European Union lesbian, gay, bisexual and transgender survey : main results.
Date: 2014-10-23
Institutions: European Union Agency for Fundamental Rights
Subjects: crime against individuals, discrimination on the basis of sexual orientation, fundamental rights, protection of freedoms, report, sexual discrimination

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EQUALITY

EU LGBT survey

European Union lesbian,  
gay, bisexual and  
transgender survey

Main results

 
 
 
 
 
 
 
 
 
 
This report addresses matters related to human dignity (Article 1), a right to life (Article 2), a right to education (Article 14), 
equality before the law (Article 20), the principle of non-discrimination (Article 21), health care (Article 35) and a right to an 
effective remedy and to a fair trial (Article 47) falling under the Titles I ‘Dignity’, II ‘Freedoms’, III ‘Equality’, IV ‘Solidarity’ 
and VI ‘Justice’ of the Charter of Fundamental Rights of the European Union.

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FRA – European Union Agency for Fundamental Rights
Schwarzenbergplatz 11 – 1040 Vienna – Austria
Tel. +43 158030-0 – Fax +43 158030-699 
Email: info@fra.europa.eu – fra.europa.eu

Cataloguing data can be found at the end of this publication.

Luxembourg: Publications Office of the European Union, 2014

ISBN 978-92-9239-175-1 
doi:10.2811/37969

© European Union Agency for Fundamental Rights, 2014
Reproduction is authorised provided the source is acknowledged.

Printed in Luxembourg

Printed on elemental chlorine-free bleached paper (ECF)

EU LGBT survey

European Union lesbian, gay, 
bisexual and transgender survey

Main results

Foreword

The past decade has witnessed a growing number of international and national developments addressing the 
fundamental rights of lesbian, gay, bisexual and transgender (LGBT) persons. Standards on non-discrimination and 
equality for LGBT persons have been further developed or reinforced by the European Union (EU), the Council of 
Europe and the United Nations (UN). Sexual orientation and gender identity have increasingly been recognised as 
grounds of discrimination in European and national legislation. Today, the situation of LGBT persons in the EU is no 
longer a marginalised issue but a recognised human rights concern.

Since its creation, the European Union Agency for Fundamental Rights (FRA) has contributed to these developments 
by providing robust comparative analysis of the legal and social aspects of the fundamental rights situation of LGBT 
persons in the EU. Although this analysis identified the main obstacles, it also recognised that the situation on the 
ground across the EU remained largely undocumented and that existing data were not comparable.

European institutions also recognised the lack of robust, comparable data on the respect, protection and fulfilment 
of the fundamental rights of LGBT persons. Following calls from the European Parliament, the European Commission 
asked FRA in 2010 to collect comparable survey data on hate crime and discrimination against LGBT persons in all EU 
Member States and Croatia. In response to this request, FRA developed the ‘European Union survey of discrimination 
and victimisation of lesbian, gay, bisexual and transgender persons’, which was launched online on 2 April 2012 and 
ran until 15 July 2012. A very large number of respondents, 93,079, participated in the research, providing a wealth 
of comparable data. 

In many respects, the results raise severe concerns: almost half (47 %) of all respondents say that they have felt 
personally discriminated against or harassed on the grounds of sexual orientation in the year preceding the survey. 
A majority of respondents who were attacked in the past year say that the attack or threat of violence happened 
partly or entirely because they were perceived to be LGBT (59 %). Respondents rarely, however, report discrimination 
or violence to the police or any other instance, mainly because they believe nothing will happen or change if they 
report such incidents to the authorities.

The survey results provide valuable evidence of the lived experiences of LGBT persons in the EU with respect to 
discrimination, harassment and violence in different areas of life. By highlighting and analysing the survey results, this 
report, together with the accompanying EU LGBT survey results: at a glance report, will contribute to much-needed 
discussions in the EU and its Member States regarding concrete legislative and non-legislative measures to improve 
the situation for LGBT persons living in the EU. 

Morten Kjaerum
Director

3

Country codes

Country code

Country

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

HR

IE

IT

LT

LU

LV

MT

NL

PL

PT

RO

SE

SI

SK

UK

Austria

Belgium

Bulgaria

Cyprus

Czech Republic

Germany

Denmark

Estonia

Greece

Spain

Finland

France 

Hungary

Croatia

Ireland

Italy

Lithuania 

Luxembourg

Latvia

Malta

Netherlands

Poland

Portugal

Romania

Sweden

Slovenia

Slovakia

United Kingdom

4

Contents

FOREWORD ��������������������������������������������������������������������������������������������������������������������������������������������������������������������������������3

EXECUTIVE SUMMARY ����������������������������������������������������������������������������������������������������������������������������������������������������������� 11

KEY FINDINGS AND FRA OPINIONS ��������������������������������������������������������������������������������������������������������������������������������������13

INTRODUCTION �����������������������������������������������������������������������������������������������������������������������������������������������������������������������18

THE SURVEY IN A NUTSHELL ������������������������������������������������������������������������������������������������������������������������������������������������� 23

1  DISCRIMINATION: EXPERIENCES, AWARENESS, REPORTING AND PERCEPTIONS ���������������������������������������������������� 25
1.1.  Discrimination and harassment on the grounds of sexual orientation ............................................................. 26
1.2.  Discrimination because of being LGBT in employment ....................................................................................... 28
1.3.  Discrimination because of being LGBT in areas of life outside employment ................................................... 34
1.4.  Rights awareness and reporting of discrimination ............................................................................................... 42
1.5.  Perceptions of discrimination ................................................................................................................................... 50

2  VIOLENCE AND HARASSMENT �������������������������������������������������������������������������������������������������������������������������������������� 55
2.1.  Prevalence of violence and hate-motivated violence ......................................................................................... 56
2.2.  Type, perpetrators and place of hate-motivated violence ..................................................................................60
2.3.  Reporting hate-motivated violence ........................................................................................................................66
2.4.  Prevalence of harassment and hate-motivated harassment ............................................................................. 70
2.5.  Type, perpetrators and place of hate-motivated harassment ............................................................................ 73
2.6.  Reporting of hate-motivated harassment ............................................................................................................. 76

3  DAILY LIFE ����������������������������������������������������������������������������������������������������������������������������������������������������������������������� 79
3.1.  Openness about being LGBT.....................................................................................................................................80
3.2.  Public attitudes towards LGBT people, visibility and avoidance behaviour ..................................................... 83
3.3.  Reassigning sex and changing gender markers in official documents ............................................................. 92
3.4.  Free movement and obstacles in accessing benefits or services that would have been  

available for a different-sex spouse or partner  ...................................................................................................94

4 

CROSS-CUTTING THEMES ���������������������������������������������������������������������������������������������������������������������������������������������� 99
4.1.  Country patterns: a diverse picture.........................................................................................................................99
4.2.  Visibility and invisibility of LGBT persons .............................................................................................................101
4.3.  Age: younger LGBT persons experience a less favourable social environment .............................................102
4.4.  Differences by LGBT group: transgender persons consistently report worse experiences ......................... 104
4.5.  Gender, gender expression and experiences of discrimination ....................................................................... 105

5  HOW DO RESPONDENTS THINK THEIR FUNDAMENTAL RIGHTS CAN BE IMPROVED? ��������������������������������������������107

BIBLIOGRAPHY ��������������������������������������������������������������������������������������������������������������������������������������������������������������������� 111

ANNEX 1: APPROACH AND RESEARCH METHODOLOGY ��������������������������������������������������������������������������������������������������� 113
1.1.  Survey method .......................................................................................................................................................... 113
1.2.  Research process .......................................................................................................................................................114

ANNEX 2: SURVEY SAMPLE ������������������������������������������������������������������������������������������������������������������������������������������������� 115
2.1.  Sample composition .................................................................................................................................................116
2.2.  Sociodemographic characteristics ......................................................................................................................... 124

5

Figures and tables

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Figure 10: 

 Respondents who felt discriminated against or harassed on the grounds of sexual  
orientation in the last 12 months (%) .......................................................................................................... 26
 Respondents who felt discriminated against or harassed on the grounds of sexual  
orientation in the last 12 months, by country and by LGBT group (%) .................................................. 26
 Respondents who felt discriminated against or harassed on the grounds of sexual  
orientation in the last 12 months, by socioeconomic status (%) ............................................................ 27
 Respondents who felt discriminated against or harassed on the grounds of sexual  
orientation in the last 12 months, by age group (%) ................................................................................ 27
 Respondents who felt discriminated against or harassed on the grounds of sexual  
orientation in the last 12 months, by openness about being LGBT (%) ................................................. 28
 Respondents who felt discriminated against in the last 12 months when looking for  
a job or at work because of being LGBT, by LGBT group (%) .................................................................. 29
 Respondents who felt discriminated against in the last 12 months when at work  
because of being LGBT, by country and by LGBT group (%) ................................................................... 30
 Respondents who said they had experienced negative comments, attitudes or unequal  
treatment at work in the preceding five years because of being LGBT, by LGBT group (%) ............. 32
 Respondents who said they had experienced negative comments, attitudes or unequal  
treatment at work in the preceding five years because of being LGBT, by openness at work (%)...33
 Respondents who had felt discriminated against in the previous 12 months in areas other  
than employment because of being LGBT, by country and by LGBT group (%)................................... 34
 Respondents who felt discriminated against by school or university personnel in the last  
12 months because of being LGBT, by country and by LGBT group (%) .................................................35
 Respondents ‘always’ or ‘often’ hiding or disguising being LGBT during schooling before  
the age of 18, by country and by LGBT group (%) .................................................................................... 36
 Respondents who had rarely, often or always experienced, heard or seen negative  
comments or conduct at school because they were, or a schoolmate or teacher was,  
perceived to be LGBT, by LGBT group (%).......................................................................................................37
 Respondents who had rarely, often or always experienced, heard or seen negative  
comments or conduct at school because they were, or a schoolmate or teacher was,  
perceived to be LGBT, by country (%) ......................................................................................................... 38
 Respondents who had felt discriminated against by healthcare or social service personnel  
in the preceding 12 months because of being LGBT, by LGBT group (%) .............................................. 39
 Transgender persons and lesbian women respondents who have ever experienced any of  
the following situations when using or trying to access healthcare services as an LGBT person, 
by situation (%) ...............................................................................................................................................40
 Respondents who felt discriminated against because of being LGBT in services available  
to the public in the last 12 months, by LGBT group (%) ............................................................................41
 Awareness of law that forbids discrimination against persons because of their sexual  
orientation when applying for a job, by LGBT group (%)......................................................................... 42
 Awareness of a law that forbids discrimination against persons because of their sexual  
orientation when applying for a job, by country (%) ............................................................................... 43
 Awareness of a law that forbids discrimination against persons because of their gender  
identity when applying for a job, by LGBT group and country (%) ........................................................44
 Respondents who have seen any programme or awareness campaign addressing  
discrimination on certain grounds, by grounds (%) .................................................................................. 45
 Respondents who have seen any programme or awareness campaign addressing  
discrimination against certain groups, by country and by group (%) ....................................................46
 Respondents who have seen any programme or awareness campaign addressing  
discrimination against certain groups, by country and by group (%) .................................................... 47
 Reporting discrimination incidents, by LGBT groups (%) ......................................................................... 47
 Reporting discrimination incidents, by country (%) .................................................................................48
 Reasons for not reporting the most recent incident of discrimination in the past 12 months  
partly or completely because they were perceived to be LGBT (%) .....................................................49
 Respondents indicating that they did not report the most recent incident of discrimination  
in the past 12 months which happened partly or entirely because they were perceived to  
be LGBT, because they did not want to reveal their sexual orientation or gender identity,  
by LGBT group (%) ..........................................................................................................................................49
Figure 27:  Perceived level of discrimination on the grounds of sexual orientation, by age group (%) .............. 50
 Perceived level of discrimination on the grounds of sexual orientation, by openness of  
Figure 28: 
respondents (%) ..............................................................................................................................................51

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Figure 31: 
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 Perceived level of discrimination because a person is lesbian, gay, bisexual or transgender,  
by LGBT group (%) ...........................................................................................................................................51
 Perceived level of discrimination on the grounds of sexual orientation as very and fairly  
widespread, by respondents to the Eurobarometer 2012 and the EU LGBT survey 2012 (%) ............ 53
 Prevalence of violence in the preceding five years and in the preceding 12 months (%) ................. 56
 Prevalence of violence in the preceding five years and in the preceding 12 months,  
by LGBT group (%) .......................................................................................................................................... 56
 Prevalence of hate-motivated violence in the previous 12 months, by type of violence  
and LGBT group (%) ....................................................................................................................................... 57
 Respondents who say the last incident of violence in the previous 12 months happened  
partly or entirely because they were perceived to be LGBT, by country and LGBT group (%) ......... 58
 Prevalence of hate-motivated violence in the previous year, by gender expression  
and LGBT group (%) ....................................................................................................................................... 59
 Average number of violent incidents in the previous 12 months per 1,000 respondents,  
by country and LGBT group ...........................................................................................................................60
 Transgender respondents who were attacked or threatened with violence one or more  
times in the previous 12 months, by number of incidents .......................................................................60
Figure 38:  Most recent incident of hate-motivated violence, by type of violence (%) ..........................................61
Figure 39:  Type of most recent incident of hate-motivated violence, by LGBT group (%) ....................................61
Figure 40: 

 Incidents of hate-motivated attack of a sexual nature as percentage of total incidents of  
hate-motivated violence, by LGBT group (%) ............................................................................................ 62
 Incidents of hate-motivated attacks as percentage of total incidents of hate-motivated  
violence, by country (%) ............................................................................................................................... 63
Figure 42:  Most serious incident of hate-motivated violence reported to the police, by LGBT group (%) ........66
Figure 43: 
Incidents of hate-motivated violence reported to the police, by type of violence (%) ..................... 67
Figure 44:  Last hate-motivated incident reported to the police, by country and by LGBT group (%) ................ 67
 Reporting of incidents of hate-motivated violence to the police, LGBT organisations and  
Figure 45: 
other organisations (%) .................................................................................................................................69
 Prevalence of harassment in the previous five years and in the previous 12 months,  
by LGBT group (%) .......................................................................................................................................... 70
 Prevalence of hate-motivated harassment in the preceding 12 months, by country  
and LGBT group (%) ........................................................................................................................................71
 Average number of harassment incidents in the previous 12 months per 1,000 respondents, 
by country and LGBT group ........................................................................................................................... 72
Figure 49:  Type of most recent incident of hate-motivated harassment (%) ......................................................... 73
Figure 50:  Most recent incident of hate-motivated harassment, by type of harassment and country (%) ...... 74
 Respondents who reported the most recent incident of hate-motivated harassment to  
Figure 51: 
the police, by country and LGBT group (%) ................................................................................................ 77
Figure 52:  Openness to others about being LGBT, by LGBT group (%) .....................................................................80
Figure 53: 

 Respondents who are never open to others and respondents who are always open to others 
about being LGBT, by country (%) ................................................................................................................81
 Respondents saying that offensive language about LGBT people by politicians is ’fairly’ or ‘ 
very widespread’, by country (%) ............................................................................................................... 83
 Respondents saying that casual jokes in everyday life about LGBT people are ‘very  
widespread’, by country (%) .........................................................................................................................84
 Respondents who have received negative reactions because of too ‘feminine’ behaviour,  
by LGBT group (%) .......................................................................................................................................... 85
 Respondents who have received negative reactions because of too ‘masculine’ behaviour,  
by LGBT group (%) .......................................................................................................................................... 85
 Respondents indicating that same-sex couples and different-sex couples holding hands in  
public is ‘very widespread’, by country (%) ...............................................................................................86
 Respondents who avoid holding hands in public with a same-sex partner for fear of being 
assaulted, threatened or harassed because of being LGBT, by country and LGBT group (%) ........... 87
 Respondents who avoid expressing gender through physical appearance and clothes for  
fear of being assaulted (%)...........................................................................................................................88
 Respondents who avoid certain places or locations for fear of being assaulted, threatened  
or harassed because of being LGBT (%) .....................................................................................................89
 Respondents indicating locations as unsafe for being open about sexual orientation/gender  
identity, % of those who avoid locations (%) ...........................................................................................89
 Respondents who avoid certain places or locations for fear of being assaulted, threatened  
or harassed because of being LGBT, by country (%) ................................................................................90
Figure 64:  Possibility to change official documents to match the preferred gender (%) ..................................... 92
Figure 65: 

 Possibility to change official documents to match the preferred gender, % of respondents  
who said ‘Yes, upon fulfilment certain criteria’, by country (%) ............................................................ 93

Figure 60: 

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7

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Figure 66: 

Figure 69: 

 Requirements that have to be done to change the official documents to match the preferred 
gender, % those transgender saying there is a need for certain criteria (%) ......................................94
Figure 67:  Nationals and non-national respondents in the EU LGBT survey, by country (%) ............................... 95
Figure 68: 

 Evaluation of the social environment for LGBT people in the country of residence compared  
to home country, by country (%) .................................................................................................................96
 Respondents who moved to a different country with married or registered same-sex  
partner having experienced denial or restricted access to any benefits or services that  
would have been available for a different-sex spouse or partner because of having  
a same-sex partner, by country  .................................................................................................................. 97
 Respondents who have never been open about being LGBT at work in the last five years,  
by country (%) .............................................................................................................................................. 100
 Respondents ‘always’ or ‘often’ hiding or disguising being LGBT during schooling before  
the age of 18, by country (%) ......................................................................................................................103
 Respondents attacked or threatened with violence for any reason in the previous five  
years and in the previous year, by LGBT group (%) ................................................................................ 105
 Respondents who felt discriminated against or harassed on the grounds of gender in the  
last 12 months, by LGBT group (%) ............................................................................................................ 106
 Respondents who think that positive measures to promote respect for the human rights  
of lesbian, gay and bisexual people are ‘fairly rare’ or ‘very rare’, by country (%) .......................... 108
 Respondents who think that positive measures to promote respect for the human rights  
of transgender people are ‘fairly rare’ or ‘very rare’, by country (%) ................................................. 109
 Measures that would allow respondents to be more comfortable living as a lesbian, gay  
or bisexual person, opinions by measure (%) ..........................................................................................110
 Measures that would allow respondents to be more comfortable living as a transgender  
person, opinions by measure (%) ...............................................................................................................110
Figure A1:  Age breakdown (%) ......................................................................................................................................125
Figure A2:  Place of residence (%) ..................................................................................................................................130
Figures A3  
and A4: 
Household size (%) ........................................................................................................................................ 131
Figure A5:  Relationship status (%) .................................................................................................................................132
Figure A6:  Same-sex partnership (%) ...........................................................................................................................132
Figure A7:  Partnership status, those living together with a partner/spouse (%) ................................................. 134
Figure A8:  Civil status (%) ...............................................................................................................................................135
Figure A9: 
 Civil status, those married/in a registered partnership (%) ...................................................................135
Figure A10:   Households with at least one cohabiting child (%) ..................................................................................136
Figure A11:  Households with at least one cohabiting child, % per country .............................................................137

Figure 76: 

Figure 77: 

Figure 75: 

Table 1: 
Table 2: 
Table 3: 
Table 4: 
Table 5: 
Table 6: 
Table 7: 
Table 8: 

Overview of survey respondents' LGBT subgroup, by age group (total numbers and percentage)....... 23
Being open about being LGBT at work in the last five years, by LGBT group (%) ............................... 30
Hiding or disguising being LGBT at work in the last five years, by LGBT group (%) .............................31
Perpetrators of incidents of hate-motivated violence (%)......................................................................64
Location of incidents of hate-motivated violence (%) ............................................................................. 65
Reasons for not reporting incidents of hate-motivated violence to the police (%) ............................68
Reporting of incidents of hate-motivated violence to organisations other than the police (%) ......69
 Prevalence of hate-motivated harassment in the preceding 12 months, by household  
income (%) ...................................................................................................................................................... 72
Type of hate-motivated harassment experienced, by LGBT group (%) ................................................ 74
Perpetrators of incidents of hate-motivated harassment (%) ................................................................ 75
Location of incidents of hate-motivated harassment (%) ....................................................................... 76
Reasons for not reporting incidents of hate-motivated harassment to the police (%) ...................... 78
 Reporting of incidents of hate-motivated harassment to organisations other than  
the police (%) .................................................................................................................................................. 78
Table 14:  Openness to others about being LGBT, by age group (%) ....................................................................... 82
Openness about being LGBT to different groups of people (%) ............................................................. 82
Table 15: 
 Respondents who avoid being open about themselves as LGBT at home for fear of being 
Table 16: 
assaulted, threatened or harassed, by age group and LGBT group (%) ................................................90
 Respondents who avoid certain places or locations for fear of being assaulted, threatened  
or harassed because of being LGBT, by perceptions of expressions of hatred and version  
towards LGBT people in public and assault and harassment against LGBT people (%) ..................... 91
Positive measures to promote respect for the human rights of LGB people (%) .............................. 107

Table 9: 
Table 10: 
Table 11: 
Table 12: 
Table 13: 

Table 18: 

Table 17: 

8

Table A1: 

Table A2: 

 Sample size by country (n) and their 18+ population, the proportion of the number of cases  
in the sample relative to the total 18+ population and weighted count .............................................. 115
 LGBT typology used in this report, by country, number of instances and percentage  
within country (unweighted) ....................................................................................................................... 117
LGBT typology used in this report, by country, count and percentage within country (weighted) .......118
Table A3: 
Table A4:  Respondent typology according to their sex, sexual orientation, and gender expression ‘look’ ....... 119
 Respondent typology according to gender identity, sex assigned at birth, and gender  
Table A5: 
expression (how much they felt feminine and masculine) ................................................................... 120
Table A6:  Whom are you sexually attracted to? (%) ................................................................................................. 121
Table A7: 
In the last five years, respondents have had sex with … (%) ................................................................122
Table A8:  Description of transgender respondents, unweighted and weighted count* .....................................122
Table A9:  Description of transgender respondents, by country (%) ......................................................................123
Table A10:  Sexual orientation of the transgender respondents, by category (%) ................................................ 124
Table A11:  Birth sex ......................................................................................................................................................... 124
Table A12:  Age of participants ....................................................................................................................................... 124
Table A13:  Age and sex breakdown, by country (%) ..................................................................................................125
Table A14:  Education level, by LGBT group (%) ........................................................................................................... 126
Table A15:  Economic activity status, by LGBT group (%) .......................................................................................... 126
Table A16:  Employment, by country (%) .......................................................................................................................127
 Household income, by LGBT group (national income quartiles derived from European  
Table A17: 
Social Survey household income results) ................................................................................................. 128
 Income distribution of the LGBT samples in each country (national quartiles defined by  
empirical household income distribution in the general population in the particular country,  
reference data: European Social Survey, 2010), EU LGBT average ....................................................... 128
Table A19:  Place of residence by LGBT group (%) ...................................................................................................... 129
Table A20:  Household size, by LGBT group (%) ............................................................................................................130
Table A21: 

 Proportion of same-sex versus different-sex couples living together with a partner/spouse  
or not (%) ........................................................................................................................................................133
Table A22:  Same-sex partners, by country (%) .......................................................................................................... 134
Table A23: 

 Proportion of respondents married/in registered partnership having same-sex or  
different-sex partner (%) .............................................................................................................................136

Table A18: 

Table A24:   Proportion of respondents who live together in a same-sex partner household being  

Table A25: 

parent, or partner of a parent, of a child under 18 living in that household (%) ................................137
 Proportion of LGBT respondents considering themselves belonging to specific minority  
groups (%) ......................................................................................................................................................138

9

Executive summary

The EU LGBT survey results show that lesbian, gay, 
bisexual and transgender (LGBT) persons face obstacles 
to enjoying their fundamental rights. Many respondents 
say they have been discriminated against in various 
areas of life, in particular in employment and education. 
Many have also been victims of violence and harass-
ment, frequently in public places. Nevertheless, they 
rarely report either discrimination or incidents of vio-
lence or harassment to the police or other authorities. 
In their daily lives, many survey respondents are not 
open about being LGBT with their family and a majority 
avoid holding hands with their same-sex partner for 
fear of victimisation.

Almost half of all respondents (47 %) say that they 
felt personally discriminated against or harassed on 
the grounds of sexual orientation in the year preced-
ing the survey. Lesbian women (55 %), respondents 
in the youngest age group between 18 and 24 years 
old (57 %) and those with the lowest incomes (52 %) 
are most likely to say they felt personally discriminated 
against or harassed in the last 12 months on the grounds 
of sexual orientation.

In the area of employment, one in five (20 %) of those 
respondents who were employed and/or looking for a 
job in the 12 months preceding the survey felt discrimi-
nated against in these situations in the past year. This 
figure rises to one in three (29 %) of the transgender 
respondents who were employed and/or looking for a 
job in the 12 months before the survey. Among those 
respondents who had a paid job at any point during the 
five years preceding the survey, at least seven in 10 
transgender and bisexual respondents were never or 
rarely open about being LGBT at work in the five years 
before the survey.

The data on discrimination in the other areas of life 
covered  by  the  survey  indicate  that,  among  those 
respondents  who  looked  for  a  house  or  apartment 
and/or accessed healthcare services and/or attended 
school or university themselves or were the parent of 
a child at school or university and/or visited a café, 
restaurant bar or nightclub and/or visited a shop and/
or visited a bank or insurance company and/or exer-
cised at a sport or fitness club in the last 12 months, a 
third (32 %) felt personally discriminated against in at 
least one of these situations in the 12 months preced-
ing the survey because of being LGBT. The proportion 
of respondents stating that they were discriminated 
against because of being LGBT when accessing goods 
and services in the last 12 months differs according to 
gender, indicating that discrimination is exacerbated 
by being female.

Looking specifically at the data on discrimination in 
education shows that, during their schooling before 
the age of 18, more than eight in 10 of all respondents 
in each LGBT subgroup and every EU Member State 
have heard or seen negative comments or conduct 
because a schoolmate was perceived to be LGBT. Two 
thirds (68 %) of all respondents who answered the 
question say these comments or conduct occurred often 
or always during their schooling before the age of 18. 
Moreover, two thirds (67 %) of all respondents say they 
often or always hid or disguised the fact that they were 
LGBT during their schooling before the age of 18. Gay 
and bisexual men respondents were much more likely 
than lesbian and bisexual women respondents to have 
hidden or disguised the fact that they were LGBT while 
at school before the age of 18. 

In the year preceding the survey, 6 % of all respond-
ents were attacked or threatened with violence, which 
they thought happened partly or entirely because they 
were perceived to be LGBT. A majority of respondents 
who experienced violence in the year preceding the 
survey (59 %) say that the last attack or threat of vio-
lence happened partly or entirely because they were 
perceived to be LGBT. In addition, in the year before the 
survey, a fifth (19 %) of all respondents were victims 
of harassment which they thought happened partly or 
entirely because they were perceived to be LGBT. 

Turning to the question of reporting, one in five (22 %) 
of the most serious incidents of violence which respond-
ents experienced in the last five years because they 
were LGBT were brought to the attention of the police. 
Just 6 % of the most serious incidents of harassment 
were reported. Almost half of the respondents who 
did not report to the police the most serious incident of 
violence (43 %) or harassment (37 %) that happened to 
them in the last five years because of being LGBT say 
that this was because they felt that the police would 
not do anything.

Focusing on the data on daily life and the social envi-
ronment, almost half (48 %) of all survey respondents 
are open about being LGBT to none or a few of their 
family members and three in 10 (28 %) are open to 
none or a few of their friends. Just one in five (21 %) of 
all respondents are open to all of their work colleagues 
or schoolmates. Bisexual respondents, and particularly 
bisexual men respondents, are consistently less likely 
to say they are open about their sexual orientation/
gender identity to all or most of their family members, 
friends or colleagues/schoolmates.

11

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Furthermore, more than four fifths of all respondents 
say that casual jokes about LGBT people in everyday 
life are widespread, and almost half of all respondents 
believe that offensive language about LGBT people by 
politicians is widespread in their country of residence. In 
addition, two thirds (66 %) of the respondents, including 
at least half of the respondents in every EU Member 
State and Croatia, say that they avoid holding hands 
in public with a same-sex partner for fear of being 
assaulted, threatened or harassed for doing so. This 
figure rises to three quarters among gay (74 %) and 
bisexual men (78 %).

A number of themes emerge from the data, which cut 
across the different areas covered by the research and 
indicate commonalities or discrepancies of experience 
according to national, social and economic context, as 
well as by age and LGBT group. Looking at the over-
all results, for example, respondents living in Belgium, 
the Czech Republic, Denmark, Finland, Luxembourg, the 
Netherlands, Spain and Sweden indicate that they gener-
ally experience and perceive a social environment that is 
comparatively favourable for LGBT people. They are less 
likely to be victims of violence, harassment or discrimina-
tion, to perceive widespread negative attitudes towards 
LGBT people, or to avoid certain locations or behaviours 
for fear of being assaulted, threatened or harassed.

There is an inverse relationship between age and the 
inclusiveness of respondents’ environment towards 
LGBT people: the younger the respondents, the more 

likely they are to perceive their environment as intol-
erant towards LGBT people. In terms of LGBT group, 
the responses of lesbian, gay and bisexual participants 
indicate a general commonality of experience, although 
bisexual men respondents are much less likely to be 
open about being LGBT than gay or lesbian respond-
ents. Transgender respondents, however, consistently 
indicate that they experience an environment that is 
less tolerant towards them than that experienced by 
lesbian, gay and bisexual respondents.

