and European Union standards, underscoring a commitment to uphold global human rights principles. For instance, in September 2023, the Government of the Una-Sana Canton introduced the Draft Law on Freedom of Peaceful Assembly, which was formally adopted in January 2024. Similarly, the newly established Government of the Zenica-Doboj Canton oversaw the adoption of its own Law on Peaceful Assembly. Meanwhile, the Central Bosnia Canton is actively engaging the public in discussions about its proposed law on this topic. In Canton 10, updates on the adoption of the Law on Peaceful Assembly have also been published. Notably, these legislative efforts specifically focus on protecting the fundamental right to freedom of assembly, while the regulation of public events will be addressed by separate legislation.

HEALTH In February, Bosnia and Herzegovina released its first thematic report examining LGBTI people’s access to healthcare. The report acknowledged some progress in improving the legislative and institutional framework for recognising and protecting the rights of LGBTI persons within the health sector. However, it also identified numerous shortcomings in both regulatory frameworks and practical implementation, resulting in inadequate recognition and fulfilment of LGBTI people’s rights to access health services. LGBTI people often remain overlooked in the healthcare system, as they are not widely recognised as a vulnerable social group. Many healthcare professionals reflect the dominant societal attitudes, which can result in substandard care for LGBTI patients. Moreover, medical curricula, training programs, and educational materials generally fail to address the specific needs and challenges of LGBTI people or provide guidance on how to support them. The report further noted the absence of specialised health services for trans people and highlighted that the process for legal gender recognition is both inefficient and potentially degrading, lacking respect for rights related to self-determination, privacy, and bodily integrity. In the area of mental health, existing strategic documents in Bosnia and Herzegovina fail to acknowledge the

inequalities faced by LGBTI people due to stigma, pathologisation, and broader determinants such as public policies and societal attitudes.

BODILY INTEGRITY ECRI recorded conflicting information concerning the extent of medically unnecessary surgeries carried out on intersex children. ECRI particularly noted that in BiH no official guidance or rules exist to regulate the issue, leaving it up to individual medical professionals to decide on the matter.

HOUSING In April 2024, the first Safe House for LGBTI people was opened in the capital city of Sarajevo.

INSTITUTIONAL SUPPORT In April, the ECRI published the report for its sixth monitoring cycle, encouraging authorities to provide a legal framework affording same-sex relationships recognition. The report also asked to guarantee a quick, transparent and accessible process based on clear, precise and foreseeable legal provisions by which transgender persons can obtain legal gender recognition.

POLICE AND LAW ENFORCEMENT In March 2024, the Brčko District of Bosnia and Herzegovina amended its Criminal Code to include sexual orientation and gender identity as protected characteristics against hate speech. These changes aim to address discrimination in the region, but their implementation will require an adjustment period, including educating relevant institutions. This move has intensified pressure on the Federation of Bosnia and Herzegovina to update its own Criminal Code to ensure consistency and avoid legal uncertainty regarding the sanctioning of hate speech. In July, the Republika Srpska Government proposed replacing the term “gender identity” in the draft amendments to the RS Criminal Code with the more ambiguous term “other personal characteristic.” Earlier in April, the Council of Europe released a report on trans rights, highlighting the importance of explicitly including gender identity and gender expression in anti-discrimination legislation. However, the RS Government’s move reflects a broader resistance to acknowledging gender identity in the region. The National Assembly of the Republika Srpska adopted the amended Draft Law of the Criminal Code in November.

In October, in response to the proposal of law on Amendments of the Criminal Code of Republika Srpska (see also under Police and Law Enforcement), the United Nations Independent Expert on protection against violence and discrimination based on sexual orientation and gender identity and the Special Rapporteur on the situation of human rights defenders addressed an open letter to the national authorities. In their letter, the UN bodies argued that the proposed removal of the term ‘gender identity’ from the Criminal Code could lead to the removal of human rights protections for vulnerable people, in violation of BiH’s human rights obligations.

HUMAN RIGHTS DEFENDERS The Draft Law on so-called “Foreign Agents” was withdrawn from the official procedure within the National Assembly of RS in May 2024. The draft law was proposed in September 2023 and if adopted, would require non-profit organisations that receive funds from abroad to register as “agents of foreign influence” and be barred from political activity. It is not clear if adoption of this law will happen in the future.

LEGAL GENDER RECOGNITION The Federal Ministry of Health is blocking the process on the improvement of the legal gender recognition provisions in the Federation of Bosnia and Herzegovina, though they received five letters from various governmental institutions. Back to index <-->

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BULGARIA ASYLUM

EDUCATION

The Bulgarian Supreme administrative Court refused to recognise the same-sex marriage entered into by Russian-Belarusian asylum-seekers. Subsequently, the Belarusian citizen was refused international protection, although his married spouse was granted refugee status.

In August, a new law was introduced banning the representation of LGBTI identities in schools. The legislation, spearheaded by Kostadin Kostadinov, chairman of the Vazrazhdane (Revival) party, sparked significant controversy as civil society organisations underscored that the legislation would negatively impact children and adolescents by increasing bullying and legitimising discrimination by other students, and even teachers. Kostadinov defended the law by stating that “LGBT propaganda is anti-human and won’t be accepted in Bulgaria.”

Bulgaria continues to reject requests for asylum by LGBTI people coming from Russia and Belarus. Bulgaria unlawfully detains LGBTI asylum-seekers coming from Palestine in closed detention centres.

BIAS-MOTIVATED SPEECH The Bulgarian musician and performer, Mila Robert was subjected to online harassment and death threats after her performance at the Sofia Pride 2024 concert, during which she removed her dress in the colours of the Bulgarian flag to reveal another dress with a rainbow flag. Following Single Step’s campaign for data collection on the experiences of LGBTI high school students, the organisation has been a target of focused attacks, which led to several institutional checks against the foundation. Kostadin Kostadinov, leader of Vazrazhdane (Revival) party, threatened to revoke the foundation’s licence to work with minors. The Administrative Court of Sofia ruled that the statements made by the VMRO Party against the LGBTI community after the movie ‘Snake’ was shown at the Sofia Pride Film Fest in 2021 constituted hate speech and discrimination.

BIAS-MOTIVATED VIOLENCE In 2024, no criminal proceedings were initiated based on the sexual orientation, gender identity, gender expression and sex characteristics (SOGIESC) amendments in the Penal Code introduced in 2023.

DATA COLLECTION In June, GLAS foundation released a report assessing the economic cost of homophobia in Bulgaria.The report underscored how the full enjoyment of rights of LGBTI people is often associated with higher levels of economic development and wellbeing. In November, a survey conducted by the Single Step Foundation on the experiences of Bulgarian LGBTI students aged 14-19 revealed that two out of three students (67.6%) were verbally harassed in the past year because of their sexual orientation, gender identity or gender expression and nearly one-quarter (23.8%) were physically bullied. 12.2% of students had been assaulted at school, including being punched, kicked or attacked with a weapon. Back to index <-->

FAMILY The appeal by two Bulgarian women, Boyana and Anelia, to have both their names listed as parents on their Austria-born child’s Bulgarian birth certificate was upheld by the Administrative Court of Kardzhali.The Court overturned the municipality’s earlier refusal to issue the certificate and instructed its issuance, citing Bulgaria’s obligations under the CJEU’s “Baby Sara” ruling (C490/20), which requires member states to recognise the parental rights of same-sex couples as parents. The Bulgarian Migration Directorate continues to refuse visas for the third country family members of Bulgarian citizens, contrary to the Coman ruling of CJEU.

FREEDOM OF ASSEMBLY In June, the city of Varna organised its first Queer Festival with the support of the European Union. In June, concurrently with the human rights rally and LGBTI pride march organised by the Sofia Pride organisation, conservative groups have led rival demonstrations to advocate for traditional family values. In August, the far-right Revival party proposed a foreign agent law targeting human rights NGOs and civil society, echoing efforts previously overturned in 2022. The proposed law, along with the previously introduced education law banning the representation of LGBTI identities in schools, closely mirrored Russian legislation that criminalises the LGBTI community. In late September the proposal was rejected by the Bulgarian Parliament’s Committee on Culture and Media.

FREEDOM FROM TORTURE, CRUEL, INHUMAN, OR DEGRADING TREATMENT In the Baby Sara case, the LGBTI organisation Deystvie submitted a formal complaint to the European Court of Human Rights (ECtHR), arguing that the treatment faced by the child, whose birth certificate was denied by Bulgarian authorities, amounts to inhuman and degrading treatment.