The characteristics of incidents of discrimination, vio-
lence and harassment are also related to participants’ 
gender. Women respondents, for example, are much 
more likely than men respondents to say that the last 
attack they experienced in the last 12 months because 
of being LGBT was a sexual attack. Respondents whose 
responses indicate that their gender expression and sex 
assigned at birth does not align with societal expecta-
tions, such as respondents assigned a male sex at birth 
but who express themselves as female, also mention a 
less inclusive social environment.

In addition, LGBT respondents who are more open about 
being LGBT in a wider range of settings generally gave 
more positive responses – from experiences of discrimi-
nation to life satisfaction – than those who are not open 
or hide their LGBT identity. This relationship exists in all 
countries surveyed.

12

Key findings and FRA opinions

Strengthening EU action and 
national responses to combat 
discrimination on the grounds 
of sexual orientation and 
gender identity

The results show important differences among coun-
tries. Fewer respondents living in Belgium, the Czech 
Republic, Denmark, Finland, Luxembourg, the Nether-
lands, Spain and Sweden, for example, say that they 
were victims of violence, harassment or discrimination 
because of being LGBT in the 12 months preceding the 
survey; that they perceive widespread negative atti-
tudes towards LGBT people; or that they avoid certain 
locations or behaviours for fear of being assaulted, 
threatened or harassed because of being LGBT.

Younger  respondents  are  more  likely  than  older 
respondents to perceive their environment as intolerant 
towards LGBT people. Respondents in the youngest age 
group (18 to 24 years), for instance, are the least likely to 
be open about being LGBT and the most likely to state 
that they were victims of violence or discrimination 
in the year before the survey because they are LGBT.

Transgender respondents consistently indicate that 
they experience an environment that is less tolerant 
towards them than that experienced by lesbian, gay 
and bisexual respondents. Transgender respondents 
are, for example, the most likely of all LGBT subgroups 
to say that they felt personally discriminated against 
in the past year because of being LGBT, particularly in 
the areas of employment and healthcare.

When taking into account the respondents’ gender and 
gender expression, the results show particular trends. 
Lesbian and bisexual women, as well as transgender 
respondents, for example, are more likely than gay and 
bisexual men to have been discriminated against on 
the basis of their gender in the 12 months preceding 
the survey. In addition, women respondents are much 
more likely than men respondents to say that the last 
attack they experienced in the last 12 months because 
of being LGBT was a sexual attack.

Drawing on the survey findings and building on previous 
FRA work, FRA has formulated the following opinions. 
They aim to support EU and national policy makers to 
introduce and implement comprehensive and effective 
legislative and non-legislative measures to respect and 
safeguard the fundamental rights of LGBT persons. 

At EU level, the European Commission’s Strategy for 
the effective implementation of the Charter of Funda-
mental Rights by the European Union provides for “the 
development of individual policies concerning specific 
fundamental rights on the basis of the Treaties”.1 In 
developing such individual policies to combat discrim-
ination on grounds of sexual orientation and gender 
identity,2 the EU can draw inspiration from experience 
gained in setting up specific EU-wide policies, road-
maps and action plans in the fields of discrimination on 
grounds of disability and gender. The European Commis-
sion could consider using all available legal and policy 
tools to develop systematic initiatives underpinned by 
funding programmes and initiatives. The Commission 
could also find synergies with the Council of Europe’s 
LGBT Assistance and Cooperation programme, which 
already includes three EU Member States – Italy, Latvia 
and Poland. Albania, Montenegro and Serbia are the 
non-EU partner countries in this programme.

At national level, policy makers can use the survey find-
ings to further develop, implement and monitor the 
impact of relevant policies. Some EU Member States, 
including Belgium (interfederal and Flanders), France, 
Germany (Berlin-Brandenburg and North Rhine-West-
phalia only, not at national level), Italy, the Netherlands, 
Portugal, Spain (Province of Barcelona, not at national 
level) and the United Kingdom (lesbian, gay and bisex-
ual, and transgender action plans separately) have 
adopted specific LGBT action plans or integrated these 
issues in national human rights action plans. These 
EU Member States can make use of country-specific 
data to further shape their actions. 

European Commission (2010), p. 4.

1 
2  Gender identity and gender expression are different 

concepts, which may overlap, although gender identity does 
not cover the range of phenomena associated with gender 
expression. These issues will be examined separately in a 
forthcoming FRA report.

13

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Across all countries surveyed, respondents who are 
open about being LGBT to more people and in more 
settings are less likely to have felt personally discrimi-
nated against because of being LGBT than those who 
are not open or hide their LGBT identity.

The results show a relationship between respondents’ 
perceptions about the level of offensive language about 
LGBT people by politicians and whether or not respond-
ents have felt personally discriminated against or har-
assed on grounds of sexual orientation: in 14 out of the 
17 countries in which fewer than half of the respondents 
say that they were discriminated against or harassed on 
the grounds of sexual orientation in the year before the 
survey, the majority of respondents say that offensive 
language about LGBT people by politicians is rare.

FRA opinion

strengthen 

systematic  and 

To 
coordinated 
responses to discrimination, the EU and its Member 
States are encouraged to develop action plans pro-
moting  respect  for  LGBT  persons  and  protection 
of  their  fundamental  rights  and/or  integrate  LGBT 
issues  in  their  national  human  rights  action  plans 
and  strategies.  To  this  end,  Member  States  could 
draw on the evidence of this survey and from the 
experience  of  other  Member  States  that  already 
have  such  action  plans  in  place.  Special  consid-
eration  should  be  given  to  the  challenges  facing 
transgender  persons  and  young  LGBT  persons 
given the particular circumstances they face. 

The  EU  Strategy  for  equality  between  women 
and  men,  which  contributes  to  combating  stereo-
types  and  gender-based  violence  and  discrimina-
tion,  could  be  enhanced  to  include  programmes 
to  combat  stereotypes  and  discrimination  on  the 
grounds of sexual orientation and gender identity, 
as well as homophobia and transphobia. EU action 
in  the  area  of  gender  equality  should  explicitly 
cover issues linked to discrimination on the grounds 
of gender identity.

Open  support  by  politicians  makes  LGBT  persons 
feel  more  comfortable  about  living  as  LGBT  per-
sons. To strengthen this support further, the Euro-
pean Commission and EU agencies could encourage 
EU Member States to exchange promising practices 
that  actively  promote  respect  for  LGBT  persons. 
In  addition,  Member  States  are  encouraged  to 
promote  a  more  balanced  public  opinion  on  LGBT 
issues by facilitating dialogue involving the media, 
political  parties  and  religious  institutions.  Strong 
and  positive  political  leadership  is  also  needed  to 
promote the fundamental rights of LGBT persons.

EU Member States should encourage more detailed 
and targeted research at the national level and con-
sider  integrating  questions  on  sexual  orientation 
and  gender  identity  in  national  surveys  on  areas 
such  as  living  conditions,  wellbeing,  health  and 
employment.

14

Ensuring equal treatment in 
employment

Despite EU legislation protecting LGBT persons from dis-
crimination in employment and occupation, one in five 
respondents who was employed in the year preceding the 
survey has felt discriminated against at work or when look-
ing for a job. The figure is significantly higher for transgen-
der persons. Although around half of all respondents state 
that they are aware of the prohibition by law of discrimina-
tion in this area, non-reporting rates are very high.

FRA opinion

EU law should expressly ban discrimination on grounds 
of  gender  identity,  for  instance  in  the  context  of  the 
review  of  the  Gender  Equality  Directive  (recast). 
Regarding  discrimination 
in  employment  on  the 
grounds of gender identity specifically, the current legal 
protection accorded by EU law to those who intend, are 
undergoing  or  have  undergone  gender  reassignment 
should be extended to all transgender persons.

The EU should continue to monitor the effectiveness of 
national complaints bodies and procedures in the con-
text of the implementation of the Employment Equal-
ity Directive and the Gender Equality Directive (recast). 
FRA’s report on Access to justice in cases of discrimina-
tion in the EU: steps to further equality3 provides useful 
guidance in this respect.

EU Member States should support equality bodies and 
other national complaints mechanisms in their efforts 
to  inform  LGBT  persons  of  their  mandate  and  proce-
dures  with  a  view  to  increasing  awareness  of  dis-
crimination. They should also design targeted aware-
ness-raising campaigns directed at LGBT persons and 
disseminate information on discrimination at the work-
place and in vocational training institutions.

EU  Member  States  are  encouraged  to  support  trade 
unions and employers’ organisations in their efforts to 
adopt diversity and non-discrimination policies with a 
focus on LGBT persons.

EU  Member  States  should  ensure  that  private  and 
public  sector  employers  adopt  and  implement  diver-
sity strategies and equal treatment policies – for exam-
ple through the adoption of codes of conduct, and the 
sharing  of  experiences  and  good  practices  –  which 
include  positive  measures  addressing  the  needs  of 
LGBT persons.

EU  Member  States  should  pay  special  attention  to 
setting  up  clear  procedures  and  policies  meeting  the 
needs  of  transgender  employees,  in  particular  with 
regard to the right to personal autonomy and privacy. 
For example, it should be possible to change name and 
gender markers on employment-related documents in 
a quick, transparent and accessible way; and disclosing 
irrelevant  personally  sensitive  data  related  to  a  per-
son’s gender identity should be avoided.

3  See FRA (2012b).

Key findings and FRA opinions

Improving protection against 
discrimination beyond 
employment

A third of survey respondents say that they have felt 
personally discriminated against in at least one of the 
following areas in the 12 months before the survey 
because of being LGBT: housing, healthcare, education, 
social services, and access to goods and services. In 
light of this finding, discrimination on the grounds of 
sexual orientation and gender identity in areas beyond 
employment should be effectively tackled through leg-
islative measures at the EU and national levels.

FRA opinion

Equal  protection  against  discrimination  on  the 
grounds of sexual orientation across all EU Member 
States  would  significantly  improve  if  the  EU-wide 
prohibition of such discrimination extended beyond 
the  field  of  employment  and  occupation,  as  pro-
posed by the European Commission in its Proposal 
for a Council Directive of 2 July 2008 on implement-
ing the principle of equal treatment between per-
sons irrespective of religion or belief, disability, age 
or sexual orientation. 

In addition, EU law should consider explicitly men-
tioning  discrimination  on  the  grounds  of  gender 
identity  as  a  form  of  discrimination  in  all  existing 
and  upcoming  EU  legislation,  such  as  in  Directive 
2004/113/EC  implementing  the  principle  of  equal 
treatment between men and women in the access 
to and supply of goods and services. 

EU Member States should ensure that transgender 
persons  enjoy  full  legal  recognition  of  their  pre-
ferred gender identity, including the change of first 
name,  social  security  number  and  other  gender 
indicators on identity documents. Such procedures 
should be accessible, transparent and efficient and 
they should ensure respect for human dignity and 
human freedom.

Providing safe environment for LGBT 
students at schools

The  survey  finds  that  more  than  eight  in  10  of  all 
respondents in each LGBT group and in each EU Member 
State and Croatia witnessed negative comments or con-
duct during their schooling because a schoolmate was 
perceived to be LGBT. A large majority of all respond-
ents hid or disguised the fact that they were LGBT while 
at school before the age of 18 years.

FRA opinion

To the extent that education falls within the scope 
of EU law, EU equality and non-discrimination prin-
ciples  and  the  EU  Charter  of  Fundamental  Rights 
have  to  be  upheld.  The  EU  should  contribute  to 
combating  the  bullying  of  LGBT  persons  in  edu-
cational  settings.  The  EU  should  encourage  peer 
learning  among  EU  Member  States  and  promote 
existing  best  practices  tackling  homophobic  and 
transphobic bullying. The EU should also seek syn-
ergies  with  UNESCO’s  work  on  improving  educa-
tional responses to homophobic bullying, and with 
the  Council  of  Europe,  which  adopted  a  Strategy 
for the Rights of the Child (2012–2015) focused on 
bullying. 

EU Member States should ensure that schools pro-
vide a safe and supportive environment for young 
LGBT  persons,  free  from  bullying  and  exclusion. 
This  includes  combating  stigmatisation  and  mar-
ginalisation of LGBT persons, and promoting diver-
sity.  Schools  should  be  encouraged  to  adopt  anti-
bullying policies. Competent state agencies, such as 
equality  bodies,  national  human  rights  institutions 
and  children’s  ombudspersons,  should  be  man-
dated and encouraged to explore cases of bullying 
and discrimination at school.

EU  Member  States  should  ensure  that  objective 
information  on  sexual  orientation,  gender  identity 
and gender expression is part of school curricula to 
encourage respect and understanding among staff 
and students, as well as to raise awareness of the 
problems  faced  by  LGBT  persons.  Training  should 
be provided to educational professionals on how to 
approach LGBT issues in class and on how to deal 
with incidents of homophobic and transphobic bul-
lying and harassment.

Providing the highest attainable 
standard of health to LGBT persons

One in 10 of the respondents who has accessed health-
care services in the year preceding the survey reports 
that they have felt personally discriminated against 
by healthcare personnel in the last year. The level of 
discrimination was twice as high among transgender 
respondents. These findings should be read in light of 
the low levels of openness towards healthcare person-
nel indicated by respondents.

15

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

When evaluating national legislation implementing 
the Victims’ Rights Directive, EU institutions should 
pay particular attention to gender and gender iden-
tity or gender expression, as well as sexual orien-
tation, as personal characteristics of the victims to 
be  taken  into  account  in  the  context  of  individual 
assessments.

EU Member States are also encouraged to increase 
recognition and protection of LGBT victims of hate 
crime,  by  including  homophobic  and  transphobic 
hatred as possible motives in national legislation on 
bias-motivated crime.

EU Member States should provide training for law 
enforcement  personnel  as  well  as  victim  support 
services  that  would  recognise  and  offer  suitable 
services for LGBT persons without discrimination

Improving rights awareness 
and reporting on 
discrimination and violence

The survey results show very high non-reporting rates 
among respondents who have felt personally discrimi-
nated against or who say that they were victims of 
violence or harassment. The most frequent reasons for 
not reporting incidents of discrimination are a belief that 
‘nothing would change’, as well as a lack of knowledge 
about how or where to report an incident or fear of 
homophobic or transphobic reaction from the police.

Earlier FRA reports, such as the European Union Minori-
ties and Discrimination Survey (EU-MIDIS) Data in focus 
report on ‘minorities as victims of crimes’5 and Making 
hate crime visible in the European Union: acknowledg-
ing victims’ rights,6 highlighted the need to address 
effectively the non-reporting of incidents of discrimi-
nation and hate crime against migrants and minority 
ethnic groups, as well as the importance of data col-
lection in this area. In a similar vein, it is also important 
for LGBT persons to benefit fully from the protection 
afforded by law by helping them toreport discrimination 
and hate crime incidents.

FRA opinion

When  encouraging  cooperation  between  EU 
Member States in the area of public health, the EU 
should  put  emphasis  on  the  removal  of  possibly 
discriminatory practices.

EU  Member  States  should  ensure  that  adequate 
training and awareness raising is offered to health-
care providers on the health needs of LGBT persons 
in  order  to  eliminate  prejudices  and  improve  the 
provision of services to LGBT persons. This should 
include  specific  measures  to  improve  access  to 
healthcare services and targeted policies to provide 
high-quality  healthcare  to  LGBT  persons,  irrespec-
tive of sexual orientation and gender identity.

Concerning  transgender  persons  in  particular,  EU 
Member  States  should  ensure  that  general  and 
transgender-specific  healthcare  services 
take 
account of the health needs of transgender persons 
without discrimination and prejudice.

In  their  national  health  plans,  EU  Member  States 
should include a section on LGBT healthcare clients 
and  ensure  that  health  surveys,  training  curricula 
and health policies also take into account LGBT per-
sons and their needs.

Recognising and protecting 
LGBT victims of hate crime

Everyone is entitled to  the rights to life, security and 
protection from violence, and these rights must be 
respected, irrespective of sexual orientation or gender 
identity. The survey reveals that LGBT respondents are 
subject to high levels of repeated victimisation and 
violence, which is particularly high for transgender 
respondents.4

FRA opinion

In  the  Framework  Decision  on  Racism  and  Xeno-
phobia, EU law specifically addresses offences and 
crimes  based  on  “racist  and  xenophobic  motiva-
tion”.  EU  Member  States  are  obliged  to  “take  the 
necessary measures to ensure that racist and xen-
ophobic  motivation  is  considered  an  aggravating 
circumstance, or, alternatively that such motivation 
may be taken into consideration by the courts in the 
determination of the penalties”.4 EU Member States 
should consider adopting similar legislation cover-
ing homophobic and transphobic hate speech and 
hate  crime  so  that  LGBT  persons  are  equally  pro-
tected, as a number of Member States have already 
done.

4  Council of the European Union (2008), Council Framework 

Decision 2008/913/JHA of 28 November 2008 on combating 
certain forms and expressions of racism and xenophobia by 
means of criminal law, Art. 4.

5 
FRA (2012b).
6  FRA (2012c).

16

FRA opinion

Both the EU and its Member States, including local 
authorities,  should  set  up  or  increase  concrete 
awareness-raising  activities  to  support  LGBT  per-
sons to access, efficiently and easily, structures and 
procedures to report discrimination and hate-moti-
vated violence.

EU Member States should address the non-report-
ing and underreporting of hate crime, for example 
by providing relevant training to law enforcement 
authorities  on  LGBT  issues,  particularly  concern-
ing victim support and the systematic recording of 
incidents.  Practices  such  as  ‘third  party  reporting’, 
engaging civil society organisations through multi-
agency  partnerships,  could  also  be  considered  in 
order to improve reporting rates.

To  facilitate  the  setting  up  of  such  policies,  EU 
Member  States  should  collect  statistical  data  on 
at least the number of incidents pertaining to hate 
crime  reported  by  the  public  and  recorded  by  the 
authorities,  the  grounds  on  which  these  offences 
were  found  to  be  discriminatory,  the  number  of 
convicted  offenders  and  the  type  of  sentence 
imposed.

Future work on the fundamental 
rights of LGBT persons

FRA continues to collect and analyse data regard-
ing the fundamental rights of LGBT persons. Re-
search conducted in 2013 through interviews with 
public authorities – civil servants, police officers, 
teachers and health professionals – will examine 
how they deal with the rights of LGBT persons in 
their daily work.

Key findings and FRA opinions

17

Introduction

This report presents the findings of the largest ever 
survey conducted in the EU and Croatia among LGBT 
persons. It describes the responses of over 93,000 
LGBT persons regarding their experiences of violence, 
harassment and discrimination because of their sexual 
orientation or gender identity. It marks a major step 
in addressing the lack of robust and comparable data 
on the fulfilment of the fundamental rights of LGBT 
people in the EU.

Why is this survey needed?

Despite positive legal and social developments in the 
last decade, previous FRA research identified gaps in the 
protection of the fundamental rights of LGBT people in 
the EU. Moreover, as different stakeholders recognised, 
little was known about how LGBT persons experience 
their fundamental rights in their daily lives. The EU LGBT 
survey was developed to obtain the robust and compa-
rable data that would allow a better understanding of 
how LGBT people living in the EU and Croatia experience 
the enjoyment of fundamental rights.

The areas covered by the survey were identified in 
cooperation  with  relevant  stakeholders.  Since  this 
survey is comparative, the existing international and 

FRA ACTIVITY

EU legal standards were an important starting point 
for the discussions. Existing EU legislation prohibits dis-
crimination in the area of employment and occupation. 
In addition, the Council of Europe’s Recommendation 
Rec(2010)5 on measures to combat discrimination on 
grounds of sexual orientation or gender identity sets 
out practical measures to fulfil the fundamental rights of 
LGBT people, starting from the right to life, security and 
protection from violence, and continuing to freedom of 
association, expression and peaceful assembly, the right 
to respect for private and family life, and equal treat-
ment in various areas of social life including employ-
ment, education, health, housing and sports.

By investigating the specific situation of LGBT people in 
the EU and Croatia, FRA can report on the experiences 
of such diverse groups as lesbian women in Cyprus, 
bisexual men in Ireland and transgender persons in 
Hungary. In this way, the report provides EU institutions 
and Member States, as well as other key stakeholders, 
with reliable and comparable data that facilitate the 
development of more targeted and effective legal and 
policy responses to address the needs of LGBT persons 
and ensure the protection of their fundamental rights. 
The survey findings can also be used to assess whether 
or not measures taken to comply with existing stand-
ards bring about concrete results.

Looking at the fundamental rights of LGBT persons

FRA started its work on the rights of LGBT persons immediately after its creation in 2007, following a request 
by the European Parliament to collect data on discrimination against LGBT persons and the situation regarding 
homophobia in the EU. In 2008, FRA published a first report on the legal situation, Homophobia and discrimina-
tion on grounds of sexual orientation and gender identity in the EU Member States: Part I – legal analysis. This 
research showed that, despite the lack of secondary Union law expressly prohibiting discrimination on grounds 
of sexual orientation in areas beyond employment, in a number of EU Member States the non-discrimination 
legal  framework  provides  better  protection  to  LGBT  persons  than  that  required  by  the  Employment  Equality 
Directive. In 2009, a second report, based on a review of secondary data, looked at the social situation of LGBT 
persons in the EU: Homophobia and discrimination on grounds of sexual orientation and gender identity in the 
EU Member States: Part II – the social situation.

In 2010, FRA updated its comparative legal analysis on Homophobia, transphobia and discrimination on grounds 
of sexual orientation and gender identity – Legal update 2010, and in 2011 it published a summary of its socio-
legal  findings,  including  an  analysis  of  trends,  challenges  and  promising  practices.  This  research  showed  an 
uneven  and  uncoordinated  EU  landscape  with  respect  to  the  prohibition  of  discrimination  on  the  grounds  of 
sexual orientation and gender identity, as well as regarding criminal law in the area of bias-motivated crimes 
against LGBT persons.

For more information, see: FRA (2008), Homophobia and discrimination on grounds of sexual orientation and gender identity in the EU Member 
States: Part I – legal analysis, Luxembourg, Publications Office; FRA (2008), Homophobia and discrimination on grounds of sexual orientation and 
gender identity in the EU Member States: Part II – the social situation, Luxembourg, Publications Office; FRA (2010), Homophobia, transphobia and 
discrimination on grounds of sexual orientation and gender identity – Legal update 2010, Luxembourg, Publications Office; and FRA (2011), Homo-
phobia, transphobia and discrimination on grounds of sexual orientation and gender identity – Summary of findings, trends, challenges and promising 
practices, Luxembourg, Publications Office.

18

KEY CONCEPTS AND TERMINOLOGY

The target group of the EU LGBT survey is persons who self-identify as being gay, lesbian, bisexual or transgen-
der. The survey examines issues of equal treatment and discrimination on two grounds, namely sexual orienta-
tion and gender identity.

The report uses the term LGBT as an umbrella term encompassing all survey respondents. As the analysis re-
quires, it will also refer to the different subgroups, thereby acknowledging that the fundamental rights issues 
affecting lesbian, gay, bisexual and transgender persons may be profoundly different. It should also be noted 
that the experiences of LGBT persons are not only defined on the basis of their sexual orientation or gender 
identity, but are also affected by their educational and socio-economic background and other characteristics.

LGBT persons may have different levels of openness about being LGBT to family, friends or colleagues. Some are 
open about their LGBT identity whereas other cannot or do not want to share this with others.

The terms used are based on the Yogyakarta Principles on the application of international human rights law in 
relation to sexual orientation and gender identity.7 International treaty bodies and other human rights mecha-
nisms, including the Council of Europe’s Commissioner for Human Rights, the UN Committee on Economic, Social 
and Cultural Rights and the UN High Commissioner for Human Rights, have used these.

Sexual orientation refers to “each person’s capacity for profound emotional, affectional and sexual attraction 
to, and intimate and sexual relations with, individuals of a different gender or the same gender or more than 
one gender”.8 Sexual orientation refers to identity (being), conduct (behaviour) and relating to other persons 
(relationships). It is generally assumed that persons are heterosexual (orientation towards persons of a different 
gender), homosexual (gay, or lesbian, orientation towards persons of the same gender) or bisexual (oriented 
towards both genders).

Gender identity refers to “each person’s deeply felt internal and individual experience of gender, which may or 
may not correspond with the sex assigned at birth, including the personal sense of the body (which may involve, 
if freely chosen, modification of bodily appearance or function by medical, surgical or other means) and other 
expressions of gender, including dress, speech and mannerisms”.9 Those whose gender identity does not cor-
respond with the sex assigned at birth are commonly referred to as transgender persons. This group includes 
persons who wish at some point in their life to undergo gender reassignment treatments (usually referred to as 
transsexual persons), as well as persons who ‘cross-dress’ or persons who do not, or do not want to, consider 
themselves as being ‘men’ or ‘women’. Some of them refer to themselves as ‘gender variant’.

Gender expression refers, then, to a person’s manifestation of their gender identity, for example through ‘mas-
culine’, ‘feminine’ or ‘gender variant’ behaviour, clothing, haircut, voice or body characteristics. Since experi-
ences of homophobia, transphobia and discrimination on the grounds of sexual orientation and gender identity 
often find their roots in social perceptions of gender roles, this survey has also included this element.

Legal and policy context

Current legal situation

The principle of equal treatment is a fundamental value 
of the European Union, clearly expressed in Article 3 of 
the Treaty on the European Union (TEU). It is brought 
together in the Preamble of the Charter of Fundamental 
Rights of the European Union (EU Charter), which consti-
tutes the compass for the protection of individual fun-
damental rights under EU law. The Charter’s preamble 
specifies that “the Union is founded on the indivisible, 
universal values of human dignity, freedom, equality 
and solidarity”. Article 21 of the EU Charter prohibits 
“any discrimination based on any ground such as sex 
… and sexual orientation”. This provision addresses dis-
crimination by the institutions and bodies of the Union 
themselves, as well as by EU Member States when they 
are implementing Union law.

7 
8 
9 

International Commission of Jurists (ICJ) (2007). 
Ibid., p. 6.
Ibid., p. 6.

The right of all persons to equality before the law and 
protection against discrimination, recognised in various 
international legal sources, as well as at the EU and 
national levels, is the legal tool used to ensure both 
respect for human dignity and full participation on an 
equal footing in economic, cultural and social life. Recent 
legal developments at both European and national level, 
together with the case law of the European Court of 
Human Rights (ECtHR) and that of other international 
jurisdictions, reinforce the conclusion that sexual ori-
entation is to be considered a prohibited ground of 
discrimination.10 Specific case law of both the ECtHR 
and the Court of Justice of the European Union (CJEU), 
together with the recognition of gender identity and 

10  ECtHR, B.B. v. The United Kingdom, No. 53760/00, 

10 February 2004; ECtHR, Schalk and Kopf v. Austria, 
No. 30141/04, 24 June 2010; UN Human Rights Committee, 
Young v. Australia, Communication No. 941/2000, 
18 September 2003.

Introduction

19

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

gender expression as a protected characteristic in a 
number of EU and national legislative acts, has also 
increasingly contributed to the advancement of the 
legal protection of the rights of transgender persons.11

Within the EU, the Treaty on the functioning of the Euro-
pean Union (TFEU) confers on the Council of the EU the 
power to take specific action to combat discrimination 
on the grounds of, among other things, sex and sexual 
orientation (Article 19). In addition, the TFEU makes 
it imperative for the EU to combat discrimination on 
the grounds of sexual orientation (Article 10) and sex 
(Article 8) in defining and implementing its policies and 
activities. However, the principle of equal treatment and 
the right to non-discrimination with respect to LGBT 
persons has been articulated with varying degrees of 
specificity in relation to the different economic, cultural 
and social areas of life.

EU-wide protection of LGBT people against discrimi-
nation is well established in the area of employment 
and occupation, which have been recognised as “key 
elements in guaranteeing equal opportunities for all” 
(Recital No. 9 of the Employment Equality Directive 
(Directive 2000/78/EC)). Thanks to the Employment 
Equality Directive and the Gender Equality Directive 
(recast) (Directive 2006/54/EC) concerning equal treat-
ment between women and men, LGBT people enjoy an 
explicit protection under the law against discrimination 
on the grounds of sexual orientation and gender, both in 
access to employment and at the workplace. In addition, 
according to established CJEU case law, existing Union 
law in the field of equal treatment between women and 
men also applies to instances of unequal treatment on 
the grounds of gender reassignment. Legislation and 
case law concerning discrimination on the grounds of 
sex are, therefore, relevant to the position of transgen-
der persons under EU law.

Furthermore, discrimination on the grounds of gender is 
also explicitly prohibited in the area of access to goods 
and services (Directive 2004/113/EC). This could include 
discrimination on the grounds of gender reassignment; 
however, EU law at present does not prohibit discrimina-
tion on the grounds of sexual orientation in this field, or 
in any other field beyond employment. Nevertheless, 
in many areas beyond employment, individuals still 
enjoy a substantial fundamental right explicitly recog-
nised by both EU and international law instruments. 
This is the case, for instance, with the right to educa-
tion or the right to health (see Articles 14 and 35 of the 
EU Charter, or Article 2 of Protocol No. 1 to the European 

11  CJEU, Case C-13/94, P. v. S. and Cornwall County Council, 

30 April 1996; CJEU, Case C-117/01, K.B. v. National Health 
Service Pensions Agency and Secretary of State for Health, 
7 January 2004; and CJEU, Case C-423/04, Sarah Margaret 
Richards v. Secretary of State for Work and Pensions, 
27 April 2006.

Convention on Human Rights (ECHR)). In addition, the 
Recommendation of the Committee of Ministers of the 
Council of Europe to Member States on measures to 
combat discrimination on the grounds of sexual orienta-
tion or gender identity (Rec(2010)5) also covers these 
and other areas.

The principle of non-discrimination is also relevant to 
the protection of the right to life (Article 2 of EU Charter), 
the integrity of the person and protection from vio-
lence (Article 3 of the EU Charter). As FRA studies show, 
violence and crimes motivated, among other reasons, 
by a person’s sexual orientation or gender identity – 
often referred to as homophobic and transphobic ‘hate 
crime’ – not only harm the victim, but are also gener-
ally prejudicial to fundamental rights, namely to human 
dignity (Article 1 of the EU Charter) and with respect to 
non-discrimination.12

The effective enjoyment by LGBT persons of the right 
to security and protection from hatred and violence is 
likely to be particularly affected by the fact that they 
may be targeted by violence and crime committed with 
a motive of bias relating to the victims’ perceived sexual 
orientation or gender identity. Over the past decade, 
the ECtHR has consistently held that hate crime victims 
have the right to be acknowledged not only as victims 
of crime generally, but also as having suffered victimi-
sation specifically because of the biased attitudes of 
offenders. At present, EU law requires Member States 
to take measures to combat certain forms and expres-
sions of racism and xenophobia by means of criminal 
law (Framework Decision 2008/913/JHA). Although this 
Framework Decision is restricted to race, colour, reli-
gion, descent or national or ethnic origin, a majority of 
EU Member States have opted to include other grounds, 
such as sexual orientation or gender identity, in criminal 
definitions protecting against discrimination.

In its report Making hate crime visible in the European 
Union: acknowledging victims’ rights, FRA illustrates 
that, in the spirit of non-discrimination, it is prefer-
able to widen criminal law provisions to include on an 
equal basis all grounds of discrimination covered by 
Article 14 of the ECHR, as interpreted by ECtHR case 
law or Article 21 of the EU Charter.13 Although FRA’s 
2011 report on Homophobia, transphobia and discrimi-
nation on grounds of sexual orientation and gender 
identity in the EU Member States – Summary of find-
ings, trends, challenges and promising practices shows a 
trend towards increased protection from bias-motivated 
crimes against the person through criminal law through-
out the EU, this remains limited to around half of the 
EU Member States.14

12  FRA (2012b).
13  FRA (2012c).
14  FRA (2011a).

20

The EU and its Member States can combat hate crime 
and address related fundamental rights violations by 
making them more visible and by holding perpetrators 
accountable. The Recommendation Rec(2010)5 encour-
ages Council of Europe member states to “ensure effec-
tive, prompt and impartial investigations into alleged 
cases of crimes and other incidents, where the sexual 
orientation or gender identity of the victim is reason-
ably suspected to have constituted a motive for the 
perpetrator”.15 It also calls upon them to “ensure that […] 
those responsible for such acts are effectively brought 
to justice and, where appropriate, punished in order to 
avoid impunity”.16

Addressing fundamental rights violations also entails 
encouraging victims and witnesses to report crimes and 
incidents, while increasing their confidence in the abil-
ity of the criminal justice system to deal with this type 
of criminality decisively and effectively. An important 
contribution in harmonising victims’ protection across 
the EU has been the adoption of the Victims’ Rights 
Directive (Directive 2012/29/EU), establishing minimum 
standards on the rights, support and protection of vic-
tims of crime. In its Recital No. 9, the directive stipulates 
that victims of crime should be recognised and treated 
in a respectful, sensitive and professional manner with-
out discrimination on the grounds of, among others, 
gender identity and sexual orientation. Furthermore, 
Recital No. 56 draws attention to the importance of 
individual assessments, which should take into account 
the personal characteristics of the victims, including 
gender and gender identity or expression, and sexual 
orientation, amongst others. Effective protection of 
and full respect for fundamental rights, and the ability 
of victims of crime to seek redress, can work only if 
criminal justice systems and law enforcement agencies 
acknowledge victims and hold perpetrators to account. 

These legal developments advance and contribute to 
the creation of an area of freedom, security and justice 
which offers a high level of protection to all citizens. 
However, EU policies advancing this goal that specifi-
cally promote the rights of LGBT people are not always 
reflected at national level. A concrete example of a fun-
damental right recognised for all EU citizens by the trea-
ties and the EU Charter is the right to free movement 
across Member States, established by Articles 20(2) 
and 21 of the TFEU and reaffirmed by Article 45 of the 
EU Charter. The Free Movement Directive (Directive 
2004/38/EC) further specifies the conditions, under 
which EU citizens and their family members can exer-
cise this right. The notion of ‘family member’ depends 
to a certain extent on the legislation of the EU Member 
State of destination, and several Member States limit 
the possibility for foreign same-sex partners to take 

15  Council of Europe, Committee of Ministers (2010), Part I(A)(1).
16  Council of Europe, Committee of Ministers (2010), Part I(A)(1).

up residence in conformity with their national laws. 
This may hinder LGBT persons in fully exercising the 
rights conferred upon them by EU provisions on free 
movement and in accessing benefits and services in 
the Member State of destination. 

Against this background, it is worth recalling that in 
many EU Members States, legal developments went 
hand in hand with an increasingly accepting and inclu-
sive social environment, which fosters the willingness 
and ability of LGBT persons to live openly and freely. 
The existence of a pluralistic and inclusive social envi-
ronment has a crucial impact on the effective enjoy-
ment by LGBT persons of their right to live and express 
themselves openly and freely. From a legal perspective, 
the importance of this element in contributing to the 
effective enjoyment of fundamental rights has also 
been recognised, for example by the UN Human Rights 
Committee, which affirmed that expressing one’s sexual 
identity and seeking understanding for it falls under the 
scope of Article 19(2) of the International Covenant on 
Civil and Political Rights (freedom of expression).17 In 
a similar vein, the ECtHR, referring to pluralism, toler-
ance and broadmindedness as hallmarks of a demo-
cratic society, has firmly stated in its case law that the 
banning of a pride march by authorities constitutes an 
interference with the freedom of assembly under Arti-
cle 11 of the ECHR.18

Non-legislative developments

Sustainable and inclusive growth in a high-employment 
economy delivering economic, social and territorial 
cohesion is a core priority of the Europe 2020 growth 
strategy. In order to contribute to these objectives, 
LGBT persons should not be discriminated against when 
looking for a job or at work, when going to school and 
accessing healthcare, and should be able to openly 
express themselves without fear of attack or harass-
ment. Discrimination and unequal treatment have nega-
tive consequences on economic growth, as well as on 
social cohesion and inclusion.

Developments are ongoing at international, European 
and national levels. A major 2012 study by the UN Office 
of the High Commissioner for Human Rights19 led to a 
debate in the UN Human Rights Council on the situation 
of LGBT persons worldwide and to a series of regional 
roundtables. The FRA EU LGBT survey results, which 
cover a large part of the European region, will be useful 
in these discussions.

17  UN Human Rights Committee, Fedotova v. Russian 

Federation, CCPR/C/106/D/1932/2010, Communication 
No. 1932/2010, 30 November 2012, para. 10.7.

18  ECtHR, Bączkowski and Others v. Poland, No. 1543/06, 

3 May 2007 and ECtHR, Alekseyev v. Russia, Nos 4916/07, 
25924/08 and 14599/09, 21 October 2010.

19  UN OHCHR (2012).

Introduction

21

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

At the Council of Europe level, a 2011 report by the Com-
missioner for Human Rights20 has been instrumental 
in facilitating discussions on LGBT rights in Council of 
Europe member states. Moreover, the Council of Europe 
has set up an LGBT unit, working with six member states, 
of which three are also EU Member States, on imple-
menting Recommendation Rec(2010)5. This ‘Assistance 
and Cooperation project’ aims to aid member states to 
reach the standards set out in the recommendation.21

At national level, many EU Member States have set up 
national policies or action plans to improve the funda-
mental rights of LGBT persons.22 Some of these initia-
tives are based on national research into the human 
rights  situation  of  LGBT  persons.  Equality  bodies, 
national  human  rights  institutions  and  ombudsper-
sons’ offices have also been engaged on this issue. The 
LGBT survey asked respondents about their views on 
the efforts by Member States to combat discrimination 
based on sexual orientation and gender identity.

A growing number of EU Member States have strength-
ened European coordination and consultation mecha-
nisms in the area of LGBT rights. The EU’s Governmental 
Expert Group on discrimination (GEG) has also discussed 
issues related to sexual orientation and gender identity 
discrimination in its meetings. The European Network of 
Governmental LGBT Focal Points includes representa-
tives of over 23 EU Member States. In addition, on 17 
May 2013 ministers of 11 EU Member States (Austria, 
Belgium, Croatia, Denmark, Finland, France, Luxem-
bourg, Malta, the Netherlands and Sweden) signed a 
joint statement calling on the European Commission to 
step up efforts for EU-wide action to combat discrimina-
tion on the grounds of sexual orientation and gender 
identity. The joint statement urges “[committing] to 
developing  and  adopting  a  comprehensive  policy 
approach which builds upon the recommendations of 
the Fundamental Rights Agency Survey”.23

20  Council of Europe, Commissioner for Human Rights (2011). 
21  Council of Europe, Combating discrimination on grounds of 

sexual orientation and gender identity (LGBT Project), Legal 
and Human Rights Capacity Building Department (LHRCB) 
Justice and Legal Co-operation Department, Council of Europe 
2011–2013.
22  FRA (2011b).

23  Written statement signed by ministers from 11 EU Member 

States. 

22

The survey in a nutshell

The EU LGBT Survey was conducted online in the 27 
EU Member States and Croatia between April and July 
2012. It collected information from 93,079 persons aged 
18 or over who identified as lesbian, gay, bisexual or 
transgender (LGBT) about their experiences of discrimi-
nation, hate-motivated violence and harassment, and 
other key issues.

This survey is the largest of its kind to date and repre-
sents the most wide-ranging and comprehensive pic-
ture available of the lived experience of LGBT people 
residing in the EU and Croatia. Nevertheless, the data 
are not representative of all LGBT people living in the 28 
countries covered by the survey; the results presented 
in this report reflect only the collective experiences of 
the very large number of individuals who completed the 
questionnaire. These respondents tended to be men, 
gay, young and highly educated.

Who took part in the survey?

The survey targeted adults aged 18 years and over living 
in the EU or in the then acceding country Croatia who 
identified as gay, lesbian, bisexual and/or transgen-
der.  The  respondents  comprise  a  great  diversity  of 
individuals, encompassing those who live openly as 
gay, lesbian, bisexual and/or transgender and those 
who do not, cannot or will not do so, from a range of 
socio-demographic backgrounds. It is not known how 
much the sample reflects the characteristics of the total 
population of LGBT persons living in the EU and Croatia 
because the size and composition of this population is 
not known. A breakdown of the sample is available in 
the Annex, but the table below offers a basic overview.

The majority (62 %) of respondents identify themselves 
as gay men. Lesbian women form 16 % of the sample, 
bisexual men and women 8 % and 7 %, respectively, 
and transgender persons 7 %. In the transgender group 
(6,771 respondents), the largest subgroups are persons 
who are transsexual or have a transsexual past (1,813), 
those who are transgender (1,066), those who are queer 
(1,016) and ‘other’ (1,683). Almost two thirds (62 %) of 
transgender respondents say that they were assigned 
a male sex at birth, whereas 38 % were assigned a 
female sex.

Almost three quarters of respondents are aged under 40 
(30 % are in the age group18–24 years and 43 % in the 
age group 25–39 years), while just 5 % of participants 
are 55 years old or over. Bisexual women respondents 
are the youngest, with 52 % of participants in this group 
aged between 18 and 24 years. More than a fifth of the 
total number of respondents (20,271) live in Germany 
and around one in seven (13,255) live in Italy. 

Some  groups  are  possibly  overrepresented  in  the 
sample. As the true distribution in the LGBT population 
is not known, it is impossible to estimate accurately how 
much the final sample reflects or deviates from it. To 
avoid the influence of the under- or overrepresentation 
of any particular subgroup or nationality in the sample, 
the data were weighted according to respondents’ LGBT 
group and country of residence for the purpose of cal-
culating the EU LGBT average. The weighting assumed 
that the relative size of the LGBT population over the 
age of 18 and the size of lesbian, gay, bisexual and 
transgender groups within the overall LGBT population 
were similar in all countries.

Table 1:  Overview of survey respondents' LGBT subgroup, by age group (total numbers and percentage)

Total

%

Lesbian 
women

% Gay men %

Bisexual 
women

%

Bisexual 
men

% Transgender %

Age

18–24

28,110

25–39

39,939

40–54

20,236

55+

4,794

30

43

22

5

5,625

6,759

2,399

453

Total

93,079

15,236

Source:  FRA, EU LGBT survey, 2012

37

44

16

3

16

14,782

25,260

14,224

3,182

57,448

26

44

25

6

62

3,359

2,547

447

71

6,424

52

40

7

1

7

2,270

2,790

1,597

543

7,200

32

39

22

8

8

2,074

2,583

1,569

545

6,771

31

38

23

8

7

23

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

How was the survey 
conducted and how 
representative is it?

FRA designed the research in close cooperation with the 
contracted consortium: Gallup Europe and ILGA Europe. 
Key online media and publications were used to promote 
the survey among the target audience. To participate in 
the survey, respondents filled in an anonymous online 
questionnaire. The questionnaire began with a number 
of screening questions to establish respondents’ eligi-
bility: the 11,391 respondents who did not identify as 
lesbian, gay, bisexual or transgender, who said they 
did not live in an EU  Member State or Croatia, or who 
stated that they were under the age of 18 were unable 
to continue with the survey. This included a number of 
respondents who identified their sexual orientation as 
‘other’. Only the responses of those participants who 
completed the entire survey, with the exception of the 
final open-ended question, are included in the analysis. 
Each question gave respondents a range of possible 
answers and asked them to select that or those which 
most applied to them. At the end of the survey respond-
ents were invited to write a short piece of free text 
giving further information about their experiences. This 
report includes a small selection of the 21,944 individual 
responses collected at the end of the survey.

Online surveys are effective in that they can reach pop-
ulations that cannot be practicably sampled through 
other means, such as door to door or over the tele-
phone, and because they do not require respondents 
to reveal their identity to interviewers or telephone 
callers. This choice of methodology allowed the survey 
to access very large numbers of potential respondents, 
including those who are less open about their sexual 
orientation or gender identity, as well as people who 
may feel uncomfortable revealing these aspects of 
private life and providing information about sensitive 
issues, such as their experiences of violence.

Online surveys do, however, have a number of limi-
tations.  As  an  open  survey  may  be  completed  by 
all individuals who self-identify as members of the 
target group, the sample is not random and therefore 
is open to bias. Moreover, full anonymity means that 

respondents can theoretically fill out the survey mul-
tiple times. In addition, unequal access to the internet 
may reduce the number of respondents in geographi-
cal and social contexts with lower levels of internet 
access. The careful steps, however, that were taken 
throughout the development and implementation of 
the EU LGBT survey, combined with the large sample 
size and the length of the questionnaire, help to ensure 
the quality of the data. The survey therefore gives a 
comparable picture of the situation across the EU and 
Croatia, based on the survey participants’ responses. 
The report’s annex outlines the choice of methodology 
and its limitations in more detail.

The survey was carried out, under contract to FRA, by a 
consortium of Gallup Europe and ILGA-Europe, selected 
through an open call for tender. The work was closely 
monitored by FRA, which also developed the present 
report. National-level experts supported the consortium 
with translations, conducting background research and 
organising awareness-raising activities at the national 
level. The survey was publicised through a targeted 
awareness-raising campaign, which included social and 
news media, online LGBT media, LGBT organisations and 
LGBT online dating websites. Communication releases 
were published in the 27 languages in which the survey 
could be completed: 22 official languages of the EU (with 
the exception of Irish), as well as Catalan, Croatian, Lux-
embourgish, Russian and Turkish.

What did the survey ask?

Respondents were asked questions about their expe-
riences of enjoying their fundamental rights across a 
wide range of areas of life, notably employment, edu-
cation, healthcare, social services and when access-
ing a number of goods and services available to the 
public such as cafés and restaurants, banks and shops. 
There was a particular focus on their experiences of 
discrimination, violence and harassment on the basis 
of being LGBT. These questions were developed in an 
effort to understand the situation in practice concerning 
the international fundamental rights standards as set 
out in the introduction. More detail on the questions 
asked is given at the start of each chapter of the report.

24

1

Discrimination: experiences, 
awareness, reporting and 
perceptions

Under  EU  law,  the  principle  of  equal  treatment 
constitutes  a  fundamental  value  of  the  Europe-
an Union which ensures both respect for human 
dignity and full participation on an equal footing 
in economic, cultural and social life. Article 21 of 
the  Charter  of  Fundamental  Rights  of  the  Euro-
pean  Union  (EU  Charter)  prohibits  “any  discrimi-
nation  based  on  any  ground  such  as  […]  sexual 
orientation”.

Before answering the questions concerning discrimi-
nation, respondents were provided with the following 
explanation: “By discrimination we mean when some-
body is treated less favourably than others because of 
a specific personal feature such as their age, gender, 
gender identity, sexual orientation, minority background 
or for any other reason. For example, discrimination can 
occur when a woman is not given an equal opportunity 
to be promoted in her job in comparison with a man, 
although she is equally suitable and experienced.”

Respondents  were  first  asked  about  whether  they 
thought  discrimination  based  on  various  grounds  – 
among them sexual orientation and gender – was rare or 
widespread in their country of residence, and whether 
they have felt personally discriminated against or har-
assed on the basis of one or more of these grounds in 
the past year.

The  survey  then  focused  specifically  on  their  per-
ceptions  of  discrimination  because  of  being  LGBT: 
respondents were asked if they have experienced dis-
crimination because of being LGBT in the areas of social 
life covered by the survey – namely employment, edu-
cation, healthcare, social services and when accessing 
goods and services available to the general public – in 
the year before the survey, as well as whether or not 

they reported the most recent incident. Further spe-
cific questions were asked about such experiences at 
work (in the last five years), at school (before the age 
of 18) and when accessing healthcare, to gather more 
details about these particular areas of life. It should 
be noted that the instances recalled in the survey are 
those experienced and identified as discrimination by 
respondents, and were not necessarily judged as such 
by an administrative or judicial process.

To complement the data on perceptions and experi-
ences of discrimination, the next section of the survey 
asked respondents if they knew of laws forbidding 
discrimination against persons because of their sexual 
orientation or gender identity when applying for a job. 
Participants were also asked if they have seen pro-
grammes or awareness campaigns by the government 
or non-governmental organisations that address dis-
crimination against various groups, including against 
lesbian, gay and bisexual persons and against transgen-
der persons.

Drawing on these data, this chapter starts by examining 
respondents’ experiences of discrimination and harass-
ment on the grounds of sexual orientation. It analyses 
the results by age, LGBT group, income, openness and 
country of residence. It then presents data on discrimi-
nation in several areas of social life, namely employ-
ment, education, healthcare and social services, and in 
goods and services available to the public. Following 
on from this, the chapter analyses findings regarding 
respondents’ awareness of non-discrimination legis-
lation in the area of employment, and whether they 
have reported incidents of discrimination against them. 
Finally, data on respondents’ perceptions of discrimina-
tion are presented.

25

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

1�1�  Discrimination and 
harassment on the 
grounds of sexual 
orientation

Half of all respondents (47 %) say that they have felt 
personally discriminated against or harassed because 
of their sexual orientation in the year preceding the 
survey. Lesbian women and respondents in the young-
est age group (18–24 years old) are most likely to say 
they have felt discriminated against or harassed on 
the grounds of sexual orientation in the last 12 months 
(Figure 1).

Looking at the results by country shows important dif-
ferences in the percentages of respondents that said 
they have felt personally discriminated against or har-
assed in the last 12 months on the grounds of sexual 
orientation, ranging from around 30 % in Denmark and 
the Netherlands to around 60 % in Croatia and Lithu-
ania. In 10 EU Member States and Croatia, more than 
half of respondents have felt discriminated against or 
harassed in the past year on the basis of their sexual 
orientation (Figure 2).

A breakdown of the data by LGBT group indicates that 
respondents’ experience of discrimination or harass-
ment on the grounds of sexual orientation varies accord-
ing to their gender. A majority of all lesbian women 
respondents (55 %) say that they have felt personally 
discriminated against or harassed on the grounds of 

Figure 1: 

 Respondents who felt discriminated 
against or harassed on the grounds of 
sexual orientation in the last 
12 months (%)

NO 
53 

YES 
47 

Question: 

 C2. In the last 12 months, in the country where 
you live, have you personally felt discriminated 
against or harassed on the basis of one or more 
of the following grounds? – Answer: C. Sexual 
orientation.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

sexual orientation in the 12 months before the survey, 
compared with 45 % of all gay men. Similarly, more 
bisexual women (47 %) than bisexual men (36 %) have 
felt discriminated against or harassed on the basis of 
sexual orientation in the past year (Figure 2).

Figure 2: 

 Respondents who felt discriminated against or harassed on the grounds of sexual orientation in the 
last 12 months, by country and by LGBT group (%)

100 
90 
80 
70 
60 
50 
40 
30 
20 
10 
0 

30 31 33 35 35 36 38 38 41 44 44 45 46 47 48 48 48 51 51 52 53 53 54 54 56 57 60 61

47

55

45 47

46

36

NL 

DK 

LU 

SE 

BE 

CZ FI 

ES 

FR 

UK 

EE 

HU 

DE 

IE 

AT 

LV 

EL 

MT 

PT 

SK SI 

BG 

RO 

IT 

CY 

LT 

PL 

HR 

EU LGBT average 

Lesbian women 
Gay men 
Bisexual men 
Bisexual women 
Transgender 

Question: 

 C2. In the last 12 months, in the country where you live, have you personally felt discriminated against or harassed on the 
basis of one or more of the following grounds? – Answer : C. Sexual orientation.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

26

Discrimination: experiences, awareness, reporting and perceptions

“I came out as lesbian when I was 18. Negative comments 
and jokes were the rules of communication, and anyone 
who expressed a comment in favour of LGBT rights (or just 
respect) was marginalised and harassed. Discrimination for 
me has never meant violent physical attack, but gossiping, 
exclusion, jokes, psychological violence, inadequacy feeling, 
fear for myself and the people around me: partner, family, 
friends.” (Italy, lesbian, 30)

The results also vary substantially by age. Many more 
respondents aged 18–24 (57 % of all respondents in this 
age group) and 25–39 (45 % of all respondents of this 
age) have felt discriminated against or harassed on the 
grounds of sexual orientation in the previous year than 
their older peers. Nevertheless, over a quarter (27 %) of 
all respondents aged over 55 report having felt such dis-
crimination and harassment in the past year (Figure 3). 

The survey findings show a link between feeling dis-
criminated against or harassed on the basis of sexual 
orientation and respondents’ socioeconomic status. 
More respondents with lower incomes have felt dis-
criminated against or harassed on the grounds of sexual 
orientation in the previous 12 months than those with 
higher incomes. The same can be observed regarding 

Figure 3: 

 Respondents who felt discriminated 
against or harassed on the grounds of 
sexual orientation in the last 12 months, 
by age group (%)

18–24 years 

57 

25–39 years 

45 

40–54 years 

38 

55+ years 

27 

0

20

40

60

80

100

Question: 

 C2. In the last 12 months, in the country where you 
live, have you personally felt discriminated against 
or harassed on the basis of one or more of the 
following grounds? – Answer: C. Sexual orientation.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

employment status: those not in paid work are more 
likely to have felt discriminated against or harassed on 
the grounds of sexual orientation in the year before 
the survey than those in paid employment (Figure 4).

Figure 4: 

 Respondents who felt discriminated against or harassed on the grounds of sexual orientation in the 
last 12 months, by socioeconomic status (%)

Above highest quartile 

Between median and highest quartile 

Between lowest quartile and median 

42 

45 

47 

Under lowest quartile 

52 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Not in paid work, other

In paid work

48 

43 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Higher education

Less than higher education

45 

50 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Questions: 

 C2. In the last 12 months, in the country where you live, have you personally felt discriminated against or harassed on 
the basis of one or more of the following grounds? – Answer: C. Sexual orientation..

 H5. What is the highest level of education you have achieved? 1. No formal education. 2. Primary education. 3. Secondary 
education. 4. Post-secondary education other than college/university. 5. College/university/higher academic education. 6. Other.

 H6. Which of the following best describes your status? 1. In paid work (including on paternity or other temporary leave). 
2. In unpaid or voluntary work. 3. Unemployed. 4. Student. 5. Retired. 6. Otherwise not working (e.g. taking care of 
home, on a long sick leave, disabled).

 H17: Could you please indicate what your household’s net combined monthly income is – that is, after deductions for 
tax, social insurance, etc.? 1. Under lowest quartile. 2. Between lowest quartile and median. 3. Between median and 
highest quartile. 4. Above highest quartile.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

27

 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Overall, the percentage of all respondents who have 
felt discriminated against or harassed on the grounds 
of sexual orientation in the previous year does not vary 
considerably depending on how open respondents are 
about being LGBT. 

“If you remain in the closet, I don’t think there will be 
a concrete risk of being discriminated against or assaulted or 
harassed, even if you act a little effeminate.” (Italy, gay, 25)

Respondents have also felt personally discriminated 
against or harassed on other grounds in the 12 months 
before the survey, including gender (17 % of all respond-
ents), age (16 %), religion or belief (11 %), ethnic origin 
(7 %) and disability (4 %). Respondents often say that 
they have felt discriminated against or harassed on 
more than one ground.

“I feel that the discrimination I experience here in Denmark 
as a gay person from Austria is a combination of being 
discriminated against as a foreigner and as gay respectively, 
with the first aspect being dominant. It is hardly ever 
openly pronounced and works in the forms of excluding, 
backstabbing, avoiding.” (Denmark, gay, 42)

 “I was threatened with physical violence by a Dutch person 
because I am Turkish, Muslim and gay.” (Netherlands, gay, 39)

1�2�  Discrimination because 
of being LGBT in 
employment

EU-wide  protection  of  LGBT  people  against  dis-
crimination  is  well  established  in  the  area  of 
employment  and  occupation:  discrimination  on 
grounds  of  sexual  orientation  is  prohibited  by 
the  Employment  Equality  Directive  (Directive 
2000/78/EC)  and  the  Gender  Equality  Directive 
(recast) (Directive 2006/54/EC), as interpreted in 
light of the CJEU case law. It covers discrimination 
on the grounds of gender identity with respect to 
transgender persons who underwent, are under-
going or intend to undergo gender reassignment. 
EU Member States have a legal obligation to set 
up structures to combat discrimination and to pro-
mote  equal  treatment  in  employment,  by  trans-
posing this legislation.

The survey asked first about the situation in employ-
ment. Respondents were asked if they have felt per-
sonally discriminated against when looking for work 
or at work in the past year because of being LGBT. To 
develop  a  broader  understanding  of  LGBT  persons’ 
experiences at the workplace, respondents were also 
asked if they have been open about being LGBT at work, 
and if they have heard or seen negative comments or 
conduct towards LGBT people, or experienced general 
negative attitudes regarding LGBT at work, during the 
past five years.

Figure 5: 

 Respondents who felt discriminated against or harassed on the grounds of sexual orientation in the 
last 12 months, by openness about being LGBT (%)

Always open 

41 

Often open 

Rarely open 

Never open 

49 

53 

47 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Questions: 

 C2. In the last 12 months, in the country where you live, have you personally felt discriminated against or harassed on the 
basis of one or more of the following grounds?

 G3. To how many people among the following groups are you open about yourself being LGBT: to none, a few, most, all. 
A. Family members (other than your partner(s)). B. Friends. C. Neighbours. D. Work colleagues/schoolmates. E. Immediate 
superior/head of department. F. Customers, clients, etc. at work G. Medical staff/health care providers.

 The answers to the seven different contexts were calculated and averaged to divide respondents in the categories: very 
open, fairly open, rarely open, never open.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

28

 
 
Discrimination: experiences, awareness, reporting and perceptions

Respondents are more likely to say they have felt per-
sonally discriminated against because of being LGBT in 
employment in the year preceding the survey than in 
any other area of social life covered by the survey. One 
in five (19 %) of those respondents who was employed 
in the year preceding the survey said that they felt 
discriminated against at the workplace in the past year 
because of being LGBT. One in eight (13 %) of those 
who looked for a job in the 12 months leading up to the 
survey had felt discriminated against when looking for 
work in the last year because of being LGBT. 

“It’s difficult to keep your job in France once the employer 
knows that you are gay. You are immediately considered as 
fragile.” (France, gay, 33)

The percentage of respondents that has felt personally 
discriminated against at work or when looking for work 
in the past 12 months because of being LGBT varies 
markedly by LGBT group. Transgender respondents felt 
discriminated against in employment in the past year 
because of being LGBT more often than other respond-
ents, particularly when looking for a job. Almost one 
in three (30 %) of the transgender respondents who 
looked for a job in the year before the survey say they 
faced discrimination when looking for a job, more than 
twice the equivalent percentage of lesbian, gay and 
bisexual respondents. The more open they are about 
being transgender, the more likely they are to have 
experienced such discrimination in the year preceding 
the survey (Figure 6).