HEALTH Due to the lack of implementation of the CJEU Pancharevo ruling, tens of children are left without access to public healthcare in Bulgaria.

HUMAN RIGHTS DEFENDERS Following amendments to the Pre-School and School Education Act, criminal and data protection proceedings were launched against the Single Step Foundation, charging them with educational efforts that support non-traditional sexual orientations and gender identities.

LEGAL GENDER RECOGNITION In July, the European Court of Human Rights overturned the decision on the revision of the Y.T v Bulgaria case, emphasising that Bulgaria is obliged to set up a robust legal framework for legal gender recognition. Nonetheless, there remains a total ban on legal gender recognition in Bulgaria.

PARTICIPATION IN PUBLIC, CULTURAL, AND POLITICAL LIFE In September, the National Film Centre stopped the LGBTIthemed Bulgarian-Spanish film ‘Luben’ from participating in the Golden Rose Film Festival in Varna. This happened against the backdrop of criticism from the pro-Russian Vazrazhdane party, which called the film “homosexual propaganda”, claiming that a violation of the law was committed in its making because of the involvement of an actor who was underage at the start of filming.

PUBLIC OPINION A national survey by the Alpha Research agency, commissioned by the GLAS Foundation, established an improved attitude of Bulgarian citizens towards LGBTI people. The survey indicated an overall increase of respondents declaring interest in receiving better information on LGBTI topics and a decline in the acceptance of harmful stereotypes about LGBTI people. For example, 36% of people were reported disagreeing with the idea that homosexuality and trans identities are mental disorders.

POLICE AND LAW ENFORCEMENT Law enforcement has been cooperating with NGOs to strengthen the investigation of SOGIESC motivated crimes. As part of this initiative, 55 investigative police officers from across the country and 10 prosecutors from the Sofia Regional Prosecution were trained by Deystvie on these matters.

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ANNUAL REVIEW OF THE HUMAN RIGHTS SITUATION OF LESBIAN, GAY, BISEXUAL, TRANS, AND INTERSEX PEOPLE COVERING THE PERIOD OF JANUARY TO DECEMBER 2024

CROATIA

ACCESS TO GOODS AND SERVICES The Municipal State Attorney’s Office in Zadar has charged a 66-year-old man with violating human rights and fundamental freedoms for refusing to honour an accommodation reservation made by a Brazilian gay couple. According to the indictment, the incident occurred on August 5, 2018, when the man cancelled the couple’s booking at his property in Zadar, citing their sexual orientation as the reason.

BIAS-MOTIVATED SPEECH In 2024, attacks by the anti-gender movement and the spread of disinformation continue to escalate. The public sphere is saturated with actors promoting false information, further fueling hostility. A recent example involves Croatian politician Pavle Kalinić, who presented inaccurate data regarding the number of minors starting the transition process, contributing to the ongoing dissemination of misleading narratives. In November, a session titled “Gender Ideology in Croatia and its Consequences: Myth or Reality” was held in the Croatian Parliament, moderated by MP Igor Peternel from the Home and National Gathering (DOMINO) party. Panelists included Prof. Dr. Marina Katinić Pleić, Prof. Dr. Zorana Kušević, Dr. Herman Vukušić, and Darko Pavičić, speakers who have been actively spreading misinformation and harming the trans community. No representatives of LGBTI human rights organisations were invited to speak. The session was live streamed via YouTube.

BIAS-MOTIVATED VIOLENCE In June, in Pula, the inaugural Pride march organised by Proces, faced challenges despite receiving support by private security and the local police. The day before the march, unknown individuals disrupted volunteers at the Karlo Rojc Community Centre who were preparing banners. Additionally, in the village of Punta, derogatory signs were displayed, while an unidentified person removed a rainbow flag from the yard of the community centre on Gajeva Street, leaving it on the ground before fleeing. The Istrian Police Department has confirmed it will investigate the matters and identify the perpetrators. The city’s mayor reaffirmed the commitment of the administration to the protection of LGBTI rights. A gay couple was assaulted at Bačvice beach in Split. In a video they described how, after being harassed by a group of children and teenagers, they were approached by a man who punched one of them and rammed his head into a tree. Following the attack, the Split police department announced that it had undertaken a formal investigation and arrested the perpetrator. Between August and September, Zagreb Pride received six reports on homophobia-motivated attacks against gay men in Split and in Zagreb. In three of these cases the attacks were Back to index <-->

premeditated traps on dating applications that resulted in bashing and theft by a group of younger men. Only one of these attacks has been reported to the police, mostly due to fear and lack of trust in the law enforcement bodies by LGBTI people. At the end of 2023 two sixteen-year-olds were arrested for their involvement in the preparation and planning of terrorist attacks against LGBTI people and venues, and in September of this year, they were convicted.

EDUCATION The Zagreb Faculty of Humanities and Social Sciences announced the intention to launch a new study program focusing on gender studies in late 2025.

EQUALITY AND NON-DISCRIMINATION In the European Capitals of Inclusion and Diversity Award, a competition among 70 regions and cities in the European Union, the city of Zagreb was awarded the golden prize for the European Capital of Inclusion and Diversity for 2024. Zagreb Mayor Tomislav Tomašević emphasised the city’s commitment to inclusivity and highlighted Zagreb’s dedication to fostering an inclusive society across all areas of life. The Zagreb City Assembly has adopted the City Program for the Equality of LGBTIQ+ Persons (2024–2026), marking the first time a public authority in Croatia has introduced an LGBTI-focused strategy. The program was developed by a dedicated commission that included representatives of civil society organisations and experts. Its implementation will be monitored over the next two years.

FREEDOM OF ASSOCIATION This year, Croatia recorded a total of four Pride marches, including the first in Pula, the 23rd in Zagreb, the 13th in Split, and the second in Karlovac. In June, the 23rd Zagreb Pride received support from politicians and local officials, including Zagreb’s Mayor Tomislav Tomašević and proceeded without disturbances. In October, the fifth Pride Ride took place in Zagreb, receiving support from local officials and the city administration. It proceeded without disturbances.

INSTITUTIONAL SUPPORT In March, President Zoran Milanović held a meeting with representatives from kolekTIRV, the Association for the Promotion and Protection of the Rights of Trans, Intersex, and Gender Variant Persons, who presented the campaign “I am like you.” The campaign highlights the needs and problems of gender-

diverse persons, with an emphasis on the right to easy access to health services. In May, the city of Rijeka announced that it would once more display the LGBTI flag on the municipal administration building to mark International International Day against Homophobia, Biphobia, and Transphobia. In June, representatives of local governance like the mayor of Zagreb, Tomislav Tomašević, deputy-mayor Luka Korlaet, and the president of the city assembly Joško Klisović, as well as politicians from the Možemo! and the SDP parties, joined the Zagreb pride parade. In June, Parliament approved a report from the Ombudsperson for Gender Equality highlighting the extent of both physical and psychological violence against LGBTI people. According to the Ombudsperson, some media still perpetuate negative stereotypes, undermine the rights of LGBTI people, and contribute to an intolerant and hostile environment. Such portrayals, the Ombudsperson argues, foster a sense of exclusion and impede LGBTI people’s ability to fully exercise their rights. The UN Human Rights Committee published its findings on Croatia, expressing concerns about the ongoing prejudice, discrimination, and hate crimes against LGBTI people.

The Committee’s observations highlight a troubling absence of targeted goals and activities in national strategies and policies designed to prevent and address discrimination against LGBTI persons. As part of its concluding observations, the Committee urged Croatia to integrate specific measures into national strategies and action plans to combat discrimination, prejudice, and hate crimes against LGBTI people. Furthermore, the Committee asked Croatia to ensure their active involvement in the development and implementation of these measures. In July, a roundtable organised by the Možemo! Parliamentary Club was held in the Croatian Parliament, focusing on the theme “Anti Gender Movements and Violence Against Women”.