“Being openly gay, especially during the job-search process, 
greatly risks not getting a job or being considered for a job 
solely on grounds of sexual orientation. I often look for 
‘sexual orientation’ in the non-discrimination statements of 
companies I am interested in working at.” (Finland, gay, 40)

In addition, gay men and lesbian women respondents 
are slightly more likely than bisexual respondents to 
have felt discriminated against. Of those respondents 
who were employed in the past 12 months, one in five 
lesbian (20 %) and gay (19 %) respondents has felt 
discriminated against at work in the past year, com-
pared with one in seven bisexual women (16 %) and 
men (15 %) (Figure 7). Similarly, among respondents 
who looked for a job in the year preceding the survey, 
lesbian women (12 %) were twice as likely as bisexual 
women (6 %) to have felt discriminated against in the 
last year because of being LGBT (Figure 6). 

Country-level data also show a wide variety of experi-
ence in different EU Member States and Croatia. The 
percentage of those respondents who were employed 
in the last 12 months that felt personally discriminated 
against  at  work  in  the  last  year  because  of  being 
LGBT ranges from 29 % in Cyprus to 11 % in Denmark 
(Figure 7). 

“The job where I transitioned I was fully out as transgender. 
I was dismissed from my job one week before I had a 
hysterectomy. I successfully sued them on the basis of 
gender discrimination. In subsequent jobs, I have not been 
out at work because of this experience.” (United Kingdom, 
transgender (transsexual), gay, 56)

Figure 6: 

 Respondents who felt discriminated against in the last 12 months when looking for a job or at work 
because of being LGBT, by LGBT group (%)

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

13 

19 

12 

12 

20 

19 

6 

16 

9 

15 

30 

23 

10 

0 

20 

30 

40 

50 

Looking for a job 

60 
At work 

70 

80 

90 

100

Question: 

 C4. During the last 12 months, have you personally felt discriminated against because of being [category on the basis of A3 
or A4] in any of the following situations: A. When looking for a job; B. At work.

Base: 

Source: 

EU LGBT survey respondents who were looking for a job or who worked/were employed in the past 12 months.

FRA, EU LGBT survey, 2012

29

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 7: 

 Respondents who felt discriminated against in the last 12 months when at work because of being 
LGBT, by country and by LGBT group (%)

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

11 

12 

13 

14 

15 

15 

16 

17 

17 

18 

18 

18 

19 

19 

19 

19 

20 

20 

20 

20 

21 

23 

23 

23 

24 

26 

27 

29 

19 

20 

19 

16 

15 

23 

DK 

NL 

CZ 

BE FI SI 

ES 

SE 

HU 

PT 

LU 

IE 

UK 

SK 

IT 

EL 

AT 

MT 

FR 

DE 

RO 

BG 

PL 

EE 

HR 

LT 

LV 

CY 

EU LGBT average 

Lesbian women 
Gay men 
Bisexual men 
Bisexual women 
Transgender 

Question: 

 C4. During the last 12 months, have you personally felt discriminated against because of being [category on the basis  
of A3 or A4] in any of the following situations - Answer: B. At work.

Base: 

Source: 

EU LGBT survey respondents who were employed in the past 12 months.

FRA, EU LGBT survey, 2012

1�2�1� 

 Openness about being LGBT 
at work

Previous research indicates that being open about or 
hiding one’s sexual orientation or gender identity may 
be closely linked to experiences and expectations of 
discrimination. Those who hide or disguise at work the 
fact that they are LGBT may avoid experiencing discrim-
ination on this basis. Moreover, perceiving a workplace 
environment as intolerant towards LGBT people may 
prompt respondents to hide their sexual orientation or 
gender identity while at work. 

On average, almost a quarter (23 %) of those respond-
ents who have had a paid job in the five years before 
the survey indicate they are always open about being 
LGBT at work. However, a third (33 %) of respondents 
who were employed in the previous five years were 
never open about being LGBT.

The results show that the extent to which respondents 
are open about or hide being LGBT at work varies mark-
edly by LGBT group. Of those respondents who had a 
paid job in the past five years, lesbian women (50 %) 
and gay men (48 %) respondents are most likely to be 

Table 2:  Being open about being LGBT at work in the last five years, by LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender 

Total numbers

Never 

Rarely 

Often

Always 

77,146

12,708

49,492

4,925

5,949

4,072

33

25

30

41

64

49

23

25

22

31

21

21

20

26

21

18

8

13

23

24

27

9

6

17

Question: 

C8A. During your employment in the last 5 years, have you ... – Answer A: Been open about you being [specific LGBT group] at work?

Base: 

Source: 

EU LGBT survey respondents who had a paid job in the last five years and did not answer “does not apply”.

FRA, EU LGBT survey, 2012

30

Discrimination: experiences, awareness, reporting and perceptions

often and always open about being LGBT at work. Just 
30 % of transgender respondents who were employed 
in the past five years say they were often or always 
open about being LGBT at work during this period. An 
even smaller percentage of bisexual women (27 %) and 
bisexual men (14 %) say they are often or always open.

“I am pretty open about my orientation among friends (not 
only the closest ones); however, I am EXTREMELY careful 
about disclosing this to any work or college colleagues 
(I need to really, really trust them in order to confide). The 
reason is this: I work as a freelance artist and in this line of 
work the most frequent way of getting a gig or contract is by 
word of mouth.” (Croatia, gay, 31)

Besides being open about being LGBT in the workplace, 
the survey also asked about the opposite tendency, 
namely whether respondents have specifically hidden 
or disguised being LGBT at work. Three in 10 (28 %) of all 
respondents who were employed in the past five years 
say that they always hid or disguised being LGBT at work 
in this period, 20 % say that they often hide or disguise 
being LGBT, 24 % do this rarely and 29 % never hide that 
they are LGBT at work. These results demonstrate that, 
in general, the two indicators are fairly complementary 
– for example, of those respondents who were employed 
in the last five years, 33 % are never open about being 
LGBT and 28 % always disguise or hide being LGBT. 

1�2�2�   Experience of negative 

comments, conduct or attitudes 
at work because of being LGBT

Prevailing attitudes and conduct at the workplace are 
also an indicator of how inclusive the environment is 
for LGBT people, and whether or not they are likely to 
experience discrimination on the basis of being LGBT. 
To gain further information about the workplaces at 
which respondents were employed, the survey asked 
if they have experienced negative comments or con-
duct  towards  themselves  or  a  colleague  perceived 
as being LGBT, or general negative attitudes against 

people because they are LGBT. Respondents were also 
asked if they have experienced unequal treatment with 
respect to employment conditions or benefits because 
they have a same-sex partner.

The attitudes and conduct of work colleagues can also 
be linked to openness: a workplace that displays signs 
of hostility towards LGBT people, for example work-
mates making negative comments on the basis of a 
person’s sexual orientation to other colleagues or cli-
ents, may prompt LGBT persons to hide or disguise their 
LGBT identity. 

“I have also heard my superiors in several work places speak 
about gays or lesbians in a derogatory manner. This has 
decreased my respect towards them, and in one case made 
me reconsider re-applying for the company.” 

(Finland, lesbian, 31)

Among those respondents who had a paid job during 
the past five years, almost half (44 %) have experi-
enced negative comments or conduct at work because 
of being LGBT. Of these respondents, those identifying 
as transgender are most likely to have experienced 
negative comments or conduct at work because of 
being LGBT: 55 % have experienced such hostility and 
almost a fifth (19 %) say this behaviour happens often 
or always. In addition, two thirds of the respondents 
who were employed in the last five years saw or heard 
negative comments or conduct because a colleague 
was perceived to be LGBT (69 %) and experienced a 
general negative attitude towards LGBT people at work 
(68 %) during their employment (Figure 8). 

“Although I have been together with my partner for over 
16 years, and in a registered partnership in Austria for over 
two years, we are still not recognised by my employer 
because my country of origin (Malta) does not recognise gay 
unions. This results in constant discrimination: no benefits 
whatsoever (allowances, pension or other benefits), and not 
even access to the office etc.” (Austria, gay, 49)

Table 3:  Hiding or disguising being LGBT at work in the last five years, by LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender 

Total numbers

Never 

Rarely 

Often

Always 

76,971

12,702

49,421

4,872

5,971

4,005

29

27

32

22

13

21

24

29

25

22

12

15

20

24

18

27

17

19

28

20

25

29

58

45

Question: 

 C8A. During your employment in the last 5 years, have you ... – Answer: B: Hidden or disguised that you are [specific LGBT 
group] at work?

Base: 

Source: 

EU LGBT survey respondents who had a paid job in the last five years and did not answer “does not apply”.

FRA, EU LGBT survey, 2012

31

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Far fewer (25 %) of the respondents who had a paid job 
during the past five years say they have experienced 
unequal treatment with respect to employment condi-
tions or benefits in this period because they have a same-
sex partner. In this respect, the experience of transgender 
respondents is notably different from that of lesbian, 
gay and bisexual respondents. Of those transgender 

respondents who have been employed in the past five 
years, around a third (35 %) have experienced this type of 
unequal treatment at work during this period, compared 
with nearer one in four lesbian (26 %), gay (24 %) and 
bisexual (20 % of bisexual women and 23 % of bisexual 
men) respondents (Figure 8).

Figure 8: 

 Respondents who said they had experienced negative comments, attitudes or unequal treatment at 
work in the preceding five years because of being LGBT, by LGBT group (%)

Experienced negative comments or conduct at work because of being LGBT  

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

0 

56 

54 

56 

58 

66 

35 

37 

36 

35 

25 

8 

8 

8 

7 

1 

1 

1 

1 

7 

2 

45 

20
Never 

40
Rarely 

36 

60
Often 

15 

4 

100

80
Always 

Heard or seen negative comments or conduct because a colleague is perceived to be LGBT 

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

32 

29 

34 

26 

26 

25 

40 

41 

40 

41 

39 

39 

0 

20
Never 

40
Rarely 

60
Often 

24 

25 

21 

29 

29 

29 

80
Always 

Experienced a general negative attitude at work against people because they are LGBT 

EU LGBT average 
Lesbian women 
Gay men 
Bisexual women 
Bisexual men 
Transgender 

33 

29 

36 

27 

29 

25 

0 

20
Never 

40 

42 

39 

41 

37 

38 

40
Rarely 

60
Often 

23 

25 

21 

28 

28 

29 

80
Always 

Experienced unequal treatment because you have a same-sex partner 

5 

4 

4 

5 

7 

7 

100

5 

4 

5 

5 

7 

8 

100

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

75 

74 

76 

79 

77 

15 

15 

15 

13 

15 

7 

7 

6 

3 

4 

3 

5 

2 

5 

3 

65 

19 

11 

5 

0 

20
Never 

40
Rarely 

60
Often 

80
Always 

100

Question: 

Base: 

Source: 

 C8A. During your employment in the last 5 years, have you … 
 C. Experienced negative comments or conduct at work because of you being LGBT? D. Heard or seen negative comments 
or conduct because a colleague is perceived to be lesbian, gay, bisexual and/or transgender? E. Experienced a general 
negative attitude at work against people because they are lesbian, gay, bisexual and/or transgender? F. Experienced 
unequal treatment with respect to employment conditions or benefits (for example leave, pension, etc.) because you have 
a same-sex partner? Never; rarely; often; always.

EU LGBT survey respondents who felt the question applied to them and were not students.

FRA, EU LGBT survey, 2012

32

Discrimination: experiences, awareness, reporting and perceptions

“I worked in a bank for 24 years and I was constantly 
discriminated against by directors who felt that, being 
honest about my sexuality, I should not be promoted, 
because I could not command respect. Once a new employee 
asked to have his desk placed at ‘a reasonable distance‘ from 
mine, because he feared that I might assault him sexually. 
His request was considered reasonable and my desk was 
moved. When I was finally promoted, I was ordered to be 
secretive about my sexuality.” (Greece, gay, 53)

Respondents’ openness about being LGBT at work is 
related to the negative comments, conduct and attitudes 
towards LGBT people they have experienced, although 
this relationship is not consistent. Of those respond-
ents who have been employed in the last five years, 
those who are open about being LGBT at work are more 
likely to have experienced negative comments at work 

because of being LGBT during the last five years (44 %) 
than those who hide being LGBT (33 %) (Figure 9). 

Conversely, those hiding their LGBT identity at work 
are considerably more likely than the respondents who 
are most open at work to have heard or seen negative 
comments or conduct because a colleague is perceived 
to be LGBT, or to have experienced a general negative 
attitude towards LGBT people at work during the past 
five years. For example, of the respondents who have 
been employed in the previous five years, around three 
quarters (80 %) of those who hide being LGBT at work 
have heard or seen, during the previous five years, 
negative comments or conduct because a colleague 
was perceived to be LGBT, compared with more than 
half (53 %) of the most open respondents (Figure 9). 

Figure 9: 

 Respondents who said they had experienced negative comments, attitudes or unequal treatment at 
work in the preceding five years because of being LGBT, by openness at work (%)

Experienced negative comments or conduct at work because of being LGBT  

Always  open 
Selectively open 
Hide LGBT identity 

56 

51 

67 

0 

20

40

60

37 

39 

24 

80

Heard or seen negative comments or conduct because a colleague is perceived to be LGBT 

Always  open 

47 

41 

Selectively open 

30 

Hide LGBT identity 

21 

0 

20

36 

40

42 

24 

35 

60

80

100

6 

9 

7 

1 

1 

2 

100

11 

1 

4 

9 

Experienced a general negative attitude at work against people because they are LGBT 

Always  open 

51 

Selectively open 

30 

44 

Hide LGBT identity 

20 

0 

20

33 

40

39 

36 

9 

1 

23 

4 

11 

60

80

100

Experienced unequal treatment because you have a same-sex partner 

Always  open 

Selectively open 

Hide LGBT identity 

79 

72 

76 

14 

5 

3 

18 

7 

3 

12 

7 

5 

0 

20

Never 

40

Rarely 

60

Often 

80

Always 

100

Question: 

 C8A. During your employment in the last 5 years, have you: A. Been open about you being [category on the basis  
of A3 or A4] at work; B. Hidden or disguised that you are [category on the basis of A3 or A4] at work? (Computed variable)

Note: 

Base: 

Source: 

C8A.  During your employment in the last 5 years, have you … ‘C; D; E; F’?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

EU LGBT survey respondents who felt the question applied to them and were not students.

FRA, EU LGBT survey, 2012

33

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

1�3�  Discrimination because 

of being LGBT in areas of 
life outside employment

EU protection for LGBT people against discrimina-
tion beyond the employment sector in areas such 
as  education,  access  to  healthcare,  housing  and 
other  services  available  to  the  public  is  limited. 
Although  existing  law  implementing  the  princi-
ple of equal treatment between women and men 
is  to  a  certain  extent  relevant  to  discrimination 
on  grounds  of  gender  identity,  there  is  no  legal 
framework  when  it  comes  to  discrimination  on 
grounds of sexual orientation in any area outside 
employment.

This survey measures LGBT persons’ experiences of 
discrimination in some of these areas – namely educa-
tion, healthcare and social services, and when accessing 
goods and services available to the public, specifically 
when looking for a house or apartment, at a café, res-
taurant, bar or club, at a shop, in a bank or insurance 
company, and at a sports or fitness club. Such discrimi-
nation forms the object of a European Commission pro-
posal for a directive on implementing the principle of 
equal treatment beyond employment (‘the Horizontal 
Directive’).

Among those respondents who have looked for a house 
or apartment and/or accessed healthcare services and/
or attended school or university themselves or are the 
parent of a child at school or university and/or visited 
a café, restaurant bar or nightclub and/or visited a shop 
and/or visited a bank or insurance company and/or 
exercised at a sport or fitness club, a third (32 %) have 
felt personally discriminated against in at least one of 
these situations in the last year because of being LGBT. 

Experiences of discrimination in these situations are 
linked to gender: of those respondents who have been 
employed, in education or have accessed these goods 
and services in the year before the survey, lesbian 
women and bisexual women have felt personally dis-
criminated against in one of these situations in the last 
year because of being LGBT in higher frequency than 
gay men or bisexual men. 

Furthermore, there are marked variations by country. 
Respondents who have been employed or in education, 
or who have accessed one of the mentioned goods and 
services, in the last year are most likely to say they 
have felt discriminated against in one or more of these 
situations in the past 12 months because of being LGBT 
in Lithuania (42 %), Croatia (41 %), Bulgaria (40 %) and 
Romania (39 %). The fewest respondents say that they 
have felt discriminated against in these situations in 

Figure 10:   Respondents who had felt discriminated against in the previous 12 months in areas other than 

employment because of being LGBT, by country and by LGBT group (%)

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

20  22  26  26  27  27  27  27  29  30  31  32  32  32  33  33  33  33  34  34  35  35  35  36  39  40  41  42 

32 

39

34 

38 

29

24 

NL 

DK 

BE FI 

CZ 

ES 

LU 

SE SI 

EE 

FR 

DE 

LV 

UK 

CY 

HU 

AT 

AK 

EL 

IT 

IE 

MT 

PL 

PT 

RO 

LT 

HR 

BG 

EU LGBT average 

Bisexual men 
Gay men 
Bisexual women 
Lesbian women 
Transgender 

Question: 

Note: 

Base: 

Source: 

 C4. During the last 12 months, have you personally felt discriminated against because of being [category on the basis of 
A3 or A4] in any of the following situations: C. When looking for a house or apartment to rent or buy; D. By healthcare 
personnel; E. By social service personnel; F. By school/university personnel; G. At a café, restaurant, bar or nightclub; 
H. At a shop; I. In a bank or insurance company; J. At a sport or fitness club?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

EU LGBT survey respondents who accessed at least one of services listed in the past 12 months.

FRA, EU LGBT survey, 2012

34

 
             
   
 
   
Discrimination: experiences, awareness, reporting and perceptions

the last year because of being LGBT in the Netherlands 
(20 %) and Denmark (22 %) (Figure 10). 

The following sections present data on discrimination 
in these various areas of life in the year preceding the 
survey because of being LGBT. Each accompanying figure 
summarises the findings regarding the proportion of 
respondents, who have used each service in the past 12 
months, who have felt personally discriminated against 
in each situation in the last year because of being LGBT. 

1�3�1�  Education

The school environment is an important social space 
where perceptions and attitudes are created and behav-
iours are learnt, adopted and consolidated. As such, it is 
a determining setting for deciding whether to be open 
about or to disguise being LGBT. Respondents who were 
in education themselves or who were the parents of 
children at school or university at the time of the survey 
were asked about whether they have felt personally 
discriminated against in the past year because of being 
LGBT by school or university personnel.

“I am a teacher in France, where homosexuality prevails 
as a big taboo in the field of education. Nobody ever, or 
hardly ever, talks about it, either in the staffroom or with the 
students (especially in the suburbs), although I’ve had the 
opportunity to see that in this environment, as elsewhere, 
there are gay teachers!” (Germany, lesbian, 44)

Of those respondents who have attended school or 
university or are the parents of a child at school or 
university, almost a fifth (18 %) have felt personally 
discriminated against by school or university personnel 
in the past 12 months because of being LGBT (Figure 11).

Although the results by LGBT group are broadly consist-
ent, the country-level data are marked by variation in 
how many respondents have felt personally discrimi-
nated against by school or university personnel in the 
previous year because of being LGBT. Respondents in 
Lithuania (31 %), Romania (30 %) and Portugal (29 %) 
are around three times more likely to say they have felt 
discriminated against in this way in the last year than 
those living in the Netherlands (8 %), Denmark (10 %) 
and Belgium (11 %) (Figure 11). 

“My [university] colleagues hate people with different sexual 
orientation […]. In a lecture discussing the demographic 
collapse in Bulgaria the teacher said that ‘the cause for the 
demographic collapse is [same-sex relationships]: birth-rates 
decline as people do not have children and there are not 
enough heterosexual marriages’. This made me realise that I 
had better be silent.” (Bulgaria, lesbian, 24)

Openness about being LGBT at school

As most respondents were no longer in education at 
the time they participated in the survey, they could not 
provide information regarding current experiences of 
discrimination. To paint a fuller picture of being LGBT 

Figure 11:   Respondents who felt discriminated against by school or university personnel in the last 12 months 

because of being LGBT, by country and by LGBT group (%)

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

8  10  11  13  13  13  15  15  15  15  16  16  17  19  19  19  19  21  23  23  23  24  24  24  25 
BG 
CZ 
EL 
NL 
DK 

ES FI SI 

HR 

UK 

AT 

DE 

CY 

HU 

BE 

LU 

SK 

FR 

LV 

PL 

SE 

EE 

IT 

IE 

MT 

29  30  31 

18 

20  17  18  14 

20 

LT 

PT 

RO 

EU LGBT average 

Transgender 
Bisexual men 
Gay men 
Bisexual women 
Lesbian women 

Question: 

 C4. During the last 12 months, have you personally felt discriminated against because of being [category on the basis of A3 
or A4] in any of the following situations: Answer: F. By school/university personnel?

Note: 

Base: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who have attended school/university themselves or whose child/children was/were in 
school/at university in the past 12 months.

Source: 

FRA, EU LGBT survey, 2012

35

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

at school, survey participants were asked if they were 
open  about  being  LGBT  when  they  were  at  school 
before the age of 18.

The overwhelming majority of all respondents – two out 
of three (67 %) – say they often or always hid their LGBT 
identity at school (Figure 12). Only 4 % of respondents 
were consistently open about being LGBT when they 
were at school.

“I still remember being absolutely horrified by the possibility 
of people in my elementary and secondary school thinking I 
was ‘a fag’. I still experience consequences of those years of 
nervous tension caused by constant self-control and self-
censorship.” (Poland, gay, 29)

The frequency with which respondents hid their LGBT 
identity varies by gender: gay and bisexual men are 
much less likely to be open about being LGBT than les-
bian and bisexual women respondents.

“My fear of prejudice stems mainly from having been bullied 
at school for being perceived as gay before puberty. This 
has led me to draw a line between my private and my 
professional life. As a result, my behaviour at work involves a 
lot of self-censorship and a certain guarded manner. I believe 
that secondary school is the crucible in which attitudes to 
diversity and sexual orientation are moulded. If we want to 
ingrain acceptance and tolerance in our societies, we should 
start with fostering positive attitudes in schools.” 

(Germany, gay, 31)

Notably, however, there is little difference in the pro-
portion of respondents from each EU Member State 
and Croatia who say they always or often disguised 
the fact that they were LGBT during their schooling 
before the age of 18: this was true for a large majority 
(between six and eight out of 10 respondents) in each 
country covered by the survey. Furthermore, the data 
show that in Finland and Spain, where comparatively 
few respondents have felt personally discriminated 
against by school or university personnel in the previ-
ous year because of being LGBT, an average proportion 
of respondents always or often hid or disguised being 
LGBT when at school before the age of 18.

Experience of negative comments, conduct 
or attitudes at school because of being LGBT

The experience of LGBT persons at school is also shaped 
by  whether  or  not  they  are  themselves  or  witness 
others being targets of hostility because they are, or 
are perceived to be, LGBT. Seeing or hearing such com-
ments can also have an impact on openness: children 
who witness such hostility frequently may be less likely 
to be open about being LGBT at school, for example. 
To paint a fuller picture of respondents’ experiences at 
school, the questionnaire asked if, during their school-
ing before the age of 18, participants had experienced 
negative comments or conduct at school because they 
were LGBT, and if they had heard or seen negative 

Figure 12:   Respondents ‘always’ or ‘often’ hiding or disguising being LGBT during schooling before  

the age of 18, by country and by LGBT group (%)

100 

90 

80 

70 

60 

50 

40 

30 

20 

10 

0 

59

59

60

62

63

63

63

64

57

58

65

66

66

66

66

67

68

68

68

69

71

72

72

73

76

76

77

81

72

73

70

67

54

46

CZ 

SK 

SE FI 

PT 

PL 

DK 

BE 

NL 

MT 

LU 

ES 

FR 

HU 

HR 

UK SI 

DE 

AT 

IT 

BG 

EE 

IE 

RO 

CY 

EL 

LT 

LV 

EU LGBTaverage 

Bisexual men 
Transgender 
Bisexual women 
Lesbian women 
Gay men 

Question: 

 C9. During your schooling before the age of 18, did you: A. Openly talk about you being [category on the basis of A3 or A4] 
at school; B. Hide or disguise that you were [category on the basis of A3 or A4] at school?

Note: 

Base: 

Source: 

36

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Discrimination: experiences, awareness, reporting and perceptions

comments or conduct because a schoolmate or teacher 
was perceived to be LGBT.

Experience of such hostility at school is consistently 
high across both the LGBT groups and the countries 
covered by the survey.

Across all LGBT groups, at least six in 10 of all respond-
ents have, during their schooling before the age of 18, 
always, often or rarely experienced negative comments 
or conduct at school because they are LGBT. Gay men, 
in particular, recall being the victims of such negative 
comments or conduct because they are LGBT: three 

quarters (74 %) of all gay men respondents say they 
always, often or rarely experienced this type of hostility 
when at school (Figure 13). 

Moreover, nine in 10 of all respondents in each LGBT group 
have, at least rarely, experienced negative comments 
or conduct because a schoolmate was perceived to be 
LGBT when at school. Two thirds of all respondents say 
such behaviour occurred often or always at their school. 
In addition, around three quarters of respondents (72 %) 
recall hearing or seeing negative comments or conduct 
during  their  schooling  before  the  age  of  18  because 
a teacher was perceived to be LGBT (Figure 14). 

Figure 13:   Respondents who had rarely, often or always experienced, heard or seen negative comments or 

conduct at school because they were, or a schoolmate or teacher was, perceived to be LGBT,  
by LGBT group (%)

Experienced negative comments or conduct at school because of being LGBT 

EU LGBT average 

Lesbian women 

32 

38 

30 

34 

Gay men 

27 

30 

Bisexual women 

Bisexual men 

Transgender 

0 

44 

48 

38 

20 

34 

25 

60 

24 

40 

28 

31 

23 

21 

18 

27 

80 

10 

6 

13 

4 

7 

11 

100 

Heard or seen negative comments or conduct because a schoolmate/peer was perceived to be LGBT  

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

9 

10 

8 

9 

11 

10 

0 

24 

27 

22 

25 

24 

22 

20 

49 

48 

49 

51 

47 

47 

19 

14 

20 

15 

19 

21 

40 

60 

80 

100 

Heard or seen negative comments or conduct because a teacher was perceived to be LGBT 

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

28 

27 

29 

25 

29 

26 

0 

20 

Never 

30 

30 

30 

30 

30 

29 

40 

Rarely 

31 

33 

30 

36 

29 

32 

11 

10 

12 

10 

12 

13 

60 

Often 

80 

Always 

100 

Question: 

C9. During your schooling before the age of 18, did you:

C. Experience negative comments or conduct at school because of you being LGBT?

D. Hear or see negative comments or conduct because a schoolmate/peer was perceived to be LGBT?

E. Hear or see negative comments or conduct because a teacher was perceived to be LGBT?

Base: 

Source: 

EU LGBT survey respondents who felt the question applied to them.

FRA, EU LGBT survey, 2012

37

 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

In contrast to most other findings, the survey results show 
consistent patterns of experience of negative comments 
or conduct at school across all EU Member States and 
Croatia. In all countries, significant majorities of respond-
ents experienced, or heard or saw, such hostility always, 
often or rarely when at school before the age of 18. For 
example, even in those countries where comparatively 
few respondents heard or saw negative comments or 
conduct at school because a schoolmate was perceived 
to be LGBT, at least eight in 10 respondents encountered 
such behaviour always, often or rarely while at school.

Furthermore, data for those countries – such as Den-
mark,  Luxembourg  and  the  Netherlands  –  in  which 
comparatively  few  respondents  say  they  have  felt 
personally discriminated against or harassed on the 

grounds of sexual orientation in the previous year show 
average or above average results for levels of hostility 
at school.

In addition, the results indicate a link between experi-
ences of negative comments or conduct at school and 
openness at school. Overall, those who hid or disguised 
being LGBT during their schooling before the age of 18 
were less likely than those who were open to experi-
ence negative comments or conduct at school because 
of being LGBT. Moreover, those who hid or disguised 
being LGBT at school were much more likely than those 
who openly talked about being LGBT at school to hear 
or see negative comments or conduct because a school-
mate was perceived to be LGBT. Hiding one’s LGBT 
identity at school therefore appears to be reinforced 

Figure 14:   Respondents who had rarely, often or always experienced, heard or seen negative comments or 

conduct at school because they were, or a schoolmate or teacher was, perceived to be LGBT, 
by country (%)

Negative comments or conduct at school 
because of being LGBT

Negative comments because a schoolmate
was perceived to be LGBT 

Negative comments because a teacher 
was perceived to be LGBT

EU LGBT average
UK 
CY 
EL 
IE 
BG 
ES 
PT 
SK 
LU 
HR 
BE 
IT 
FI 
FR 
SE 
LT 
MT 
CZ 
DE 
DK 
NL 
PL 
RO 
EE 
SI 
AT 
HU 
LV 

68 

76 
75 
75 
72 
72 
70 
70 
70 
69 
69 
69 
69 
68 
67 
67 
67 
66 
66 
65 
64 
64 
61 
61 
61 
61 
60 
60 
58 

EU LGBT average 
CY 
EL 
BG 
UK 
PT 
IE 
IT 
HR 
LU 
MT 
ES 
PL 
FR 
HU 
DE 
BE 
FI 
AT 
SE 
RO 
LT 
NL 
SI 
SK 
EE 
DK 
CZ 
LV 

91 
97 
96 
95 
95 
94 
93 
93 
93 
93 
92 
91 
91 
90 
90 
90 
90 
90 
89 
89 
88 
88 
88 
88 
86 
85 
84 
83 
83 

EU LGBT average 
CY 
PT 
UK 
EL 
NL 
MT 
IE 
LU 
BE 
ES 
BG 
HR 
FR 
DE 
IT 
RO 
PL 
SE 
FI 
AT 
HU 
LV 
SI 
DK 
SK 
LT 
EE 
CZ 

72 

86 
82 
81 
81 
80 
79 
78 
77 
76 
75 
75 
72 
71 
70 
70 
70 
68 
67 
67 
67 
66 
62 
62 
62 
61 
58 
56 
52 

0 

50 

100 

0 

50 

100 

0 

50 

100 

Question: 

C9. During your schooling before the age of 18, did you:

C. Experience negative comments or conduct at school because of you being LGBT?

D. Hear or see negative comments or conduct because a schoolmate/peer was perceived to be LGBT?

E. Hear or see negative comments or conduct because a teacher was perceived to be LGBT?

Base: 

Source: 

EU LGBT survey respondents who felt the question applied to them.

FRA, EU LGBT survey, 2012

38

 
 
 
Discrimination: experiences, awareness, reporting and perceptions

as a strategy for avoiding negative comments or con-
duct in a school environment perceived as hostile and 
intolerant.

discriminated against by healthcare (19 %) or social ser-
vices (17 %) personnel in the year before the survey 
(Figure 15).

1�3�2�   Discrimination because of being 

LGBT in healthcare and social 
services

Access  to  healthcare  is  necessary  to  guarantee  an 
adequate quality of life, not only to alleviate present 
suffering, but also to ensure good health in the long 
run. Prejudicial attitudes among health professionals 
and inherent heteronormativity in health services can 
deter LGBT persons from accessing medical care. This is 
especially worrying where it leads to higher incidences 
of ill-health. To collect reliable and comparable informa-
tion on the situation of discrimination in healthcare and 
social services, respondents who accessed healthcare 
or social services in the year prior to the survey were 
asked if they felt personally discriminated against by 
healthcare or social service personnel in the previous 
12 months because of being LGBT.

There  was  considerable  country-level  variation. 
Whereas a fifth of lesbian respondents in Sweden and 
the United Kingdom who accessed healthcare services 
in the past year felt personally discriminated against 
because of being LGBT in the last 12 months, the same 
was true of only 5 % of equivalent respondents in 
Bulgaria, Cyprus, Luxembourg, the Netherlands and 
Slovenia.

“The most alarming discrimination experienced is in health. 
[…] It is alarming that medical staff have absolutely no 
awareness about LGBT needs, not even gynecologists. My 
example is nothing unusual I think; only that people are 
too embarrassed to reveal their experience. Homophobic 
comments by doctors during minor procedures, jokes, 
comments. Most of my lesbian friends who are in their 30s 
and 40s do not go to preventive mammogram screenings at 
all, regardless of all the campaigns in the media, not to have 
to reveal their orientation.” (Czech Republic, lesbian, 30)

One in 10 respondents (10 %) who accessed healthcare 
services and one in 12 (8 %) who accessed social ser-
vices in the 12 months before the survey felt person-
ally discriminated against by healthcare personnel or 
by social services personnel respectively in the previ-
ous year because of being LGBT. Among transgender 
respondents who accessed healthcare or social ser-
vices in the last 12 months, the level of discrimination 
was twice as high: almost one in five say they were 

To gather further information about experiences of 
accessing healthcare more generally, and over a longer 
time period, respondents were asked if they had ever 
experienced any of the following situations when using 
or trying to access healthcare services: difficulty in 
gaining access to healthcare; having to change gen-
eral practitioner or other specialist on account of their 
negative reaction; receiving unequal treatment when 
dealing with medical staff; forgoing treatment for fear 

Figure 15:   Respondents who had felt discriminated against by healthcare or social service personnel in the 

preceding 12 months because of being LGBT, by LGBT group (%)

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

10 
8 

13 

9 

9 

7 

10 

6 

8 
7 

Transgender 

19 

17 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Health 

Social services 

Question: 

 C4. During the last 12 months, have you personally felt discriminated against because of being [category on the basis  
of A3 or A4] in any of the following situations: D. By healthcare personnel; E. By social service personnel (e.g. a 
receptionist, nurse or doctor)?

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

EU LGBT survey respondents who accessed healthcare or social services in the past 12 months.

FRA, EU LGBT survey, 2012

39

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

of discrimination or intolerant reactions; specific needs 
ignored (not taken into account); inappropriate curios-
ity; pressure or being forced to undergo any medical or 
psychological test.

healthcare. In particular, bisexual men and women and 
transgender respondents who are open to medical staff 
and healthcare providers are at least 50 % more likely 
to have experienced such problems than those who 
are not open.

“I am a general practitioner in Paris. I see too many lesbians 
who have no gynecological follow-up! [...] My story took 
place in Paris in 2005. I consulted a gynecologist for my 
annual checkup, and told him that I was a lesbian. His answer 
was: ‘We always wonder who plays the man and who plays 
the woman’! I NEVER returned to his medical practice!”

(France, lesbian, 45)

“I mostly suffer from the fact that my rights are not equal to 
those of heterosexual women, in particular in the healthcare 
system. In particular, a prerequisite for applying for support 
from the ‘In-vitro’ fund is to be in a heterosexual relationship. 
Why?” (Bulgaria, lesbian, 32)

One in seven (14 %) of all respondents say they have 
experienced inappropriate curiosity and 8 % that they 
have had their specific needs ignored. The equivalent 
figures rise respectively to 21 % and 17 % among all 
transgender participants (Figure 16). In addition, lesbian 
women respondents are more likely than other LGBT 
groups to say that have experienced one or more of 
these situations. 

The survey results bear out a link between openness 
and negative experiences when using or trying to access 
healthcare services as an LGBT person. Respondents 
who are open to medical staff and healthcare provid-
ers about being LGBT are more likely than those who 
hide their LGBT identity to say they have experienced 
one of these situations when using or trying to access 

1�3�3�   Discrimination because of being 

LGBT in other goods and services 
available to the public

To get a broader picture of the discrimination LGBT 
people may face in their daily lives, the survey consid-
ered discrimination because of being LGBT in access-
ing various goods and services available to the public, 
namely when looking for a house or apartment to rent 
or buy; visiting a café, restaurant, bar or nightclub; vis-
iting a shop; visiting a bank or insurance company; or 
exercising at a sport or fitness club.

As in other areas of life, openness and avoidance behav-
iour may be closely linked to discrimination. Some LGBT 
people could, for example, hide their sexual orientation 
or gender identity when using particular services: the 

Figure 16:   Transgender persons and lesbian women respondents who have ever experienced any of the 

following situations when using or trying to access healthcare services as an LGBT person, 
by situation (%)

Inappropriate curiosity 

Speciﬁc needs ignored (not taken into account) 

21 

16 

17 

12 

Pressure or being forced to undergo 
any medical or psychological test 

15 

7 

Foregoing treatment for fear 
of discrimination or intolerant reactions 

14 

6 

Having to change general practitioners
due to negative reaction 

12 

6 

Difﬁculty in gaining access to healthcare 

12 

3 

Receiving unequal treatment 
when dealing with medical staff 

2 

11 

0 

10 

20 

30 

40 

50 

60 

70 

80 

90 

100 

Transgender 

Lesbian women 

Question: 

 C10. Have you ever experienced any of the following situations when using or trying to access healthcare services as a 
[category on the basis of A3 or A4] person?

Note: 

Base: 

Source: 

40

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

EU LGBT survey lesbian women and transgender respondents.

FRA, EU LGBT survey, 2012

relative ‘invisibility’ of this group when using these ser-
vices may result in lower rates of discrimination than if 
they were more open about being LGBT. Others may use 
avoidance strategies to mitigate the risk of experiencing 
hostility. For instance, LGBT people may not go to shops 
where they expect that they may face discrimination.

The survey results show that transgender respondents 
face markedly more discrimination because of being 
LGBT than other LGBT groups when using these ser-
vices. Of those who accessed these services in the 12 
months leading up to the survey, around one in six felt 
personally discriminated against in shops, cafés, restau-
rants, bars and nightclubs, at sports or fitness centres 
and when looking for a house in the last 12 months 
because of being LGBT.

Moreover, such experiences of discrimination are linked 
to gender. Lesbian women who used these services 
in the past year report being discriminated against 
because of being LGBT more frequently than gay men, 
and bisexual women more often than bisexual men 
(Figure 17).

Of those respondents who visited a café, restaurant, 
bar or nightclub in the last year, about one in five (18 %) 
felt personally discriminated against because of being 
LGBT in these places in the year before the survey. 
Lesbian women (23 %), bisexual women (20 %) and 
transgender (19 %) respondents are more likely than 
men respondents to say they felt discriminated against 
at these locations during the last year because of being 
LGBT (Figure 17). In Bulgaria and Croatia, about three out 
of 10 respondents felt personally discriminated against 
because of being LGBT when at a restaurant, bar, café or 
nightclub in the last year, and in a further 14 EU Member 
States at least a fifth of survey participants have felt dis-
criminated against in this situation in the last 12 months 
because of being LGBT. Respondents living in the Neth-
erlands (12 %), Denmark and Sweden (both 13 %), the 
Czech Republic (14 %) and Belgium (15 %) are the least 
likely to say they have felt personally discriminated 
against when at a restaurant, bar, café or nightclub in 
the last year because of being LGBT.

“[My female partner and I] do not visit night clubs, mostly 
because it feels too dangerous if they are not LGBT friendly, 
especially if the two of us are alone. We do not share 
our relationship openly with our landlord or people living 
nearby.” (Slovenia, lesbian, 28)

One  in  eight  (13  %)  respondents  who  looked  for  a 
house or apartment to rent or buy in the year preced-
ing the survey say they felt personally discriminated 
against because of being LGBT. Lesbian women and 
transgender respondents are around twice as likely 
as bisexual respondents to say they felt discriminated 
against in this way. About one in five respondents living 
in Croatia (19 %), Lithuania (18 %), Poland (18 %) and 

Discrimination: experiences, awareness, reporting and perceptions

Figure 17:   Respondents who felt discriminated 

against because of being LGBT in 
services available to the public in the 
last 12 months, by LGBT group (%)

EU LGBT Average 

Lesbian women 

13 

18 

8 

4 

10 

10 

4 

7 

16 

23 

12 

17 

Gay men 

7 

4 

Bisexual women 

Bisexual men 

Transgender 

10 

9 

20 

2 

7 
2 
7 

14 

9 

9 

5 

3 

17 

19 

17 

10 

15 

0 

10 

20 

30 

Housing 

Bank 

Cafés/bars/restaurants 

Sport/ﬁtness 

Shops 

Question:  C4. During the last 12 months, have you personally 

felt discriminated against because of being [category 
on the basis of A3 or A4] in any of the following 
situations:

 C. When looking for a house or apartment to rent 
or buy (by people working in a public or private 
housing agency, by a landlord)?

G. At a café, restaurant, bar or nightclub?

H. At a shop?

 I. In a bank or insurance company (by bank or 
company personnel)?

J. At a sport or fitness club?

Base: 

All EU LGBT survey respondents.

Source:  FRA, EU LGBT survey, 2012

Romania (18 %), say they felt personally discriminated 
against when looking for a house or apartment to rent 
or buy in the last year because of being LGBT, compared 
with one in 20 in Denmark, the Netherlands and Sweden.

Of those who visited a shop in the year before the 
survey, one in six (17 %) transgender respondents say 
they felt personally discriminated against at a shop in 
the previous year because of being LGBT. This a con-
siderably  higher  proportion  than  among  the  other 

41

 
 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

LGBT groups: fewer than one in 10 gay, lesbian and 
bisexual respondents say they felt discriminated against 
at a shop in the previous year because of being LGBT 
(Figure 17). The highest percentages of respondents 
saying they have felt personally discriminated against 
because of being LGBT at a shop in the last year are 
found in Bulgaria, Malta, Greece, Lithuania, Poland and 
Romania.

Just 4 % of respondents who visited a bank or insurance 
company in the previous year felt discriminated against 
because of being LGBT by bank or company personnel 
in that time. This figure, however, rises to 10 % among 
transgender respondents (Figure 17). At the country 
level, the percentage of respondents who have felt per-
sonally discriminated against because of being LGBT by 
bank or insurance company personnel in the previous 
year ranged from 1 % in Estonia to 9 % in Malta.

“I have had a beautiful relationship for three years with 
my partner but it is not officially recognised and we were 
confronted with many situations in which we are treated badly. 
For instance, at the bank when we tried to get a mortgage. 
There, the heterosexual partnerships are accepted but the 
homosexual ones are not and this is discrimination.”

(Romania, male, gay, 27)

One in 10 (19 %) of respondents who exercised at a 
sport and fitness club in the year before the survey said 
that they felt personally discriminated against because 
of being LGBT in this situation during the previous 12 
months. Broken down by LGBT group, the percentages 
are highest among transgender (15 %) and gay men 
(10 %) respondents (Figure 17).

1�4�  Rights awareness 

and reporting of 
discrimination

Article 21 of the EU Charter of Fundamental Rights 
prohibits discrimination and Article 47 guarantees 
the right to an effective remedy and to a fair trial. 
Awareness of EU and national anti-discrimination 
legislation is crucial for ensuring that incidents of 
discrimination  are  reported.  EU  equality  legisla-
tion  consistently  regards  awareness  raising  and 
the existence of available and effective remedies 
to  report  discrimination  cases  as  key  obligations 
of  Member  States  for  a  successful  and  effective 
implementation of anti-discrimination provisions.

One of the main objectives of the survey is to collect 
information on the level of awareness about the legal 
prohibition of discrimination and about levels of report-
ing discrimination incidents which respondents think 
have occurred because they are LGBT.

1�4�1 

 Legislation forbidding 
discrimination on the grounds 
of sexual orientation when 
applying for a job

More than half (56 %) of all respondents state that in 
the country where they live there is a law forbidding 
discrimination against persons because of their sexual 
orientation when applying for a job. A sixth (17 %) of 
all respondents, however, say that such a law does not 
exist in their country of residence, and three in 10 (28 %) 
do not know whether or not non-discrimination legisla-
tion of this type is in place (Figure 18).

Figure 18:   Awareness of law that forbids discrimination against persons because of their sexual orientation 

when applying for a job, by LGBT group (%)

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

56 

53 

58 

49 

53 

58 

17 

17 

17 

28 

30 

26 

15 

36 

17 

17 

29 

25 

0

10

20

30

40

50

60

70

80

90

100

Yes 

No 

Don't know 

Question: 

 D1. In the country where you live, is there a law that forbids discrimination against persons because of their sexual 
orientation when applying for a job?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

42

Discrimination: experiences, awareness, reporting and perceptions

The percentage of respondents who state that there 
is a law in the country where they live forbidding dis-
crimination against persons because of their sexual ori-
entation when applying for a job does not differ much 
across the various LGBT groups. Transgender and gay 
men respondents (58 %) are the most likely to say that 
such a law is in place in their country of residence.

“Most of the more serious instances of discrimination 
and harassment experienced by me have occurred 
when I worked in Ireland, where, despite the existence 
of employment legislation outlawing discrimination, 
discrimination and harassment are still relatively common 
in the workplace, in my experience. Part of the reason is 
that such legislation in Ireland is part of the civil law, so you 
cannot go to the police about it. You can only complain to the 
Equality Tribunal or other such bodies. Complaints take ages 
to process and also the law has several exemptions, which 
serve to weaken its effectiveness.” (Germany, gay, 50)

Conversely,  there  is  a  marked  variation  across  the 
EU Member States and Croatia in the proportion of 
respondents who say that there is a law that forbids 
discrimination against persons because of their sexual 
orientation when applying for a job. Respondents in 
Sweden (84 %), the United Kingdom (83 %) and Fin-
land (82 %) are four times more likely to say that such 
legislation is in place than those living in Cyprus (21 %) 
and Greece (22 %) (Figure 19). 

1�4�2�   Legislation forbidding discrimina-

tion on the grounds of gender 
identity when applying for a job

Fewer respondents say that, in the country where they 
live, there is a law that forbids discrimination against 
persons because of their gender identity when applying 
for a job than say that such a law is in place concerning 

Figure 19:   Awareness of a law that forbids discrimination against persons because of their sexual orientation 

when applying for a job, by country (%)

EU LGBT average 
SE 
UK 
FI 
NL 
DK 
IE 
BE 
FR 
SI 
CZ 
DE 
HR 
ES 
PT 
LT 
AT 
PL 
LU 
SK 
EE 
RO 
LV 
MT 
BG 
HU 
IT 
EL 
CY 

84

83

82

77

75

74

73

56

66

63

59

58

54

52

50

50

47

46

46

45

44

44

42

39

38

31

25

22

21

0

10

20

30

40

50

60

70

80

90

Question: 

 D1. In the country where you live, is there a law that forbids discrimination against persons because of their sexual 
orientation when applying for a job?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012.

43

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

discrimination against persons because of their sexual 
orientation. Four in 10 of all respondents (42 %) say that 
there is a law forbidding discrimination against persons 
because of their gender identity when applying for a 
job (Figure 20). An almost equal number (41 %) indicate 
that they do not know about the existence of such a law.

Mirroring the data on a law forbidding discrimination 
against persons because of their sexual orientation, 
broadly similar percentages of respondents across the 
different LGBT groups state that legislation in their 
country  of  residence  forbids  discrimination  against 
persons because of their gender identity when apply-
ing for a job. Men are again slightly more aware of such 
legislation than women: 45 % of all bisexual men and 
44 % of all gay men state that there is a law forbidding 
discrimination against persons because of their gender 

identity when applying for a job, compared with 37 % 
of all bisexual women and 38 % of all lesbian women 
(Figure 20).

At country level, the number of people who are aware 
of  a  law  forbidding  discrimination  against  persons 
because of their gender identity when applying for a 
job generally matches that of those who are aware of 
a law regarding discrimination against persons because 
of their sexual orientation. For example, respondents in 
the United Kingdom (64 %), Sweden (62 %) and Finland 
(58 %) are almost three times more likely to be aware 
of such legislation than those in Greece (23 %), Italy 
(24 %) and Cyprus (24 %) (Figure 20). 

Figure 20:   Awareness of a law that forbids discrimination against persons because of their gender identity 

when applying for a job, by LGBT group and country (%)

EU LGBT average 
UK 
SE 
FI 
NL 
DE 
BE 
DK 
SI 
IE 
FR 
HR 
EE 
ES 
CZ 
SK 
PT 
LT 
LV 
AT 
BG 
MT 
RO 
LU 
HU 
PL 
CY 
IT 
EL 

64 

62 

58 

42 

50 

47 

47 

47 

45 

44 

44 

42 

42 

42 

37 

37 

37 

36 

35 

35 

32 

32 

31 

31 

30 

30 

24 

24 

23 

0

20

40

60

80

100

Question: 

 D1. In the country where you live, is there a law that forbids discrimination against persons because of their sexual 
orientation when applying for a job?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

44

Discrimination: experiences, awareness, reporting and perceptions

1�4�3�   Programmes and campaigns 

addressing discrimination

Kingdom (47 %), whereas only 19 % of respondents 
have seen such campaigns in Italy and Cyprus. 

To build up a fuller picture of respondents’ awareness 
of measures and efforts to combat discrimination, par-
ticipants were also asked if they have ever seen pro-
grammes or awareness-raising campaigns by either 
the government or non-governmental organisations 
addressing discrimination (Figure 21).

Two thirds (65 %) of all survey respondents have seen 
programmes or campaigns addressing discrimination 
against lesbian, gay and bisexual (LGB) persons. This 
ranges from more than eight in 10 respondents in Ire-
land (86 %), Poland (86% %) and the United Kingdom 
(81 %) to around half of all respondents in Italy (48 %) 
and Cyprus (47 %) (Figure 22).

In  contrast,  fewer  than  one  in  three  (30  %)  of  all 
respondents have seen any programme or awareness-
raising campaign that addresses discrimination against 
transgender persons. The countries with the highest 
percentages of respondents who have seen such cam-
paigns are Ireland (55 %), Poland (51 %) and the United 

Overall, in Member States where a high percentage 
of respondents has seen programmes or awareness 
campaigns addressing discrimination against gay, les-
bian and bisexual people, relatively high proportions of 
respondents have also seen campaigns targeting dis-
crimination against transgender people. There are a 
number of exceptions to this trend, however. Respond-
ents in the Netherlands are among the most likely to say 
that they have seen a campaign addressing discrimina-
tion against gay, lesbian and bisexual people, but show 
average levels of awareness of programmes targeting 
transgender people.

“The problems in Bulgaria are more related to society than 
to the official authorities. Official institutions are trying to 
take care of people with different sexual orientation despite 
public pressure. […] I want to say I am pleased with the work 
of the Commission for Protection against Discrimination, 
which really cares about the rights of people with different 
sexual orientation despite public perceptions.” 

(Bulgaria, gay, 22)

Figure 21:   Respondents who have seen any programme or awareness campaign addressing discrimination on 

certain grounds, by grounds (%)

Disability 

LGB people 

Ethnic minorities, migrants 

Gender 

Religion, belief 

Age 

Transgender people 

65

64

56

36

35

30

77

17

29

28

33

6

6

8

11

13

13

11

51

52

59

60

0

20

40

80

100

Yes 

No 

Don't know 

Question: 

 D4. In the country where you live, have you ever seen any programme or awareness campaign by either the government 
or a non-governmental organisation addressing: A. Discrimination on the basis of age; B. Discrimination against people 
with disabilities; C. Discrimination against gay, lesbian and bisexual people; D. Discrimination against transgender people; 
E. Discrimination against ethnic minorities and migrant groups; F. Discrimination on the basis of religion and belief; 
G. Discrimination on the basis of gender?

Base: 

Source: 

 All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

45

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 22:   Respondents who have seen any programme or awareness campaign addressing discrimination 

against certain groups, by country and by group (%)

Age 

Disability 

LGB persons 

EU LGBT average 

35 

EU LGBT average 

77 

EU LGBT average 

65 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

63 

51 

48 

45 

44 

39 

36 

35 

34 

33 

33 

33 

32 

32 

31 

31 

29 

29 

29 

28 

28 

27 

26 

26 

25 

25 

21 

19 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

88 

87 

84 

83 

83 

83 

83 

82 

78 

78 

77 

74 

73 

73 

73 

73 

72 

70 

70 

69 

68 

67 

65 

65 

65 

58 

58 

57 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

86 

86 

81 

77 

76 

74 

74 

71 

71 

70 

69 

69 

66 

65 

64 

64 

63 

63 

63 

62 

62 

62 

61 

60 

59 

50 

48 

47 

0 

20 

40 

60 

80 

100 

0 

20 

40 

60 

80 

100 

0 

20 

40 

60 

80 

100 

Transgender persons 

Ethnic minorities, migrants 

EU LGBT average 

30 

EU LGBT average 

64 

Religion, belief 

EU LGBT average 

36 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

55 

51 

47 

45 

42 

42 

40 

38 

37 

36 

34 

33 

33 

32 

31 

30 

30 

30 

29 

29 

29 

27 

25 

25 

25 

24 

19 

19 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

76 

75 

75 

72 

72 

71 

71 

71 

70 

70 

68 

66 

66 

66 

65 

65 

65 

64 

63 

62 

59 

57 

56 

56 

55 

54 

43 

35 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

51 

51 

49 

45 

44 

41 

40 

38 

38 

37 

36 

35 

34 

34 

33 

33 

33 

33 

32 

30 

30 

29 

28 

25 

23 

20 

20 

17 

0 

20 

40 

60 

80 

100 

0 

20 

40 

60 

80 

100 

0 

20 

40 

60 

80 

100 

Question: 

 D4. In the country where you live, have you ever seen any programme or awareness campaign by either the 
government or a non-governmental organisation addressing: C. Discrimination against gay, lesbian and bisexual people; 
D. Discrimination against transgender people?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

46

 
 
 
 
Figure 22:   Respondents who have seen any 

Figure 23:   Reporting discrimination incidents, by 

Discrimination: experiences, awareness, reporting and perceptions

LGBT groups (%)

EU LGBT average 

Lesbian women 

Gay men 

10

8

11

Bisexual women 

6

Bisexual men 

11

Transgender 

15

0

10

20

30

Questions: 

Base: 

 C1. For each of the following types of 
discrimination, could you please specify 
whether, in your opinion, it is very rare, fairly 
rare, fairly widespread or very widespread in 
the country where you live?

 C6. Thinking about the most recent incident, did 
you or anyone else report it anywhere?

 EU LGBT survey respondents who felt 
discriminated against when looking for a job or 
at work.

Source: 

FRA, EU LGBT survey, 2012

Reporting rates are consistently low across LGBT groups 
and EU Member States and Croatia: among all those 
respondents who have felt personally discriminated 
against in the previous 12 months because of being 
LGBT. The highest percentage who reported the most 
recent incident to the authorities was 16 % in the Neth-
erlands and Italy (Figure 24).

There is, nevertheless, some variation. For example, 
transgender persons who have felt personally discrimi-
nated against in the previous year because of being 
LGBT are slightly more likely (15 %) to have reported the 
most recent incident of discrimination to the authorities 
than lesbian women, gay men or bisexual persons. In 
addition, respondents in Belgium, France, Italy, Malta, 
the Netherlands, Portugal and the United Kingdom are 
five times as likely to have reported the most recent 
incident  of  discrimination  against  them  because  of 
being LGBT as those in Latvia or Slovenia.

programme or awareness campaign 
addressing discrimination against certain 
groups, by country and by group (%)

Gender 

EU LGBT average 

56 

IE 

PL 

UK 

LT 

NL 

FR 

DE 

MT 

CZ 

FI 

BE 

PT 

EL 

DK 

LU 

LV 

HR 

AT 

HU 

ES 

SI 

RO 

SK 

SE 

BG 

EE 

IT 

CY 

74 

74 

70 

70 

68 

67 

64 

61 

58 

58 

57 

57 

56 

56 

56 

55 

55 

53 

53 

50 

49 

48 

45 

45 

43 

39 

38 

32 

Question: 

0 

20 

40 

60 

80 

100 

 D4. In the country where you live, have you 
ever seen any programme or awareness 
campaign by either the government or a 
non-governmental organisation addressing: 
C. Discrimination against gay, lesbian and 
bisexual people; D. Discrimination against 
transgender people?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

1�4�4�   Reporting discrimination 

incidents

Of those respondents who have felt personally discrimi-
nated against in the last year because of being LGBT at 
work or when looking for a job, in education, healthcare 
or social services or when accessing any of the goods 
and services covered by the survey, just one in 10 (10 %) 
reported the most recent incident of discrimination that 
happened to them to the authorities (Figure 23).

This rate of reporting is lower than the rate identified 
by the European Union minorities and discrimination 
survey (EU-MIDIS), according to which only 18 % of 
those who were discriminated against in the previous 
12 months reported their most recent experience of 
discrimination anywhere.24

24  FRA (2010b and 2012b).

47

  
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 24:   Reporting discrimination incidents,  

Reasons for not reporting discrimination

by country (%)

EU LGBT average 
NL 
IT 
UK 
FR 
PT 
BE 
MT 
IE 
ES 
BG 
RO 
AT 
FI 
DE 
HR 
SE 
LT 
HU 
EL 
SK 
DK 
LU 
CY 
EE 
CZ 
PL 
SI 
LV 

10

16

16

13

13

12

12

12

10

10

9

9

8

7

7

7

6

6

6

6

6

6

5

5

5

4

4

3

3

0

10

20

30

Question: 

Base: 

 C6. Thinking about the most recent incident, did 
you or anyone else report it anywhere?

 EU LGBT survey respondents who felt 
discriminated against in the last 12 months 
when accessing services and in employment.

Source: 

 FRA, EU LGBT survey, 2012

To  gather  further  information  regarding  report-
ing,  respondents  who  say  that  they  did  not  report 
the  most  recent  incident  of  discrimination  against 
them because of being LGBT were asked why they 
did  not  do  so.  The  results  regarding  the  main  rea-
sons  for  not  reporting  discrimination  are  generally 
consistent with those reported in FRA’s EU-MIDIS,25 
 which collected data from immigrant and ethnic minor-
ity groups about their experiences of discrimination and 
criminal victimisation in everyday life.26 

Respondents who felt personally discriminated against 
in the past 12 months because of being LGBT in any of 
these situations, and did not report the most recent 
incident of discrimination, most often say that they 
did not report it because they thought nothing would 
happen or change as a result (59 %). In addition, four in 
10 respondents say reasons for not reporting the most 
recent incident of discrimination were that such inci-
dents ‘happen all the time’ and therefore are not worth 
reporting (44 %); because they did not want to reveal 
their sexual orientation or gender identity (37 %); or 
because they were concerned that the incident would 
not be taken seriously (37 %). Three in 10 respondents 
did not know how or where to report discrimination 
(Figure 25).