LEGAL GENDER RECOGNITION 2024 marked the 10th anniversary of the Regulation on legal gender recognition, with official data available from the implementation of the regulation until the end of 2023. According to the data, fewer than 200 people have completed the process and, while requests for legal gender recognition are being processed, the procedures remain lengthy, burdensome, and often exceed legal time limits. The Constitutional Court dismissed the request of the U Ime Obitelji organisation to review the constitutionality of the Law on Civil Registries and the associated Regulation on legal gender recognition. Back to index <-->

SEXUAL AND REPRODUCTIVE RIGHTS At present, the acceptance of new samples for the storage of sperm and eggs is not feasible, and there is insufficient information available regarding the causes and potential solutions to this issue. In September, as members of the ultraconservative network Vision Network gathered for a private conference in Zagreb, a protest was held in the city’s European Square by the fAKTIV – Feminist Collective to challenge the agenda of the Network. The protestors criticised the group’s opposition to abortion, same-sex marriage, divorce, and contraception with the slogan: “Not in our city, we know your agenda.”

PARTICIPATION IN PUBLIC, CULTURAL, AND POLITICAL LIFE In April, Zagreb Pride released a list of well-known and previously out or outed LGBTI candidates for the Croatian Parliament. This action led many other local LGBTI organisations to publicly disassociate themselves from such a decision, criticising the unauthorised disclosure of private information.

PUBLIC OPINION The first survey on attitudes toward trans people in Croatia, carried out by kolekTIRV, revealed that 38% of citizens would accept a trans person as a close family member, while only 11% hold negative views; however, 62% believe society perceives them negatively.

POLICE AND LAW ENFORCEMENT Višnja Ljubičić, Croatia’s ombudsman for gender equality, has criticised President Zoran Milanović’s statement that the Minister of Economy might be gay and sought an expert opinion from the Personal Data Protection Agency on the legality of the president’s comment. The ombudsman highlighted that disclosing one’s sexual orientation without consent could lead to severe consequences, which led to the request for clarification on whether such disclosure violated privacy protections. In March, following the murder of a 20-year-old woman by her former partner, Croatia’s parliament amended its criminal code to classify the killing of women due to their gender as a distinct crime. This makes Croatia the third EU country, after Cyprus and Malta, to officially recognise femicide as a separate offence.

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ANNUAL REVIEW OF THE HUMAN RIGHTS SITUATION OF LESBIAN, GAY, BISEXUAL, TRANS, AND INTERSEX PEOPLE COVERING THE PERIOD OF JANUARY TO DECEMBER 2024

CYPRUS

BIAS-MOTIVATED SPEECH

FREEDOM OF ASSEMBLY

In May, on the occasion of a televised political debate, Elam leader, Christos Christou insinuated that Diko leader Nicholas Papadopoulos might engage with LGBTI ‘parties’ with the objective of discrediting his opponent’s stance.

June 1 marked the tenth year anniversary of the Cyprus Pride march, with the participation of foreign diplomats under the ‘Diplomats for Equality’ banner.

Accept-LGBTI+ documented the case of a trans woman in Famagusta who allegedly endured persistent physical and verbal assaults. The perpetrators spray-painted threatening graffiti targeting her identity outside of her home.

The Queer Cyprus Association, in collaboration with Accept LGBTI Cyprus, announced the “Come Out 4 Europe” pledge prepared by ILGA-Europe to the European Parliament candidates. As a result of these efforts, 19 out of 45 candidates signed the “Come Out 4 Europe” pledge.

BIAS-MOTIVATED VIOLENCE During a meeting of the House Human Rights Committee, representatives of an LGBTI organisation expressed concern over the rise in reported hate incidents targeting the LGBTI community in Cyprus.

EDUCATION In February, a children’s book, which had been donated to a local kindergarten by the school’s parent’s association, was subjected criticism because some illustrations featured two women embracing a child and two men holding another child. The backlash against these depictions led to the book being withdrawn by the school itself. Amidst criticism by prominent LGBTI organisations, the Ministry of Education distanced itself from the removal of the book from the school catalogue, pointing instead to a decision allegedly taken by the parent’s association of the school.

EQUALITY AND NON-DISCRIMINATION In February, Deputy Government Spokesman Yiannis Antoniou expressed that LGBTI rights, including same-sex marriage and adoption, are not currently prioritised in either the political or social spheres in Cyprus. Antoniou acknowledged that while there might be discussions in the future, the stagnation of past efforts— such as in enabling adoption for LGBTI couples and advancing measures previously championed by President Christodoulides during his campaign—highlight the slow pace and complexity of reforms in this area.