Considerable variation by LGBT group may be seen 
by looking in more detail at those respondents who 
say that not wanting to reveal their sexual orienta-
tion or gender identity was a factor in their decision 
not to report the most recent incident of discrimina-
tion because of being LGBT that had taken place in the 
previous 12 months. Bisexual men are twice as likely 
(56 %) as lesbian women (28 %), for example, to say 
that a reason for their non-reporting was that they did 
not want to reveal their sexual orientation.

48

25  For further information on FRA’s EU-MIDIS survey, see  

http://fra.europa.eu/en/survey/2012/eu-midis-european-
union-minorities-and-discrimination-survey.

26  FRA (2010b).

Discrimination: experiences, awareness, reporting and perceptions

Figure 25:   Reasons for not reporting the most recent incident of discrimination in the past 12 months partly or 

completely because they were perceived to be LGBT (%)

Nothing would happen or change 

59 

Not worth reporting it – ‘it happens all the time’ 

Did not want to reveal my sexual orientation and/or gender identity 

Concerned that the incident would not have been taken seriously 

44 

37 

37 

Didn't know how or where to report 

30 

Dealt with the problem myself/with help from family or friends 

Too much trouble, no time 

24 

20 

Fear of intimidation by perpetrators 

15 

Because I was too emotionally upset to report it 

Other reason(s) 

10 

9 

0

20

40

60

80

100

Question: 

C7. Why was it not reported?

Base: 

 EU LGBT survey respondents who had felt personally discriminated against in one of the situations listed in C4 (looking 
for a house or apartment to rent or buy; visiting a café, restaurant, bar or nightclub; visiting a shop; visiting a bank or 
insurance company; or exercising at a sport or fitness club) in the last 12 months.

Source: 

FRA, EU LGBT survey, 2012

Figure 26:   Respondents indicating that they did not report the most recent incident of discrimination in the past 
12 months which happened partly or entirely because they were perceived to be LGBT, because they 
did not want to reveal their sexual orientation or gender identity, by LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

28

37

39

37

38

20

0

10

56

30

40

50

60

70

80

90

100

Question: 

C6.  Thinking about the most recent incident, did you or anyone else report it anywhere? Answer: No. 

Base: 

 EU LGBT survey respondents who had felt personally discriminated against in one of the situations listed in C4 (looking 
for a house or apartment to rent or buy; visiting a café, restaurant, bar or nightclub; visiting a shop; visiting a bank or 
insurance company; or exercising at a sport or fitness club) in the previous 12 months.

Source: 

FRA, EU LGBT survey, 2012

49

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

1�5�  Perceptions of 
discrimination

Respondents’ perception of the general prevalence of 
discrimination in society is important, as it can affect 
how they behave in different social settings. For exam-
ple, some LGBT persons who perceive discrimination 
against  themselves  to  be  widespread  may  choose 
to alter their behaviour or hide their sexual orienta-
tion  or  gender  identity.  Accordingly,  these  findings 
should be read in conjunction with those on daily life 
in section 3.2.3.27

“My own experience with homophobia in Poland is mostly 
limited to the general feeling of social acceptance for 
discrimination based on sexual orientation.” (Poland, gay, 29)

Three quarters of all respondents say that discrimination 
based on a person’s sexual orientation is widespread 
in their country of residence. Younger LGBT respond-
ents are most likely to perceive discrimination on the 
basis of sexual orientation to be widespread: 81 % of 
all respondents aged 18–24 years say that such dis-
crimination is widespread in their country of residence, 
compared with 63 % of those over 55 years (Figure 27). 
Conversely, the oldest respondents, those aged over 
55, are twice as likely as the youngest respondents, 
those aged 18–24, to say that discrimination based on 
a person’s sexual orientation is fairly rare.

It is also possible to analyse the data on perceptions of 
discrimination in conjunction with the data on open-
ness about being LGBT. These are interrelated variables: 
hiding one’s sexual orientation may be encouraged or 
reinforced by perceptions of widespread discrimination 
based on a person’s sexual orientation. Conversely, the 
degree of an individual’s openness about being LGBT 
may influence the frequency with which they face such 
discrimination; for example, those who hide their sexual 
orientation may experience less discrimination.

The data also show a relationship between respond-
ents’ perception of the extent of discrimination based 
on a person’s sexual orientation in their country of resi-
dence, and their openness about being LGBT. Although 
it is not possible to determine from the data the direc-
tion of this relationship, the less open respondents are 
about being lesbian, gay, bisexual or transgender, the 
more likely they are to say that discrimination based 
on a person’s sexual orientation is widespread in the 
country where they live. Of those respondents who say 
that they are not open about being LGBT with anyone, 
eight in 10 (81 %) say that discrimination on the basis of 
sexual orientation is widespread in their country, com-
pared with six in 10 (62 %) of those respondents who 
are open to everyone (Figure 28). 

Figure 27:  Perceived level of discrimination on the grounds of sexual orientation, by age group (%)

18–24 years 

25–39 years 

40–54 years 

55+ years 

0

38

41

44

44

20

43

33

26

19

40

60

80

100

Fairly widespread 

Very widespread 

Question: 

 C1. For each of the following types of discrimination, could you please specify whether, in your opinion its very rare, fairly 
rare, fairly widespread or very widespread in the country you live? – Answer: C. Sexual orientation.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

27  It should be noted that personal experience – or experiences 
communicated by friends, colleagues or acquaintances – 
often generates or reinforces perceptions. The responses 
presented here may reflect respondents’ personal 
experience of discrimination rather than the imagined 
situation of the population as a whole.

50

Discrimination: experiences, awareness, reporting and perceptions

Figure 28:   Perceived level of discrimination on the grounds of sexual orientation,  

by openness of respondents (%)

Open to all

35

Open to most

25

Open to few

Open to none

18

16

0

20

40

62

73

80

81

60

80

100

 C1. For each of the following types of discrimination, could you please specify whether, in your opinion, it is very rare, 
fairly rare, fairly widespread or very widespread in the country where you live?

Rare 

Widespread 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Question 

Base: 

Source: 

To gain further insight into respondents’ perceptions 
of discrimination against different LGBT groups, the 
questionnaire asked participants how widespread they 
consider discrimination because a person is lesbian, gay, 
bisexual or transgender to be in their country of resi-
dence. Discrimination because a person is transgender 
is viewed as more widespread than that against other 
LGBT groups: 84 % of all respondents say discrimina-
tion because a person is transgender is widespread, 
whereas for discrimination because a person is gay, 
lesbian or bisexual the figures are smaller (73 %, 52 % 
and 36 % ,respectively) (Figure 29). 

“In Ireland I find that there is little overt discrimination 
against gays and lesbians except for the lack of same sex 
marriage (which the government is addressing). I have 
seen that there is widespread discrimination against those 
who are transgender. Many of my heterosexual friends 
who are in no way homophobic would feel uncomfortable 
and sometimes scared of those who are transgender. The 
government offers little or no protection to those who are 
transgender, in contrast there is a lot of protection provided 
to those who are gay, lesbian, bisexual, disabled and from an 
ethnic minority.” (Ireland, gay, 18)

Figure 29:   Perceived level of discrimination because a person is lesbian, gay, bisexual or transgender,  

by LGBT group (%)

Lesbian women

52

44

Gay men

Bisexual women or men

36

Transgender

73

84

57

4

2

8

8

26

9

0

10

20

30

40

50

60

70

80

90

100

Fairly or very widespread 

Fairly or very rare 

Don’t know 

Question: 

 C1A. In your opinion, in the country where you live, how widespread is discrimination because a person is ... Lesbian, gay, 
bisexual, transgender?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

51

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

1�5�1� 

 Perception of discrimination 
based on a person’s sexual 
orientation: comparison 
of EU LGBT survey and 
Eurobarometer data

To assess how LGBT respondents’ perceptions of dis-
crimination on the grounds of sexual orientation com-
pare with those of the general population, data from the 
EU LGBT survey are presented alongside those from the 
Special Eurobarometer 393.28 Both the EU LGBT survey 
and the Eurobarometer survey asked respondents how 
widespread, in their opinion, discrimination based on a 
person’s sexual orientation is in their country of resi-
dence. The two surveys, however, employed different 
methodologies for reaching respondents. The EU LGBT 
survey  was  an  online  survey  for  respondents  self-
identifying as LGBT, whereas the Eurobarometer survey 
approached the general population through a random 
sample.29 The results are not directly comparable but 
are presented together in this section to identify major 
discrepancies and trends.

Respondents to the EU LGBT survey, with the excep-
tion of those in the Netherlands, are more likely than 

respondents to the Eurobarometer survey to say that 
discrimination based on a person’s sexual orientation 
is widespread in their country of residence. It should 
be noted that, as they are LGBT, respondents to the EU 
LGBT survey are more likely to be directly affected by 
discrimination based on a person’s sexual orientation 
than the random sample of the Eurobarometer survey. 

Looking at overall differences in findings between the 
two surveys, in EU Member States where a higher per-
centage of EU LGBT survey respondents say that dis-
crimination based on a person’s sexual orientation is 
widespread, the general population tends to view such 
discrimination as much less widespread. Whereas 90 % 
of respondents to the EU LGBT survey in Bulgaria say, for 
example, that discrimination based on a person’s sexual 
orientation is widespread, the equivalent figure among 
respondents  to  the  Eurobarometer  survey  is  20  %. 
Conversely, in Member States where relatively fewer 
respondents to the EU LGBT survey say that discrimi-
nation on the basis of a person’s sexual orientation is 
widespread, the general public tends to agree with their 
perception. In Denmark, for instance, 42 % of EU LGBT 
survey respondents say that discrimination based on 
a person’s sexual orientation is widespread, compared 
with 37 % of Eurobarometer participants (Figure 30).

28  European Commission (2012).
29  Fieldwork for the Eurobarometer survey was conducted in 

June 2012 – therefore overlapping in part with the European 
LGBT survey – in the 27 EU Member States, and consisted 
of face-to-face interviews with 26,622 respondents 
from different social and demographic groups. The 
Eurobarometer also included, for the first time, a question 
on discrimination on grounds of gender identity. For more on 
the Eurobarometer methodology see European Commission 
(2012).

52

Discrimination: experiences, awareness, reporting and perceptions

Figure 30:   Perceived level of discrimination on the grounds of sexual orientation as very and fairly widespread, 

by respondents to the Eurobarometer 2012 and the EU LGBT survey 2012 (%)

EU average

HR*

0

46

75

63

42

42

42

33

20

48

55

65

77

26

54

61

95

93

92

91

91

90

89

86

86

86

85

83

81

80

78

LT

IT

RO

PL

BG

HU

SI

PT

EL

CY

MT

LV

FR

SK

AT

EE

DE

ES

UK

IE

FI

BE

SE

CZ

NL

LU

DK

32

32

37

36

44

43

23

23

32

37

0

50

50

47

50

54

47

20

75

72

69

68

62

62

59

55

50

47

42

40

60

80

100

Eurobarometer 2012 

EU LGBT survey 

Note: 

* The special Eurobarometer 363 did not include Croatia.

Question: 

Base: 

Source: 

 C1. For each of the following types of discrimination, could you please specify whether, in your opinion it is very rare, fairly 
rare, fairly widespread or very widespread in the country you live? – Answer: C. Sexual orientation.

All EU LGBT survey respondents; all special Eurobarometer 363 respondents.

FRA, EU LGBT survey, 2012; Special Eurobarometer 363

53

2

Violence and  
harassment

Violence  and  crime  committed  with  a  motive 
of  bias  relating  to  the  victims’  perceived  sexual 
orientation  or  gender 
the 
enjoyment by LGBT persons of the right to human 
dignity (Article 1 of the EU Charter), the right to life 
(Article  2  of  the  EU  Charter)  and  the  integrity  of 
the person and protection from violence (Article 3 
of the EU Charter). 

identity  affects 

The EU LGBT survey asked respondents about their 
experience of violence and harassment over two time 
periods – the preceding five years and the preceding 
12 months – employing a technique frequently used in 
victimisation surveys.30 The data capture information 
about incidents experienced and identified as violence 
or harassment by respondents; these instances were 
not necessarily judged as such by administrative or 
judicial processes.

In the case of violence, respondents were first asked 
about any physical or sexual attacks or threats of vio-
lence they experienced at home or elsewhere in the 
five years preceding the survey. This is a way of getting 
respondents to think about such experiences before 
moving on to more recent events. Those who say that 
they have been attacked or threatened with violence 
during the preceding five years were then asked if they 
have been victims of an attack or threat of violence in 
the 12 months preceding the survey. The percentage of 
respondents who answers ‘yes’ indicates the one-year 
prevalence rate of violence.

30  Acknowledging that recollecting memories and answering 
questions about the details of past incidences of violence 
could cause significant psychological discomfort for some 
respondents, the questionnaire offered direct links to LGBT 
and victim support organisations and national helplines for 
distressed respondents.

Respondents who say they have been victims of an 
attack or threat of violence in either the preceding five 
years or the preceding year were asked a series of sup-
plementary questions. These questions collected more 
data about the last incident – in the previous 12 months 
– and the most serious incident – in the previous five 
years –to assess the characteristics of violence, includ-
ing, for example, where the violence took place, who 
the perpetrators were and whether or not the incident 
was reported to the police. Respondents were also 
asked if they think that the last or most serious attack or 
threat of violence happened partly or entirely because 
they were perceived to be LGBT. This process was then 
repeated for experiences of harassment.

To assist respondents, questions on harassment were 
preceded by the following explanation: “By harass-
ment we mean unwanted and disturbing behaviour 
towards you such as name calling, or ridiculing that did 
not involve actual violence or the threat of violence”. 
In addition, the opening question on harassment pro-
vided further guidance, asking respondents whether 
they have been “personally harassed by someone or a 
group in a way that really annoyed, offended or upset 
you – either at work, home, on the street, on public 
transport, in a shop, in an office or on the internet – 
or anywhere?” The survey also clarified that, when it 
asked about the “most serious” incidents of violence 
or harassment, respondents should reply with the inci-
dent that had the biggest impact on them “physically 
or psychologically” in the case of violence, and “psy-
chologically or emotionally” in the case of harassment.

This  chapter  begins  by  presenting  the  data  on  the 
prevalence of violence and hate-motivated violence, 
analysing the results by openness about being LGBT 
and gender expression. It then examines the data on 
the type, perpetrators and place of hate-motivated 
violence.  Next,  the  chapter  analyses  participants’ 

55

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

responses regarding reporting incidents of hate-moti-
vated violence. The chapter then turns to harassment 
and hate-motivated harassment, using the same struc-
ture to present and analyse respondents’ experiences.

Throughout this chapter, the term ‘violence’ is used to 
describe both physical or sexual attacks, and threats 
of violence. In addition, ‘hate-motivated violence’ and 
‘hate-motivated  harassment’  are  used  to  describe 
incidents which respondents think happened partly or 
entirely because they were perceived to be LGBT.

2�1�  Prevalence of violence 
and hate-motivated 
violence

A quarter (26 %) of all respondents indicate that they 
were physically or sexually attacked or threatened with 
violence for any reason at home or elsewhere in the 
previous five years. In addition, one in 10 (10 %) of all 
respondents say that they were attacked or threatened 

with violence for any reason in the 12 months before 
the survey (Figure 31).

Looking  at  the  data  by  LGBT  group,  transgender 
respondents  are  the  most  likely  to  say  they  were 
attacked or threatened with violence in both the five-
year and one-year time periods. A third (34 %) of all 
transgender respondents say they were physically or 
sexually attacked or threatened with violence in the five 
years preceding the survey, compared with, for exam-
ple, around a quarter of all lesbian, gay and bisexual 
respondents (Figure 32).

Of those respondents who say they experienced vio-
lence in the 12 months preceding the survey, the major-
ity (59 %) think that the last such incident happened 
partly or entirely because they were perceived to be 
LGBT (Figure 34). Combined with the data on the preva-
lence of violence, this indicates that, in the 12-month 
period preceding the survey, 6 % of all respondents 
were physically or sexually attacked or threatened with 
violence which they think happened partly or entirely 
because they were perceived to be LGBT. Transgender 

Figure 31:   Prevalence of violence in the preceding 
five years and in the preceding 
12 months (%)

Figure 32:   Prevalence of violence in the preceding 
five years and in the preceding 
12 months, by LGBT group (%)

Lesbian women

Gay men

Bisexual women

Bisexual men

23 

9 

25 

9 

28 

11 

25 

10 

Transgender

34 

15 

EU LGBT
respondents

26

10

Lesbian women

Gay men

Bisexual women

Bisexual men

23 

9 

25 

9 

28 

11 

25 

10 

Transgender

34 

15 

EU LGBT
respondents

26

10

0 10 20 30 40 50 60 70 80 90 100

0

20

40

60

80

100

In the last 5 years 

In the last 12 months

In the last 5 years 

In the last 12 months

0 10 20 30 40 50 60 70 80 90 100

0

20

40

60

80

100

In the last 5 years 

In the last 12 months

In the last 5 years 

In the last 12 months

Questions: 

 F1_A. This next question looks at any incident 
of violence you may have experienced in the 
last 5 years. This could happen for any reason, 
in any EU Member State or Croatia.

 In the last 5 years, have you been: 
physically/sexually attacked or threatened 
with violence at home or elsewhere (street, 
on public transport, at your workplace, etc.) 
for any reason? Yes.

 FA1_2. When did the LAST physical/sexual 
attack or threat of violence happen? In the 
last 12 months.

Questions: 

 F1_A. This next question looks at any incident 
of violence you may have experienced in the 
last 5 years. This could happen for any reason, 
in any EU Member State or Croatia.

 In the last 5 years, have you been: 
physically/sexually attacked or threatened 
with violence at home or elsewhere (street, 
on public transport, at your workplace, etc.) 
for any reason? Yes.

 FA1_2. When did the LAST physical/sexual 
attack or threat of violence happen? In the 
last 12 months.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

56

 
 
 
 
Violence and harassment 

(8 %) and gay men (6 %) respondents are slightly more 
likely to have been the victims of hate-motivated vio-
lence in the year before the survey than bisexual and 
lesbian women respondents (Figure 33).

“I have nearly always been attacked because I am perceived 
as being a gay man, and because I was seen as transgender 
only on one occasion. I ‘pass’ quite easily, but am seen 
as being a gay man in most people’s eyes. I have often 
witnessed transphobic violence and attacks, but not so 
much against me. However, homophobic attacks have been 
perpetrated against me and others on a regular basis.” 
(United Kingdom, transgender, 36)

When breaking down the data for respondents who 
experienced violence in the past year by LGBT group, 
gay men respondents are the most likely to say that the 
last attack or threat of violence in the past year hap-
pened partly or entirely because they were perceived 
to be LGBT: two thirds (68 %) of gay men attribute a 
hate motive to the incident. In contrast, just three out 
of 10 (31 %) bisexual women feel that the last attack 
or threat of violence in the year before the survey hap-
pened partly or entirely because they were perceived 
to be LGBT (Figure 34).

Breaking down the data by country indicates that, in all 
EU Member States and Croatia, at least four out of 10 
of those respondents who experienced violence in the 
past year say that the last attack or threat of violence 
happened partly or entirely because they were per-
ceived to be LGBT. This ranged from fewer than half of 
the respondents in Sweden (46 %), Finland (48 %) and 
Denmark (49 %) to almost seven out of 10 in Croatia 
(69 %), Malta and Bulgaria (both 68 %) (Figure 34).

The data show that the findings on the prevalence of 
hate-motivated violence are not generally linked to how 
open respondents were about being LGBT. The excep-
tions are bisexual men and transgender respondents: 
the more open these respondents are about being LGBT, 
the more likely they are to say that they have been 
attacked or threatened with violence which they think 
happened partly or entirely because they were per-
ceived to be LGBT.

Figure 33:   Prevalence of hate-motivated violence in the previous 12 months, by type of violence and  

LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

6

5

6

5

5

8

3

3

3
3

3

4

4

2
2

3

2

3

0

5

10

15

20

25

30

Questions: 

FA1_2. When did the LAST physical/sexual attack or threat of violence happen?

All violence 

Assault 

Threat 

 FA2_2. When did the MOST SERIOUS physical/sexual attack or threat of violence you experienced in the last 5 years 
happen?

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4 (self-identification)]?

 FA2_5. Do you think this physical/sexual attack or threat happened partly or completely because you were perceived to 
be [category on the basis of A3 or A4]?

FA1_4. Thinking about the LAST physical/sexual attack or threat of violence, what happened to you?

 FA2_4. Thinking about the MOST SERIOUS physical/sexual attack or threat of violence, what happened to you?  
(Computed variable)

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past,  
man with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Note: 

Base: 

Source: 

57

 
 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 34:   Respondents who say the last incident of violence in the previous 12 months happened partly 
or entirely because they were perceived to be LGBT, by country and LGBT group (%)

100

90

80

70

60

50

40

30

20

10

0

54 54 55 55 56 56 56 58 58 58 58 59 59 59 60 60 61 62 62 64 64 64 68 68 69

59

68

59

46 48 49

55

48

31

SEFIDKLVATLUBEEEESCZDEUKFRNLLTHUIEPTESCYPLROIT SISKMTBGHR

EU LGBT average

Transgender
Gay men
Bisexual women
Lesbian women
Bisexual men

Question: 

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4 (self-identification)]? Yes.

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the last 12 months.

FRA, EU LGBT survey, 2012

The data show that respondents whose gender expres-
sion does not ‘match’ their sex assigned at birth are 
twice as likely as those whose gender expression is in 
line with societal expectations to say that they expe-
rienced hate-motivated violence in the year preced-
ing the survey. For example, 12 % of all gay men who 
identify as having a “feminine” gender expression were 
victims of violence which they think happened partly 
or entirely because they were perceived to be LGBT, 
compared with 6 % of all gay men with “masculine” 
gender expression (Figure 35).

To  explore  whether  there  is  a  link  between  gender 
expression and experiences of hate-motivated violence, 
it is possible to analyse the data on violence in con-
junction with respondents’ answers to questions asking 
whether they look “feminine” or “masculine”. Based on 
participants’ responses and the corresponding data on 
their sex assigned at birth, participants in the survey can 
be grouped according to whether or not their gender 
expression  ‘matches’  the  societal  norms  associated 
with their sex assigned at birth. Respondents who say 
they were assigned a female sex at birth and who say 
they look “masculine” are classified as having a ‘non-
matching’ gender expression. Those who were assigned 
a female sex at birth and who say they look “feminine” 
are classified as having a ‘matching’ gender expression.

“[Transgender people] have experienced a whole heap of 
violence, harassment and threats but for myself this has 
stopped since I seem to look like a straight man. Gender 
identity and expression discrimination is about whether 
people perceive you as fitting in; if you manage to look the 
part you can wiggle through.” (Belgium, transgender (transsexual), 
bisexual, 42)

58

Figure 35:   Prevalence of hate-motivated violence in the previous year, by gender expression and LGBT group (%)

Violence and harassment 

LGBT respondents average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

5 

5 

10 

8 

6 

12 

3 
4 

5 

5 

10 

11 

Gender expression
(look) matches the
sex assigned at birth

Birth sex and gender
expression (look)
do not match 

0

10

20

30

40

50

60

70

80

90 100

Questions: 

 FA1_2. When did the LAST physical/sexual attack or threat of violence happen? In the last 12 months.

 A5. Do you agree or disagree with the following statements? C. I look feminine; D. I look masculine. A2. What sex were you 
assigned at birth? [sex corrected by A3_1. Are/ were you a transgender person? 3. Woman with transsexual past; 4. Man 
with transsexual past]. (Computed variable)

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

2�1�1�  Rates of violent incidents 

Understanding how LGBT people experience violence 
also requires considering whether they are victims of 
repeated incidents of violence, meaning that they may 
have been attacked or threatened with violence multi-
ple times within a 12-month period. Respondents who 
say that they experienced violence in the 12 months 
before the survey were asked how many times they 
were attacked or threatened with violence during this 
period.31 The average number of violent incidents expe-
rienced per respondent per year was then calculated 
by taking the data on the number of violent incidents 
per year for the various respondent groups and apply-
ing the survey’s weighting methodology. Finally, these 
averages were projected to 1,000 people for ease of 
understanding.

This process gives an annual incidence rate of violence; 
in other words, of how often survey respondents were 
victims of attacks or threats of violence in the past 12 
months. The results show that the annual incidence 
rate of violence is around twice as high for transgender 
respondents as for lesbian, gay and bisexual respond-
ents. There were, on average, 512 violent incidents per 
1,000 transgender respondents in the 12 months before 
the survey, indicating one incident per two transgen-
der respondents. In contrast, there were 234 violent 
incidents per 1,000 gay men respondents and 273 per 
1,000 bisexual men respondents, equating to around 
one violent incident per four gay and bisexual men 
respondents per year (Figure 36).

The average number of violent incidents per 1,000 
respondents varies markedly across the EU Member 
States and Croatia. The numbers of violent attacks and 
threats per 1,000 respondents in Lithuania (525), Roma-
nia (522) and Poland (452) are more than three times 
those found in Slovenia (138), the Netherlands (157) and 
Denmark (159).

31  Respondents were asked to specify whether they have been 
victims of violence once, twice, three times, four times, 
five times, six to 10 times, or more than 10 times in the year 
preceding the survey. For this analysis, the “six to 10 times” 
category was assigned a fixed number of seven incidents 
and the “more than 10 times” category 11 incidents. Those 
who did not report any experience of violence in the past 
year were assigned 0. Note that this included all incidents, 
regardless of whether they were attributed by respondents 
to their being LGBT, and could have happened anywhere in 
the EU and Croatia.

59

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 36:   Average number of violent incidents in the previous 12 months per 1,000 respondents,  

by country and LGBT group

1000
900
800
700
600
500
400
300
200
100
0

Question: 

Base: 

Source: 

138 157 159 196 199 201 203 205 214 214 228 231 240 247 261 263 264 294 333 350 353 372 377 383 390

522 526

452

512

262

238 234 261 273

SINLDKITATDEESLUCYPTBEMTFRSECZELUKIE FI

HULVEEHRSKBGPLROLT

EU LGBT average

Transgender
Bisexual men
Bisexual women
Gay men
Lesbian women

 FA1_3. How many times did somebody physically/sexually attack or threaten you with violence in the last 12 months in 
the European Union/in this country?

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

About three in 10 of all transgender respondents say 
they were victims of violence or threats of violence 
more than three times in the previous year (Figure 37).

Figure 37:   Transgender respondents who were 
attacked or threatened with violence 
one or more times in the previous 
12 months, by number of incidents

More than
three times, 28 

 Once, 34 

 Three
times, 14

Twice, 24 

Question: 

Base: 

 FA1_3. How many times did somebody 
physically/sexually attack or threaten you with 
violence in the last 12 months in the European 
Union/in [the country where the last physical/
sexual attack or threat or violence took place]?

 EU LGBT survey transgender respondents who 
were attacked or threatened with violence in 
the 12 months preceding the survey.

Source: 

FRA, EU LGBT survey, 2012

2�2�  Type, perpetrators and 

place of hate-motivated 
violence

Of the hate-motivated violent incidents which hap-
pened within the year preceding the survey, the most 
common recent incident in the 12 months before the 
survey is that of a threat of violence (63 %), and spe-
cifically, almost always, a threat of physical violence 
(50 %). Threats of sexual violence are considerably 
less common: only 2 % of respondents say that the 
most recent incident was such a threat. More than one 
third (35 %) of respondents who experienced hate-
motivated violence in the year before the survey say, 
nevertheless, that the last incident of violence involved 
an attack. In these cases, the attack was almost always 
physical in nature (29 % of total violent incidents in the 
last year) (Figure 38).

Among  those  respondents  who  were  attacked  or 
threatened with violence in the year before the survey, 
the type of hate-motivated violence varies according to 
LGBT group. Bisexual women are the least likely to say 
that the last violent incident they experienced in the 
previous year involved an attack: a quarter of bisexual 
women respondents (25 %), compared with at least a 
third of respondents from the other LGBT groups, say 
that this was the case (Figure 39). Conversely, gay and 
bisexual men are more likely to say that the most recent 
incident of hate-motivated violence they experienced 
in the year before the survey was a physical attack.

60

 
 
Violence and harassment 

Figure 38:  Most recent incident of hate-motivated violence, by type of violence (%)

Threat of both
physical and sexual
violence, 11 

Don’t know, 2 

Threat of sexual
violence, 2 

Physical attack, 29 

Sexual attack, 3 

Physical and sexual
attack, 3 

Threat of physical
violence, 50 

Questions: 

FA1_4. Thinking about the LAST physical/sexual attack or threat of violence, what happened to you?

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4]?

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 
months partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

Figure 39:  Type of most recent incident of hate-motivated violence, by LGBT group (%)

Transgender

27 

5 

7 

41 

2 

17 

1 

Physical attack 

Bisexual men

32 

2 

3 

48 

1 

12 

2 

Sexual attack 

Bisexual women

12 

9 

4 

43 

7 

22 

3 

Threat of physical violence 

Physical and sexual attack 

Gay men

32 

2 

2 

56 

1 

7 

2 

Lesbian women

28 

5 

3 

37 

5 

19 

3 

0

10

20

30

40

50

60

70

80

90

100

Threat of sexual violence 

Threat of both physical
and sexual violence 

Don’t know 

Questions: 

FA1_4. Thinking about the LAST physical/sexual attack or threat of violence, what happened to you?

Note: 

Base: 

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4 (self-identification)]?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 
months partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

61

 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Attacks that include a sexual element, either alone or 
in conjunction with a physical attack, are much more 
likely to affect women and transgender respondents. 
Half of bisexual women (53 %) and one third (30 %) 
of  transgender  respondents  who  in  the  previous 
12 months were the victim of an attack which they 
think happened partly or entirely because they were 
perceived to be LGBT say that the last hate-motivated 
violence they experienced in the 12 months before the 
survey included a sexual element (Figure 40).

Looking at the results by country, the last incident of 
hate-motivated violence is most likely to have included 
an attack in France (48 % of all violent incidents), Latvia, 
Portugal and Sweden (all 41 %), and least likely to have 
involved an attack in Malta (17 %) (Figure 41).

“My [experience of] situations of harassment/discrimination/
violence is mainly random acts of verbal aggression, which 
in some cases turned into physical threats or violence when 
I reacted to the insults. They were from unknown people 
on the street, mostly at night, mostly youngsters, mostly of 
a non-native European ethnic background. The situation is 
worse now than it was, for example, four years ago.”  
(Belgium, gay, 37)

Respondents who experienced hate-motivated vio-
lence in either the previous year or the five years before 
the survey were asked to provide further details about 
the perpetrators of violence and where it took place. In 
this analysis, data on assaults and threats of violence 
are combined for clarity. There is little difference in the 
nature and reporting rates of violent attacks and threats 
of violence as described by respondents.

Figure 40:  Incidents of hate-motivated attack of a sexual nature as percentage of total incidents of hate-

motivated violence, by LGBT group (%)

EU LGBT average

17 

Lesbian women

22 

Gay men

10 

Bisexual women

53 

Bisexual men

12 

Transgender

30 

0

10

20

30

40

50

60

70

80

90

100

Questions: 

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4]? Yes.

Note: 

Base: 

 FA1_4. Thinking about the LAST physical/sexual attack or threat of violence, what happened to you? 2. Sexual attack; 
3. Physical and sexual attack. Computed variable.

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 
months partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

62

 
Figure 41:   Incidents of hate-motivated attacks as percentage of total incidents of hate-motivated violence,  

Violence and harassment 

by country (%)

EU LGBT average

35 

48 

41 

41 

41 

39 

38 

37 

37 

37 

36 

36 

34 

34 

33 

33 

33 

33 

32 

31 

31 

30 

30 

29 

27 

26 

26 

26 

17 

FR

SE

LV

PT

CZ

CY

PL

EE

BE

UK

AT

IE

ES

LT

LU

DE

HU

BG

DK

SI

IT

SK

FR

RO

EL

NL

FI

Mt

0

20

40

60

80

100

Question: 

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4 (self-identification)]? Yes.

Note: 

Base: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the last 12 months 
partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

Two thirds (64 %) of the incidents of hate-motivated 
violence encountered by respondents were commit-
ted by multiple perpetrators. In more than four fifths 
of cases (84 % of the most recent and 86 % of the 
most serious incidents of hate-motivated violence), the 
perpetrators of hate-motivated violence were male. 

Just 4 % of such incidents were committed only by 
female perpetrators. Moreover, in about seven out of 
10 of both the most recent (72 %) and the most serious 
(69 %) cases of violence, respondents assume that the 
perpetrators of hate-motivated violence were hetero-
sexual (Table 4).

63

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table 4:  Perpetrators of incidents of hate-motivated violence (%)

Last

Most serious

Was the perpetrator alone?

Alone

More perpetrators

What was the gender of the perpetrator(s)?

Male

Female

Both male and female

Don’t know

Do you think the perpetrator(s) was/were … ?

Gay

Lesbian

Bisexual

Heterosexual/straight

Mixed sexual orientation

Don’t know

Who was/were the perpetrator(s)?

Family/household member

Neighbour

Colleague at work 

Someone from school, college or university

A customer, client or patient

Someone else you know

Member of an extremist/racist group

Teenager or group of teenagers

Police officer

Security officer/bouncer

Other public official (e.g. border guard, civil servant)

Someone else you didn’t know

Other person(s)

36

64

84

4

12

0

3

0

1

72

4

20

7

6

5

12

4

12

15

36

4

4

3

45

3

36

64

86

4

10

0

3

1

2

69

4

21

7

5

4

14

3

11

14

33

3

3

2

42

3

Questions:  FA1_6.; FA2_6. Was the perpetrator alone, or was there more than one perpetrator?

FA1_8.; FA2_8. What was the gender of the perpetrator(s)?

FA1_9.; FA2_9. Do you think the perpetrator(s) was …?

FA1_7. Thinking only about the LAST incident – who was the perpetrator(s)? 

FA2_7. Do you think the perpetrator(s) was …? 

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months  
(last incident) or five years (most serious incident) partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

64

 
 
 
 
Violence and harassment 

As shown in Table 4, respondents indicate that the per-
petrators of violence were most often people they did 
not know: 45 % of the most recent and 42 % of the 
most serious hate-motivated violence suffered by the 
respondents were committed by ‘someone else they 
did not know’. In a third of violent incidents (36 % of 
most recent and 33 % of most serious violent incidents), 
the perpetrators were a teenager or a group of teen-
agers – a result that may reflect the high percentage 
of younger respondents in the EU LGBT survey. Of the 
violent incidents committed by someone the respond-
ent knew, the perpetrator was most often someone at 
school, college or university (12 % of most recent and 
14 % of most serious violent incidents). 

“Because I’m a lesbian and he was drunk, [my best friend’s 
husband] wanted to show me what a ‘real man’ is. He 
threw me to the ground, tried to rape me, he beat me, but 
I managed to run away. My best friend did not believe me. 
But she left her husband. I have now no contact with her. I 
did not complain; it’s no use; I‘ve already experienced three 
attempted rapes.” (France, lesbian, 24)

someone in their household. Concerning the most seri-
ous incident of hate-motivated violence, for example, 
11 % of lesbian and 16 % of bisexual women respond-
ents indicate that the perpetrator was, or the perpetra-
tors included, someone from their family or household. 
In contrast, 5 % of gay and bisexual men victims of 
violence say the perpetrator was a family or household 
member.

Turning to the location of hate-motivated violent inci-
dents, more than half of violent incidents took place 
outdoors, most frequently on the street or in a square, 
car park or other open public space (Table 5). Of those 
incidents which occurred inside, public places were 
again the most common locations: one in 10 incidents 
took place in a café, restaurant, pub or club, whereas 
one in 13 occurred on public transport, according to 
respondents. Respondents’ own homes are reported 
relatively frequently as the scene of violence: one in 
12 (8 %) of both the most recent and the most serious 
violent incidents took place at home.

In addition, 7 % of both the most recent and most seri-
ous hate-motivated violent incidents could be classified 
as domestic violence, committed by someone in the 
respondent’s family or household (Table 4). Women 
respondents are particularly likely to say that the last 
or most serious hate-motivated violent incident they 
experienced was committed by a family member or 

The characteristics of the most recent and the most 
serious hate-motivated violent incidents do not differ 
significantly in terms of the location of the incidents 
encountered. In addition, the location of incidents does 
not substantially differ by the type of violence – the 
distribution of the locations of hate-motivated attacks 
and threats of violence are fairly similar.

Table 5:  Location of incidents of hate-motivated violence (%)

Last

Most serious

At my home

In some other residential building, apartment

At school, university

At the workplace

In a café, restaurant, pub, club

In a car

In public transport

In a sports club

Elsewhere indoors

In a street, square, car park or other public place

In a park, forest

At an LGBT-specific venue (e.g. club, bar) or event (e.g. pride march)

Elsewhere outdoors

Other

Question:  FA1_10.; FA2_10. Where did it happen? 

8

2

5

4

11

1

8

1

3

44

4

3

5

2

8

2

7

3

9

1

7

0

2

43

6

4

6

2

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months (last 
incident) or five years (most serious incident) partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

65

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

2�3�  Reporting hate-

motivated violence

Violent  incidents,  including  those  of  the  type 
described  by  respondents  to  the  EU  LGBT  survey, 
are typically considered criminal acts in the EU and 
Croatia  and,  as  such,  should  or  could  be  reported 
to the police. To gather information on this issue, 
the  questionnaire  asked  respondents  if  they  or 
anyone  else  reported  either  the  last  or  the  most 
serious  incident  of  hate-motivated  crime  they 
experienced to the police, or, if not, to indicate why 
they had not done so. These findings are important 
because  they  offer  an  insight  into  the  proportion 
of  incidents  of  hate-motivated  violence  that  are 
reported to the police, as well as the reasons why 
victims may choose not to bring the incident to the 
attention of the police. To build up a broader picture 
of reporting, the survey also asked respondents if 
they reported the last or most serious incident of 
hate-motivated violence to another organisation.

Fewer than one in five of the most recent incidents of 
hate-motivated violence which respondents experi-
enced in the previous 12 months (17 %) were brought 
to the attention of the police (Figure 43). The incident 
of hate-motivated violence identified by respondents as 
the most serious in the preceding five years was more 
often reported to the police, although even in these 
cases fewer than a quarter of such incidents (22 %) 
were reported (Figure 42). Respondents in all LGBT 
groups are more likely to have reported the most seri-
ous than the most recent incident of hate-motivated 
violence they experienced to the police. In all groups 

and across both the most recent and the most serious 
violent incidents, respondents nevertheless reported 
fewer than a quarter of such incidents to the police 
(Figure 42).

“When I was sexually assaulted I managed to call the police 
for help while still being kept away by the man. The police 
on the phone laughed at me and started making jokes.  
[The police] hung up. [I]t was clearly a discrimination 
against gay and male rape cases in general. [The police] 
are extremely discriminating against LGBT people in 
general.” (France, gay, 25)

Overall, threats of violence are much less likely to be 
reported than attacks: for example, 11 % of the most 
recent threats of physical violence were brought to the 
attention of the police, compared with 29 % of the most 
recent physical attacks (Figure 43).

Of those respondents who were victims of hate-moti-
vated violence in either the year or the five years before 
the survey, lesbian and, especially, bisexual women 
respondents are considerably less likely than gay or 
bisexual men or transgender victims to report incidents 
of hate-motivated violence to the police, as regards 
both the last and the most serious incidents. This may 
be linked to the finding that women respondents are 
more often affected than men respondents by hate-
motivated violence of a sexual nature (see Section 2.2., 
Figure 39), since sexual violence is much less frequently 
reported than physical violence. Fewer than one in five 
(17 %) of the most serious sexual attacks experienced 
by participants in the last five years were reported to 
the police, compared with a third (32 %) of the most 
serious physical attacks .

Figure 42:  Most serious incident of hate-motivated violence reported to the police, by LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

22 

19 

23 

15 

18 

Transgender

24 

0

10

20

30

40

50

60

70

80

90

100

Questions: 

 FA2_5. Do you think this physical/sexual attack or threat happened partly or completely because you were perceived 
to be [category on the basis of A3 or A4]? Yes. 

FA2_11. 

Note: 

Base: 

Did you or anyone else report it to the police?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous five 
years partly or completely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

66

Figure 43:  Incidents of hate-motivated violence reported to the police, by type of violence (%)

Violence and harassment 

EU LGBT average

Physical attack

Sexual attack

Physical and sexual attack

Threat of physical violence

Threat of sexual violence

Threat of both physical
and sexual violence

17 

22 

29 

32 

20 

17 

22 

25 

4 

11 

14 

10 

11 

14 

0

10

20

30

40

50

60

70

80

90

100

Last 

Most serious 

Questions: 

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4]? Yes. FA1_11. Did you or 
anyone else report it to the police? Yes. 

FA1_4. Thinking about the LAST physical/sexual attack or threat of violence, what happened to you?

 FA2_5. Do you think this physical/sexual attack or threat happened partly or completely because you were perceived 
to be [category on the basis of A3 or A4]? Yes. 

FA2_11. Did you or anyone else report it to the police? Yes. 

FA2_4. Thinking about the MOST SERIOUS physical/sexual attack or threat of violence, what happened to you?

Note: 

Base: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months 
(last incidence) or five years (most serious incident) partly or completely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

Figure 44: Last hate-motivated incident reported to the police, by country and by LGBT group (%)

100

90

80

70

60

50

40

30

20

10

0

6 7 9 10 10 10 12 13 13 13 13 14 14 14 16 16 16 16 18 19 20 21 23 23 23 24 24 25
ELEEATROHUPLLUBGSK IT LTLVDKCZESDEMTFI PT IECYSIHRNLSEBEFRUK

17

15 17 13 13

21

Lesbian women
EU LGBT average
Bisexual men
Gay men
Bisexual women
Transgender

Question:  

 FA1_5. Do you think the LAST incident of physical/sexual attack or threat of violence in the past 12 months happened 
partly or completely because you were perceived to be [category on the basis of A3 or A4]? Yes. 

FA1_11. Did you or anyone else report it to the police? Yes.

Note: 

Base: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 
months partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

67

 
 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Reporting rates for the most recent incident of hate-
motivated  violence  vary  considerably  by  country: 
respondents in the United Kingdom (25 %), Belgium 
(24 %) and France (24 %) are four times as likely as 
those in Greece (6 %) to have reported the most recent 
incident to the police (Figure 44).

Victims who say they did not report the last or most 
serious incident of violence they experienced were 
asked about their reasons for not doing so. The ques-
tion asked respondents to mark all the reasons among 
those listed that applied to their situation (Table 6). The 
most frequently mentioned reason for not reporting the 
case to the police is that respondents did not think they 
would do anything about it (50 % in the case of last and 
43 % in the case of most serious violent incidents). In 
addition, around a third of respondents indicate that 
they felt the police could not do anything about their 
case (37 % for most recent and 32 % for most serious 
incident), that the incident was too minor, not serious 
enough, or that reporting never occurred to them (38 % 
for last incident, 30 % for most serious incident). Around 
a third of respondents say that a factor in their choosing 
not to report the incident was fear of a transphobic or 
homophobic reaction from the police.

“I was physically attacked during a party against 
homophobia in a public space, by three men, possibly 
members of a racist group. The attack resulted in many 
wounds on my face and nose, as well as destruction 
and tearing apart of my clothes. I did not report because 
I thought this would not bring about any result.” 

(Greece, gay, 18)

“The incident of violence was at a beach party in Spain. I was 
drunk and with my boyfriend so maybe wasn’t being very 
discreet about being gay. I was attacked without warning for 
no apparent reason. I did not report it as I did not think the 
police would be interested as I was just a tourist and there 
was very little I could tell them.” (United Kingdom, gay, 26)

Psychological and emotional factors also play a role: 
almost three in 10 respondents who experienced hate-
motivated violence say they did not report the most 
recent (26 %) or most serious (29 %) incident because 
they felt ashamed or embarrassed about it and they 
wanted  to  keep  it  secret,  whereas  a  quarter  say  a 
reason for their non-reporting was fear of the offender 
or a reprisal incident (25 % in both most serious and 
most recent incidents) (Table 6). 

Table 6:  Reasons for not reporting incidents of hate-motivated violence to the police (%)

Last

Most serious

Did not think they would do anything

Too minor/not serious enough/never occurred to me

Did not think they could do anything

Fear of a homophobic and/or transphobic reaction from the police

Shame, embarrassment, didn’t want anyone to know

Fear of offender, fear of reprisal

Dealt with it myself/involved a friend/family matter

Too emotionally upset to contact the police

Would not be believed

Didn’t want the offender arrested or to 
get in trouble with the police

Thought it was my fault

Somebody stopped me or discouraged me

Went someplace else for help

Went directly to a magistrate or judge to report the incident

Other reason

Question:  FA1_12.; FA2_12. Why did you not report it to the police?

50

38

37

34

26

25

19

16

16

6

6

5

5

0

8

43

30

32

29

29

25

20

18

14

5

7

5

4

0

8

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months (last 
incidence) or five years (most serious incident) partly or entirely because they were perceived to be LGBT, and did not report the 
incident to the police.

Source: 

FRA, EU LGBT survey, 2012

68

Figure 45:   Reporting of incidents of hate-motivated violence to the police, LGBT organisations and other 

Violence and harassment 

organisations (%)

Reported to the police

Reported to LGBT organisations

Reported to other organisations

22

17

7
8

16
16

0

10

20

30

40

50

60

70

80

90

100

Most serious incident 

Last incident 

Question: 

FA1_13.; FA2_13. Did you or anyone else report it to any of the following organisations/institutions? 

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months 
(last incidence) or five years (most serious incident) partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

As well as reporting incidents of hate-motivated vio-
lence to the police, victims may choose to report such 
incidents to other organisations or institutions. One in 
six (17 %) of those respondents who say that they expe-
rienced hate-motivated violence reported the last or 
most serious incident to one or more of the following: 
an NGO, an LGBT organisation, a general victim support 
organisation, a state or national institution such as an 
equality body, a hospital or other medical service, a rape 
crisis centre or another organisation (Table 7).

Of the types of organisation or institution mentioned 
by the questionnaire, respondents are most likely to 
report incidents of hate-motivated violence to an LGBT 
organisation (8 % for the last and 7 % for the most seri-
ous hate-motivated violent incident). Violent assaults 
were reported in higher numbers to hospital or other 
medical services (10 % for both last and most serious 
violent incidents).

Table 7:  Reporting of incidents of hate-motivated violence to organisations other than the police (%)

Last

Most serious

Reporting

Reported

No, did not report

Don’t know

Type of organisations/institutions

Non-governmental organisation

LGBT organisation

General victim support organisation

State or national institution (such as an equality body)

Hospital or other medical service

Rape crisis centre

Other organisation

17

82

2

2

8

2

2

4

1

3

17

81

2

2

7

3

2

6

1

3

Question:  FA1_13.; FA2_13. Did you or anyone else report it to any of the following organisations/institutions?

Base: 

 EU LGBT survey respondents who were physically/sexually attacked or threatened with violence in the previous 12 months  
(last incidence) or five years (most serious incident) partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

69

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

2�4�  Prevalence of 

harassment and hate-
motivated harassment

Almost half (47 %) of all respondents indicate that they 
were harassed by someone or a group, for any reason, 
in a way that really annoyed, offended or upset them – 
at work, at home, on the street, on public transport, in 
a shop, in an office or on the internet – in the five years 
preceding the survey. A quarter (25 %) of all respond-
ents indicate that they were harassed for any reason in 
the 12 months before the survey (Figure 46).

The data on the prevalence of the harassment show 
that, among the LGBT groups, transgender respondents 
are most likely to say that they were harassed in both 
time periods: a third (35 %) were harassed in the year 
prior to the survey, compared with 21 % of bisexual 
men and 22 % of gay men respondents.

Of those respondents who say they experienced har-
assment in the 12 months preceding the survey, three 
quarters (75 %) think that the last such incident hap-
pened partly or entirely because they were perceived 
to be LGBT. Combined with the data on prevalence of 
harassment,  this  means that in the 12  months pre-
ceding the  survey  a  fifth  (19  %) of all respondents 
experienced harassment which they think happened 
partly  or  entirely  because  they  were  perceived  to 
be  LGBT.  Lesbian  women  (23  %)  and  transgender 

respondents (22 %) are most likely to have experienced 
hate-motivated harassment in the year preceding the 
survey (Figure 47).

“I have been witness to the attempt to stop the 
dissemination of the first Romanian documentary on 
homosexuality in a cinema in Bucharest, during which  
far-right group demonstrators waved placards and screamed 
homophobic insults without physical violence.”  
(Romania, gay, 39)

Men respondents are more likely than women respond-
ents to think that the last incident of harassment hap-
pened partly or entirely because they were perceived 
to be LGBT: gay men (83 %) are more likely to attribute 
a hate motive than lesbian women (77 %), and bisexual 
men (69 %) are more likely than bisexual women (52 %) 
to feel that their sexual orientation played a role.

“I have heard experiences from my other gay friends, 
where some of them have had a much harder time being 
gay than I have. This is usually connected to how feminine 
they behave. Other gay friends have experienced verbal 
harassment at school, and verbal harassment in public; 
however, the two people in question here are much more 
feminine and stand out much more.” (Denmark, gay, 19)

Figure 46:  Prevalence of harassment in the previous five years and in the previous 12 months,  

by LGBT group (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

47

43

52

54

25

30

22

21

32

38

35

58

0

10

20

30

40

50

60

70

80

90

100

Prevalence of harassment in the last 5 years

Prevalence of harassment in the last 12 months

Questions: 

 F1_B. In the last five years, have you been: personally harassed by someone or a group for any reason in a way that really 
annoyed, offended or upset you – either at work, home, on the street, on public transport, in a shop, in an office or on the 
internet – or anywhere? Yes.

FB1_2. When did the LAST incident of harassment happen? 1. In the last 12 months.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

70

 
Figure 47:   Prevalence of hate-motivated harassment in the preceding 12 months, by country  

and LGBT group (%)

Violence and harassment 

100

90

80

70

60

50

40

30

20

10

0

14 15 15 16 17 17 17 18 19 20 20 20 21 21 21 21 22 23 23 23 24 24 24 24 26 26 26 27

19

23

18 17 15

22

LUESFRNLDKITSE FIBECZDESIPLELATROLVPTUKHUSKIEEECYBGLTMTHR

EU LGBT average

Transgender
Bisexual men
Gay men
Bisexual women
Lesbian women

Questions: 

FB1_2. When did the LAST incident of harassment happen?

 FB2_2. When did the MOST SERIOUS incident of harassment you experienced in the last 5 years happen?

 FB1_5. Do you think the LAST incident of harassment in the past 12 months happened partly or completely because you 
were perceived to be [category on the basis of A3 or A4]?

 FB2_5. Do you think this incident of harassment happened partly or completely because you were perceived to be 
[category on the basis of A3 or A4 (self-identification)]?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Note: 

Base: 

Source: 

Among the countries covered by the survey, respond-
ents in Bulgaria (26 %), Croatia (27 %), Lithuania (26 %) 
and Malta (26 %) are almost twice as likely as those 
in France (15 %), Luxembourg (14 %) and Spain (15 %) 
to have experienced hate-motivated violence in the 12 
months leading up to the survey (Figure 47).

As in the case of incidents of hate-motivated violence, 
the extent to which respondents are open about being 
LGBT has very little effect on the likelihood of their 
experiencing hate-motivated harassment. In each LGBT 
group, the highest rates of hate-motivated harassment 
are reported not by those who are either open to all or 
open to none, but by those who are open to a few or 
most of the people in their social environment.

Sociodemographic  analyses  of  the  data  on  harass-
ment indicate that the youngest respondents, those 
with the lowest incomes and those not in paid jobs 
are the most likely to have experienced incidents of 
hate-motivated harassment in the 12 months before 
the survey (Table 8). In addition, with the exception of 
transgender respondents, those who have not com-
pleted higher education are more likely than those with 
higher degrees to say they experienced hate-motivated 
harassment in the year before the survey. These are the 
same groups that face the most discrimination because 
of being LGBT and hate-motivated violence.

71

 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table 8:  Prevalence of hate-motivated harassment in the preceding 12 months, by household income (%)

Household income

EU LGBT  
average

Lesbian  
women

Gay men

Bisexual  
women

Bisexual  
men

Transgen-
der

Under lowest quartile

Between lowest quartile and median

Between median and highest quartile

Above highest quartile

23

19

18

17

27

23

21

22

22

18

17

16

18

16

17

16

18

14

15

13

26

20

21

20

Base:  All EU LGBT survey respondents.

Source:  FRA, EU LGBT survey, 2012

2�4�1�  Incidence rate of harassment

Using the same methodology as that described in Sec-
tion 2.1.1, the data show a high average incidence rate 
of harassment of 1,012 incidents per 1,000 respondents. 
This translates to an overall average of one incident of 

harassment per respondent to the EU LGBT survey in 
the year preceding the survey (Figure 48).

There is, however, considerable variation in the inci-
dence rate across both the LGBT groups and the coun-
tries covered by the survey. The incidence rate among 

Figure 48:  Average number of harassment incidents in the previous 12 months per 1,000 respondents, 

by country and LGBT group

Transgender
Bisexual men
Bisexual women
Gay men
Lesbian women

EU LGBT average
BG
LT
EE
HR
HU
MT
RO
CY
PL
IE
SK
UK
LV
PT
SI
AT
SE
CZ
FI
DE
EL
BE
DK
FR
IT
LU
NL
ES

1,753 

871 

845 

1,227 

1,136 

1,012 

1,704 

1,571 

1,496 
1,486 

1,446 
1,428 

1,356 
1,342 

1,295 
1,282 
1,279 

1,234 
1,207 
1,186 

1,081 
1,078 
1,053 
1,036 
1,015 
1,007 
973 

919 

792 
779 
778 
771 

718 
683 

0

200

400

600

800

1,000

1,200

1,400

1,600

1,800

2,000

Question: 

FB1_3. How many times did somebody harass you in the last 12 months?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

72

Violence and harassment 

These patterns vary only slightly across the different 
LGBT groups (Table 9). Transgender respondents, for 
example, are more likely than the other LGBT groups to 
say that the last incident of hate-motivated harassment 
they experienced had involved humiliation and verbal 
abuse, aggressive gestures and being isolated.

Looking at these results by the respondent’s country of 
residence, the last hate-motivated harassment incident 
is most likely to have included only verbal insults in 
the Netherlands, Denmark, France and Sweden, and 
most likely to have involved both verbal and non-verbal 
insults in Lithuania, Estonia, Poland, Bulgaria and Croatia 
(Figure 50).

“My daily experience: spitting on the window, insults 
at proximity and in the bookstore, grimace of disgust, 
inappropriate comments about LGBT people in general. This 
has never been reported to any authority because it would 
have been every day. Besides, I dealt myself with the most 
aggressive.” (Belgium, gay, 37)

transgender respondents (1,753 incidents per 1,000 
transgender respondents), for example, is twice as high 
as for gay men (845 incidents per 1,000 gay respond-
ents) and bisexual men (871 incidents per 1,000 bisexual 
men respondents) respondents. Female respondents 
also  experienced  a  higher  average  number  of  har-
assment incidents per 1,000 respondents than male 
respondents.

Similarly, the highest incidence rate in an EU Member 
State, of 1,704 incidents per 1,000 respondents in Bul-
garia, is more than twice the lowest, of 683 incidents 
per 1,000 respondents in Spain.

2�5�  Type, perpetrators and 

place of hate-motivated 
harassment

Of the incidents of hate-motivated harassment which 
respondents  say  happened  within  the  past  year, 
the last incident most frequently involved ridiculing 
(68 %) or name calling (67 %) (Figure 49). Almost two 
thirds (60 %) of the last incidents of hate-motivated 
harassment included both verbal and non-verbal insults 
(Figure 50).

Figure 49: Type of most recent incident of hate-motivated harassment (%)

Name calling 

Bullying 

22

Ridiculing 

Other verbal insult,
abuse, humiliation 
Excessive/constant
negative comments 

67

68

49

44

Aggressive gestures 

33

Isolation/ignoring 

Other non-verbal insult,
abuse humiliation 

18

16

Other 

4

0

10

20

30

40

50

60

70

80

90

100

Question: 

FB1_4. Thinking about the LAST incident of harassment, what happened to you?

Base: 

Source: 

EU LGBT survey respondents who were harassed in the last 12 months partly or entirely because they were perceived to be LGBT.

FRA, EU LGBT survey, 2012

73

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table 9:  Type of hate-motivated harassment experienced, by LGBT group (%)

g
n

i
l
l

a
c
e
m
a
N

67

70

59

69

66

g
n
y

i

l
l

u
B

22

23

19

25

27

g
n

i
l

u
c
i
d
R

i

68

69

67

75

74

,
t
l
u
s
n

i

l

a
b
r
e
v
r
e
h
t
O

n
o
i
t
a

i
l
i

m
u
h

,

e
s
u
b
a

49

48

48

49

56

t
n
a
t
s
n
o
c
/
e
v
i
s
s
e
c
x
E

s
t
n
e
m
m
o
c
e
v
i
t
a
g
e
n

44

42

46

49

46

s
e
r
u
t
s
e
g
e
v
i
s
s
e
r
g
g
A

33

32

29

32

39

g
n
i
r
o
n
g

i

;
n
o
i
t
a
o
s
I

l

18

17

19

22

26

-
n

i

l

a
b
r
e
v
-
n
o
n
r
e
h
t
O

n
o
i
t
a

i
l
i

m
u
h

,

e
s
u
b
a
,
t
l
u
s

16

16

15

18

20

r
e
h
t
O

4

4

5

4

5

EU LGBT average

Gay men

Bisexual women

Bisexual men

Transgender

Question: FB1_4. Thinking about the LAST incident of harassment, what happened to you?