FAMILY In January, the archbishop of Cyprus stated that LGBTI marriages infringe on God’s predicaments, expressing support for the Church of Greece’s opposition to LGBTI marriage and childbearing. This followed the Holy Synod of the Church of Greece’s unanimous decision to strongly oppose the Greek government’s proposed bill on same-sex marriage and adoption. Back to index <-->

FOREIGN POLICY

INSTITUTIONAL SUPPORT In February, Cyprus refrained from congratulating Greece following its landmark legislation on same-sex marriage, a significant omission considering the close ties between the two nations. In May, the Cyprus chapter of Diplomats for Equality released a joint statement from 26 diplomatic missions based in Cyprus in anticipation of Pride Month and the 2024 IDAHOBIT. The statement urged Cyprus to consider amending legislation to allow same-sex couples in civil unions the right to adopt, and expressed hope for progress on legal gender recognition and same-sex marriages entered into abroad. In October, the Cyprus Council of Ministers approved the creation of a National LGBTI Strategy aimed at combating discrimination, ensuring equality and safety, and building an inclusive society for LGBTI people.. The Commissioner for Citizens’ Rights, Panayiotis Palates, was appointed to coordinate the preparation and implementation of this strategy. Following the Cabinet meeting, Palates announced that an inter ministerial committee would oversee the strategy’s development. Palates explained that the National Strategy would align Cyprus’ legislation with European Union standards.

PUBLIC OPINION A poll by a research company GPO revealed that a majority of Cypriot citizens oppose both same-sex marriage and same-sex adoption rights. According to the data, 32.2% of respondents strongly support same-sex marriage, while 16.9% are likely in favour, 5.4% are likely against, and 42.9% are firmly opposed. On same-sex adoption, only 16.3% are firmly in favour, 11.9% are likely in favour, 9.5% are likely against, and a significant 60.2% are firmly opposed. The poll further underscored that the proposal of a national referendum on these matters had 36.1% of respondents in favor or likely supportive of the idea, while 60.9% were likely or firmly against it, and 3% being undecided.

NORTHERN CYPRUS ACCESS TO GOODS AND SERVICES

Several same-sex couples reported difficulties accessing basic services, particularly around residency and ‘legal’ documentation. A same-sex couple contacted Queer Cyprus about a residence permit for a non-Cypriot partner. The couple reported that the officer dealing with their case requested additional, previously unrequired documents, citing a recent system change as the reason when justification was requested.

BIAS-MOTIVATED SPEECH Widespread online hate speech continued not to be effectively investigated.

BIAS-MOTIVATED VIOLENCE Both the Pride March on 17 May and the United Pride March on 7 September were targeted by groups of underage boys who threw stones at participants in the presence of police officers. Despite witnessing the attacks, the officers remained passive and did not intervene.

EDUCATION The “Rainbow Education Programme for Psychological Counsellors and Guidance Professionals” series was held in collaboration with the Cyprus Turkish Psychological Counselling And Guidance Association (KT-PDR) and the Cyprus Turkish Teachers’ Trade Union (KTÖS) at the Cyprus Turkish Secondary Education Teachers’ Union (KTOEÖS) Office in Nicosia in March within the scope of the Rainbow Project funded by the European Union under the Aid Programme for the Turkish Cypriot community and implemented by the Queer Cyprus.

In September, the “United by Pride” event organised by the Queer Collective CY, with the participation of Accept LGBTI Cyprus, African LGBTIQ+ Community Cyprus, LGBT Filipinas, and Queer Cyprus Association held two parallel Pride marches. The third edition of the initiative represented not just a celebration of diversity, it also emphasised the urgent need for cooperation, solidarity, and action, particularly in a politically divided Cyprus.

FREEDOM OF EXPRESSION Reports from the solidarity line show violations of privacy, particularly within family settings. Several LGBTI people, including teachers, expressed fear about being outed or facing career repercussions due to their sexual orientation or gender identity.

HEALTH Access to healthcare remains precarious for the LGBTI community, particularly those living with HIV. One person who tested positive for HIV was unable to complete their education and left the island due to inadequate healthcare services and unresolved residency status, raising concerns about the availability of HIV treatment in the region.