Base: 

 EU LGBT survey respondents who were harassed in the previous 12 months partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

Figure 50:  Most recent incident of hate-motivated harassment, by type of harassment and country (%)

EU LGBT average
NL
DK
FR
SE
MT
EL
RO
BE
CZ
IE
DE
SI
UK
ES
LV
HU
CY
AT
IT
SK
PL
FI
LU
BG
PT
HR
EE
LT

0

32

6

39

38

38

38

36

36

36

35

35

34

33

33

33

32

31

31

31

31

6

11

6

6

5

5

3

7

4

5

7

5

6

6

6

11

7

4

3

7

8

7

10

3

10

7

7

6

28

28

28

28

27

27

26

23

20

20

10

60

53

49

54

54

57

57

60

57

58

59

58

62

59

61

59

63

58

57

62

60

69

62

60

68

61

68

72

74

2

2

2

2

2

2

3

1

2

3

2

2

0

2

2

4

2

1

4

3

4

1

3

3

2

3

2

2

1

20

30

40

50

60

70

80

90

100

Verbal insult only 

Non-verbal insult only 

Both verbal and non-verbal insults 

Other 

Question: 

Base: 

 FB1_4. Thinking about the LAST incident of harassment, what happened to you: verbal insults only, Non-verbal insults 
only, Both verbal and non-verbal insults, Other?

 EU LGBT survey respondents who were harassed in the previous 12 months partly or entirely because they were perceived 
to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

74

 
 
 
 
 
 
 
 
 
 
 
 
 
Violence and harassment 

The characteristics of the perpetrators of hate-moti-
vated harassment mirror those of the perpetrators of 
hate-motivated violence. Two thirds of both the most 
recent and the most serious incidents of hate-motivated 
harassment were committed by more than one perpe-
trator. Perpetrators were generally male and not known 
to the victim. ‘Someone else’ the respondent did not 
know committed 44 % of the most recent and 40 % of 
the most serious incidents of hate-motivated harass-
ment encountered by respondents, whereas a teenager 
or group of teenagers were the perpetrators in a third 
of the most recent (33 %) and most serious (30 %) inci-
dents of hate-motivated harassment experienced by 
respondents (Table 10). 

In those cases in which the respondent did know the per-
petrators, they were most frequently someone at school, 
college or university. This probably reflects the young 
age of many respondents. Members of the respond-
ents’ family or household were the perpetrators in 7 % 
of the most recent and the most serious incidents of 
hate-motivated harassment (Table 7), which is the same 
proportion as for hate-motivated violence (see Table 4).

“Recently I experienced a humiliating incident, whereby 
a policeman nearly dragged us out of the car and publicly 
ridiculed me and my partner during a typical audit, as the 
place where we had parked is considered a gay area.”  
(Greece, transgender (gender variant), gay, 27)

Table 10: Perpetrators of incidents of hate-motivated harassment (%)

Last

Most serious

Was the perpetrator alone?

Alone

More perpetrators

Don’t know

What was the gender of the perpetrator(s)?

Male

Female

Both male and female

Don’t know

Who was/were the perpetrator(s)?

Family/household member

Neighbour

Colleague at work 

Someone from school, college or university

A customer, client or patient

Someone else you know 

Member of an extremist/racist group 

Teenager or group of teenagers

Police officer

Security officer/bouncer

Other public official (e.g. border guard, civil servant)

Someone else you didn’t know

Other person(s)

32

66

2

66

9

24

1

7

5

14

17

4

15

8

33

3

2

3

44

4

30

68

2

69

8

22

1

7

5

12

21

3

13

8

30

2

2

3

40

3

Questions:  FB1_6.; FB2_6. Was the perpetrator alone, or was there more than one perpetrator?

FB1_8.; FB2_8. What was the gender of the perpetrator(s)?

FB1_9.; FB2_9. Do you think the perpetrator(s) was …?

FB1_7. Thinking only about the LAST incident – who was the perpetrator(s)?

FB2_7. Do you think the perpetrator(s) was …?

Base: 

 EU LGBT survey respondents who were harassed in the previous 12 months (last incident) or five years (most serious incident) 
partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

75

 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

In comparison with the data on hate-motivated vio-
lence, slightly more incidents of hate-motivated har-
assment took place in closed public spaces. As shown 
in Table 11, almost half of the last (47 %) and the most 
serious (49 %) incidents of hate-motivated harassment 
encountered by respondents took place indoors. Of such 
locations, the workplace and education facilities are the 
most frequently mentioned: 12 % of the most recent 
incidents happened at work and 14 % of the most seri-
ous hate-motivated harassment happened at school 
or university.

One in four (39 % of the most recent and 40 % of the 
most serious) incidents of hate-motivated harassment 
happened outdoors in public places, nearly always on 
the street or in a square, car park or other open public 
space. Almost one in 10 of the most recent incidents of 
hate-motivated harassment and 6 % of the most serious 
experiences of discrimination happened on the internet.

“The incident of harassment was in a pub in England. A man 
was smiling and looking at me a few metres away. I made 
eye contact a couple of times but then turned away as I was 
with my boyfriend. As soon as this happened he started 
shouting ‘Faggot! He’s a faggot!’” (United Kingdom, gay, 26)

2�6�  Reporting of hate-

motivated harassment

Some  of  the  incidents  of  harassment  described  by 
respondents could be considered as criminal acts. How-
ever, most activities that typically characterised har-
assment incidents (ridiculing, name calling, aggressive 
gestures) often do not qualify as criminal activities, even 
if they can be very frightening or upsetting for the victims.

The vast majority of respondents did not report either 
the most recent or the most serious incident of hate-
motivated harassment they experienced. The highest 
reporting rates are among transgender respondents 
(6 % for the most recent incident) (Figure 51). Harass-
ment that included bullying and aggressive gestures is 
slightly more likely than other types of harassment to 
be brought to the attention of the police.

Reporting  rates  are  very  low  across  all  the  countries 
covered by the survey. Respondents in Malta and the 
Netherlands are the most likely to say that they reported 
the most recent incident of hate-motivated harassment 
they encountered to the police (both 7 %). None of the 
most  recent  incidents  of  hate-motivated  harassment 

Table 11:  Location of incidents of hate-motivated harassment (%)

Hate-motivated harassment

Last

Most serious

At my home

In some other residential building, apartment

At school, university

At the workplace

In a café, restaurant, pub, club

In a car

In public transport

In a sports club

Elsewhere indoors

In a street, square, car park or other public place

In a park, forest

At an LGBT-specific venue (e.g. club, bar) 
or event (e.g. pride march)

Elsewhere outdoors

On the internet/email (including Facebook, Twitter etc.)

Other

Question:  FB1_10.; FB2_10. Where did it happen?

4

2

9

12

10

0

6

1

3

33

2

2

4

9

3

5

2

14

10

8

0

6

1

3

33

2

2

5

6

3

Base: 

 EU LGBT survey respondents who were harassed in the previous 12 months (last incidence) or five years (most serious incident) 
partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

76

Figure 51:   Respondents who reported the most recent incident of hate-motivated harassment to the police, 

by country and LGBT group (%)

Violence and harassment 

30

25

20

15

10

5

0

2 2 2 2 2 3

3
3
0 1
LVFISKROELATPLBGDEEECYCZDKLTHUPTIEITESSI

3

3

3

3

3

3

3

3 4 4 4 5 6 6 6 6 7 7

4

4

3

3

1

6

BGSEFRLUUKHRNLMT

EU LGBT average

Transgender
Bisexual men
Bisexual women
Gay men
Lesbian women

Questions: 

 FB1_5. Do you think the LAST incident of harassment in the past 12 months happened partly or completely because you 
were perceived to be [category on the basis of A3 or A4 (self-identification)]? 

FB1_11. Did you or anyone else report it to the police?

Note: 

Base: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

 EU LGBT survey respondents who were harassed in the previous 12 months partly or entirely because they were perceived 
to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

experienced by respondents living in Latvia, and fewer 
than or 2 % of those experienced by respondents residing 
in Austria, Finland, Greece, Poland, Romania and Slovakia 
were reported to the police, according to respondents.

Victims who say they did not report the hate-motivated 
harassment they experienced to the police were asked 
why they did not do so. The questionnaire asked respond-
ents to mark all the reasons among those listed that 
applied to their situation (Table 12).

Respondents’ reasons for not reporting incidents of hate-
motivated harassment to the police largely match their 
reasons for not reporting incidents of hate-motivated 
violence. Respondents most often say that the incident 
was too minor, not serious enough to be reported, or that 
it did not occur to them that they could report it (56 % for 
the last and 47 % for the most serious incidents). Around 
a third of respondents felt that the police either would not 
or could not do anything about the last or most serious 
incident of hate-motivated harassment they had experi-
enced, whereas almost one in five feared a homophobic 
or transphobic reaction from the police.

Respondents’ reasons for non-reporting also indicated 
the importance of psychological or emotional factors. 
In the case of the most serious incident, 20 % say they 
did not report the incident to the police because they 

felt ashamed and/or embarrassed and wanted to keep 
it a secret. About one in eight victims of hate-motivated 
harassment chose not to report the incident to the police 
because they were afraid of possible reprisals by the 
offenders (12 % in the case of the last and 14 % in the 
case of the most serious incident).

“In many cases there is the fear that, if we report violence/
harassment, no one will listen to us and it will be reproached 
to us that ‘we chose to be faggots’.” (Romania, gay, 23)

In addition to the low rates of reporting to the police, 
the vast majority of the respondents who experienced 
hate-motivated harassment did not report the incident 
to another organisation or institution, namely an NGO, 
an LGBT organisation, a general victim support organi-
sation, a state or national institution such as an equal-
ity body, a hospital or other medical service, a rape 
crisis centre or another organisation. Nine out of 10 of 
respondents did not report the most recent (90 %) or 
the most serious (89 %) such incident to one of these 
organisations (Table 13).

Those few incidents of hate-motivated harassment that 
were reported to institutions or organisations other than 
the police are most likely to have been reported to an 
LGBT organisation (5 % of both the most recent and the 
most serious incidents of hate-motivated harassment).

77

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table 12: Reasons for not reporting incidents of hate-motivated harassment to the police (%)

Last

Most serious

Too minor/not serious enough/never occurred to me

Did not think they would do anything

Did not think they could do anything

Dealt with it myself/involved a friend/family matter

Shame, embarrassment, didn’t want anyone to know

Fear of a homophobic and/or transphobic reaction from the police

Fear of offender, fear of reprisal

Would not be believed

Too emotionally upset to contact the police

Didn’t want the offender arrested or to get in trouble with the police

Thought it was my fault

Went someplace else for help

Somebody stopped me or discouraged me

Went directly to a magistrate or judge to report the incident

Other reason

Question:  FB1_12.;. Why did you not report it to the police?

56

39

31

21

17

17

12

9

6

4

3

3

3

0

8

47

37

30

22

20

17

14

9

8

4

4

3

3

0

7

Base: 

 EU LGBT survey respondents who were harassed in the previous 12 months (last incidence) or five years (most serious incident) 
partly or entirely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

Table 13: Reporting of incidents of hate-motivated harassment to organisations other than the police (%)

Reporting

Reported

No, did not report

Don’t know

Type of organisation/institution

Non-governmental organisation

LGBT organisation

General victim support organisation

State or national institution (such as an equality body)

Hospital or other medical service

Rape crisis centre

Internet service provider

Other organisation

Last

8

90

2

1

5

1

1

1

0

1

2

Most serious

9

89

2

1

5

1

1

1

0

1

3

Question:  FB1_13.; FB2_13. Did you or anyone else report it to any of the following organisations/institutions?

Base: 

 EU LGBT survey respondents who were harassed in the previous 12 months (last incidence) or five years (most serious incident) 
partly or completely because they were perceived to be LGBT.

Source: 

FRA, EU LGBT survey, 2012

78

3

Daily life

A  pluralistic  and  inclusive  social  environment 
based on the principle of equality as enshrined in 
Article 20 of the EU Charter of Fundamental Rights is 
conducive to an environment where LGBT persons 
can live and express themselves openly and freely, 
as stipulated by Article 11 of the EU Charter, on the 
right to freedom of expression.

Respondents  were  asked,  in  different  parts  of  the 
survey, about their experiences across a range of key 
aspects of social life, including their openness about 
being LGBT and their perceptions and experiences of 
public attitudes and behaviour towards LGBT persons. 
The survey also asked LGBT persons who, alone or with 
their same-sex partner, moved to an (other) EU Member 
State about any obstacles faced in accessing benefits or 
services that would have been available for a different-
sex spouse or partner. Transgender respondents were 
also asked about if, and upon which criteria, they were 
able to modify the relevant entries in official docu-
ments, such as passports and other identity documents, 
to match their preferred gender.

By  presenting  these  results,  this  chapter  offers  an 
insight into how the daily lives of lesbian, gay, bisexual 
and transgender people within the EU are shaped. The 
findings shed light on the context in which discrimina-
tion, violence and harassment take place, as well as 
on the measures and strategies that LGBT people may 
adopt in order to avoid them. They also highlight some 
of the obstacles and barriers which prevent LGBT people 
from leading a dignified life.

Issues of public attitudes, visibility, negative reactions 
and avoidance behaviour cut across a number of funda-
mental rights, including the right to freedom of expres-
sion and issues of human dignity. Moreover, they are 
closely interlinked. LGBT people who, for example, think 
that the general population harbours negative attitudes 

towards them may alter their behaviour by not being 
open about themselves, avoiding certain locations or 
not using particular services. This in turn can have a 
bearing on experiences of discrimination, as people 
may avoid certain locations or services where they 
expect to be treated unequally. In addition, the data 
on respondents who avoid visiting certain locations, 
holding hands or expressing their gender identity for 
fear of being assaulted, threatened or harassed should 
be read in conjunction with the section on violence and 
harassment, as well as alongside overall crime rates and 
fear of crime rates.

“In Belgium, LGBT people are not legally discriminated 
against. It‘s the society that looks differently at us. They look 
at us as if we have to be tolerated. […] We have all the same 
rights as straight people, we can marry, we‘re allowed to 
adopt children ... But still, people look down on us.”  
(Belgium, lesbian, 19)

The chapter starts by analysing participants’ responses 
concerning how open they are about being LGBT, break-
ing down the data by openness to different groups of 
people such as family, friends and work colleagues. 
It then presents findings on respondents’ opinions of 
public attitudes and behaviour towards LGBT people, 
focusing particularly on whether or not respondents 
avoid certain behaviours, such as holding hands with 
their partner, or locations for fear of being assaulted, 
threatened or harassed for being LGBT. The chapter 
then analyses data on the possibility for transgender 
respondents to reassign the sex assigned to them at 
birth or change their gender markers in official docu-
ments, before examining the data relating to migra-
tion, free movement and the mutual recognition of civil 
status in other EU Member States.

79

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

3�1�  Openness about 
being LGBT

One crucial aspect of realising the right to freedom of 
expression is being able to express one’s identity in 
public without fear of discrimination or violence. To 
gauge the extent to which respondents felt able to be 
open about being LGBT, the survey asked respondents 
“to how many people among the following groups are 
you open about yourself being LGBT: family members 
(other than your partner; friends; neighbours; work 
colleagues/schoolmates; immediate superior/head of 
department; customers, clients etc. at work; and medi-
cal staff/healthcare providers”.

“From my experience, those who are not out about their 
sexuality get discriminated and ridiculed more. The hiding 
is interpreted as ‘cowardice’ and it is this that attracts the 
negativity.” (Malta, lesbian, 36)

Almost two thirds (63 %) of all respondents do not or 
only rarely reveal their sexual orientation or gender 
identity to most people in their private and professional 
lives. Bisexual respondents, and particularly bisexual 
men, are the least likely to be open about being LGBT 
(Figure 52).

“The worst aspect of being a lesbian for me is that I have to 
hide it all the time at my workplace and with acquaintances 
and friends. If I were open about my sexuality, my life would 
be much harder. I would suffer verbal insults, mocking and 
other forms of psychological violence as well as worse 
career opportunities. This is one of the main reasons I am 
leaving Bulgaria.” (Bulgaria, lesbian, 28)

Overall, about four in every 10 respondents do not 
reveal  their  LGBT  identity  to  anyone  in  their  social 
environment apart from a few friends. However, this 
rises to half of respondents among bisexual women and 
transgender people, and three quarters of respondents 
among bisexual men.

“I feel like I have no real friends. Whenever I try to hint that 
I might be gay, I lose them. All of them. I live in fear of being 
alone and/or harassed.” (Romania, gay, 23)

In contrast, about four in 10 respondents are often or 
always open about being LGBT, with gay and lesbian 
respondents most likely to reveal their sexual orienta-
tion to those they interact with socially. Only one in 
10 bisexual men are often or always open about their 
sexual orientation (Figure 52).

“It is generally easier to hide your true sexual orientation, 
here in Latvia, than to deal with the consequences.”  
(Latvia, bisexual woman, 25)

Levels of openness vary markedly across the EU and 
Croatia. Respondents in the Netherlands, for example, 
are 60 times as likely to view themselves as always 
open about being LGBT as those in Lithuania. Over-
all, however, being always open about being LGBT is 
rare: in two thirds of Member States, fewer than one 
in five respondents are always open about being LGBT 
(Figure 53).

Figure 52:  Openness to others about being LGBT, by LGBT group (%)

EU LGBT average

38 

25 

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

26 

32 

29 

24 

52 

53 

73 

0

20

40

38 

45 

44 

28 

20 

19 

60

15 

12 

28 

80

100

Never open 

Rarely open 

Often or always open 

Question: 

Note: 

Base: 

Source: 

 G3. To how many people among the following groups are you open about yourself being [category on the basis of A3 
or A4 (self-identification)]? (Computed variable. The computation of the statistical distribution of the EU LGBT survey 
respondents according to different levels of openness is explained in detail in the EU LGBT survey technical report 
(FRA, 2013b).)

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

All EU LGBT survey respondents (unless they felt the question did not apply to them).

FRA, EU LGBT survey, 2012

80

Figure 53:  Respondents who are never open to others and respondents who are always open to others about 

being LGBT, by country (%)

Never open about being LGBT

Always open about being LGBT

Daily life

EU LGBT average
RO
LT
LV
CY
HR
BG
PL
EL
SK
PT
HU
EE
IT
SI
CZ
MT
ES
LU
FI
FR
IE
AT
DE
BE
SE
IK
DK
NL

38 

72 

71 

66 

64 

62 

61 

59 

58 

56 

55 

54 

49 

48 

48 

39 

39 

33 

32 

31 

30 

29 

29 

26 

23 

21 

21 

17 

16 

EU LGBT average
NL
DK
SE
UK
BE
IE
DE
LU
ES
AT
FI
FR
MT
CZ
SI
EE
HU
IT
HR
SK
EL
PT
BG
CY
LV
PL
RO
LT

22

60

55

45

40

36

35

32

27

26

26

25

19

16

14

10

9

9

8

7

7

7

6

5

4

4

4

3

1

0

20

40

60

80

100

0

20

40

60

80

100

Question: 

 G3. To how many people among the following groups are you open about yourself being [category on the basis of A3 or 
A4 (self-identification)]? (Computed variable) 

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.

All EU LGBT survey respondents (unless they felt the question did not apply to them).

FRA, EU LGBT survey, 2012

When looking at the results by age, respondents in 
the youngest age group are most likely not to reveal 
that they are LGBT. Equally, the oldest respondents are 
three times more likely than the youngest to be very 
open about being LGBT (Table 14). This may reflect the 
relatively high levels of discrimination and hostility 
experienced by respondents because they are LGBT at 
school, college or university, as presented in the fol-
lowing sections.

More participants are open to friends than to family 
members: almost three quarters (72 %) of all respond-
ents indicate they are open to most or all of their friends, 
compared with half who are open to their family mem-
bers. A quarter (26 %) of all respondents are not open 
to any family members. 

“If someone in my family (other than parents) knew that I 
am gay, I would be threatened with physical violence. But 
on the other hand, I am pretty happy. I have lots of friends, 
a loving partner and my own house ... There is just one 
problem, I don’t have a family and in times of need I can lose 
everything.” (Czech Republic, gay, 24)

As shown in Table 15, at work more than half (58 %) of 
the respondents are open to none of their immediate 
superiors or heads of departments. Around a quarter 
(27 %) of respondents are open to none of their col-
leagues or schoolmates. 

The degree of openness varies significantly among dif-
ferent LGBT groups, with bisexual respondents much 
less likely to be open about their sexual orientation 
(Table 15). Bisexual women, for example, are half as 
likely to be open to family members as lesbians. Bisex-
ual male respondents are the least likely of all LGBT 

81

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table 14: Openness to others about being LGBT, by age group (%)

18–24 years

25–39 years

40–54 years

55+ years

Total number

Never open

Rarely open

Often open

Always open

20,318

32,608

16,316

3,165

49

34

28

34

27

27

19

15

13

17

18

14

12

22

34

37

Question: 

 G3. To how many people among the following groups are you open about yourself being [category on the basis of A3 or A4 
(self-identification)]? (Computed variable) 

Note: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man with a 
transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

Base: 

 All EU LGBT survey respondents (unless they felt the question did not apply to them).

Source: 

FRA, EU LGBT survey, 2012

Table 15: Openness about being LGBT to different groups of people (%)

Being open as LGBT to...

Lesbian 
women

15,215
2
14
26
58

15,165
16
27
24
33

Family members
Total number
None
A few
Most
All
Friends
Total number
None
A few
Most
All
Work colleagues/schoolmates
Total number
None
A few
Most
All
Immediate superior/head of department
12,979
Total number
52
None
13
A few
10
Most
25
All
Medical staff/healthcare providers
14,138
Total number
40
None
27
A few
15
Most
19
All

14,814
17
35
24
24

Gay  
men

56,958
22
25
21
32

57,207
4
20
26
50

55,371
24
31
21
24

49,616
52
12
10
26

53,228
38
24
15
23

Bisexual 
women

Bisexual  
men

Transgender

EU LGBT 
average

6,363
39
33
15
14

6,400
4
31
33
33

6,240
29
43
17
11

5,491
74
11
5
10

5,955
59
23
9
10

7,046
60
22
10
8

7,121
20
45
19
16

6,933
56
28
10
7

6,465
83
7
4
6

6,716
63
20
8
9

5,302
35
24
14
26

5,344
15
35
21
30

4,917
48
26
11
15

4,424
66
10
7
18

5,108
39
23
15
22

90,834
26
26
20
28

91,287
5
23
26
46

88,275
27
32
20
21

78,975
58
12
9
22

85,145
42
24
14
20

Question: 

 G3. To how many people among the following groups are you open about yourself being [category on the basis of A3 or A4 
(self-identification)]? (Computed variable) 

Note: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man with a 
transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other.]

Base: 

All EU LGBT survey respondents (unless they felt the question did not apply to them).

Source: 

FRA, EU LGBT survey, 2012

82

groups to be open about their sexual orientation: they 
are more likely to be open to none or few than most or 
all people in all the social circles included in the survey. 
Two thirds (65 %) of bisexual men are open to none or 
a few of their friends, and six out of 10 (60 %) are open 
to none of their family members. Similarly, six out of 10 
(59 %) transgender respondents are open to none or a 
few of their family members, although a quarter (26 %) 
are open to all members of their family.

“People don’t change their attitudes towards me because 
I don‘t look – or tell them I‘m – bisexual. Which is precisely 
why I stay careful and try not to mention it to anyone who 
might react badly upon knowing.” (France, bisexual woman, 20)

Daily life

3�2�  Public attitudes towards 

LGBT people, visibility 
and avoidance behaviour

3�2�1�  Attitudes towards LGBT people

The survey asked respondents their views on how wide-
spread were offensive use of language by politicians 
or casual jokes about LGBT people in their country. To 
gather information about the role of gender expression 
in the reactions respondents experienced from other 
people, the survey also asked participants whether or 
not they had received negative reactions because they 
had behaved in a ‘too’ feminine or masculine way.

“[The] psychological violence I endured last year comes from 
the statement of a political party in Greece, rendering gay 
people as inferior people and second-tier citizens. How could 
the openness of a young person be possible when those 
governing are excluding him?” (Greece, gay, 21)

Figure 54:   Respondents saying that offensive language about LGBT people by politicians is ’fairly’ or ‘very 

widespread’, by country (%)

EU LGBT average
LT
IT
PL
LV
HR
BG
SI
RO
HU
EL
SK
CY
MT
EE
ES
FR
FI
PT
AT
IE
CZ
UK
SE
LU
DE
BE
DK
NL

93

91

83

77

77

76

73

70

68

68

64

60

44

45

44

41

38

34

30

30

27

17

25

20

13

11

10

10

9

0

10

20

30

40

50

60

70

80

90

100

Question: 

 B1. In your opinion, how widespread are the following in the country where you live? A. Offensive language about lesbian, 
gay, bisexual and/or transgender people by politicians: Very rare, Fairly rare, Fairly widespread, Very widespread.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

83

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Almost half of all respondents consider offensive lan-
guage about LGBT people by politicians to be wide-
spread. Responses differ markedly by EU Member State, 
however; from 93 % of all respondents in Lithuania 
to 9 % of all respondents in the Netherlands saying 
offensive language about LGBT people by politicians is 
widespread (Figure 54).

“Many Croatian politicians and public figures have given 
homophobic statements, both directly and indirectly 
degrading LGBT people.” (Croatia, bisexual woman, 31)

In addition, more than four (37 %) in every five respond-
ents say that casual jokes in everyday life about LGBT 
people are very widespread (Figure 55). Women and 
transgender respondents are more likely to consider 
casual jokes about LGBT people widespread than gay 
or bisexual men, although in all LGBT groups at least 
80 % of respondents think such jokes are widespread 
in everyday life.

“The topic of bisexuality/transgender/homosexuality does 
not come up often [in my family], but every time it does 
come up it is invariably treated as something dirty and 
depraved. When my father sees homosexuals publicly 
displaying affection, he makes jokes about them.”  
(Germany, transgender (cross-dresser), bisexual, 33)

Respondents are most likely to say that they almost 
always, often or sometimes receive negative reactions 
for behaving in a ‘too’ feminine or masculine way when 
this behaviour does not coincide with societal norms 
associated with their sex assigned at birth (Figure 56).

‘Too’ feminine behaviour triggered negative reactions 
largely in the male respondent groups, with gay men 
the most affected. Conversely, women respondents are 
the most likely to say that they have received negative 
reactions for too masculine behaviour. Around 70 % 
of all lesbian and bisexual women have received such 
reactions (Figure 57). 

“In my humble opinion people are discriminated against 
more because of their appearance than because of their 
sexual orientation – women who look very masculine or 
men who look very feminine get the short end of the stick 
whether they are gay or not.” (Malta, lesbian, 36)

Figure 55:   Respondents saying that casual jokes in everyday life about LGBT people are ‘very widespread’,  

by country (%)

100

90

80

70

60

50

40

30

20

10

0

68

60

56 55

51

37

47 47 45 45 45 44

40 38 36 33

32

32

30 30

EU LGBT average BG CYIT HRMTHU PL EL FR RO PT LT EE IE AT SI LV UK

SK

26 26 24 23

21

21

19

16 16

DE FI CZ

ES

BE SE LUDK NL

Question: 

 B1. In your opinion, how widespread are the following in the country where you live? B. Casual jokes in everyday life 
about lesbian, gay, bisexual and/or transgender people. Very widespread.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

84

Daily life

Figure 56:   Respondents who have received negative reactions because of too ‘feminine’ behaviour,  

by LGBT group (%)

EU LGBT average

46

27

19

6 2

Never 

Seldom 

Lesbian women

70

Gay men

36

32

17

23

8 3 2

Sometimes 

Almost always/Often

6 2

Don't know 

Bisexual women

60

21

11

6 2

Bisexual men

Transgender

0

43

36

20

27

20

6 3

21

25

15

3

40

60

80

100

Question: 

 A6. Have you ever received negative reactions because you behave or have behaved in a too feminine or too masculine 
way? Answer: A. Too feminine.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Figure 57:   Respondents who have received negative reactions because of too ‘masculine’ behaviour,  

by LGBT group (%)

EU LGBT average

57 

19 

15 

7 

3 

Lesbian women

29 

25 

32 

12 

2 

Never 

Seldom 

Sometimes 

Gay men

72 

16 

6  3  3 

Almost always/Often

Bisexual women

30 

25 

Bisexual men

Transgender

0

61 

41 

20

31 

19 

20 

19 

Don't know 

12 

2 

11 

6  3 

16 

4 

40

60

80

100

Question: 

 A6. Have you ever received negative reactions because you behave or have behaved in a too feminine or too masculine 
way? –Answer: A. Masculine.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

As shown in Figure 56, 28 % of all lesbian women and 
38 % of bisexual women say, however, that they have 
received negative reactions because they have behaved 
in a too feminine way. Similarly, a quarter (25 %) of gay 
men and over a third (36 %) of bisexual men say they 
have received negative reactions for behaving in a too 
masculine way (Figure 57).

3�2�2�   Visibility of LGBT people  

in public life

The visibility of LGBT people in public life can take various 
forms, including public figures being open about being 
LGBT, same-sex couples holding hands in public and 
transgender persons expressing their gender, or desired 
gender, through physical appearance and clothing.

“Even senior politicians who are known to be gay (ministers 
or members of parliament) are denounced or forced to hide 
their sexuality because of discrimination. The media are 
virulently homophobic and cannot miss the chance to expose 
and ridicule a gay person, particularly in the public arena. 
This drives everyone underground.” (Cyprus, gay, 38)

Three quarters of all respondents think it is rare for 
public figures in politics, business and sports to be open 
about being LGBT. This result is consistent across LGBT 
groups. At the country level, however, responses vary 
dramatically. Around eight in 10 respondents in Cyprus, 
Slovenia and Croatia, for example, think it is very rare 
for public figures to be open about being LGBT in their 
country, compared with fewer than one in 10 respond-
ents in Belgium, Denmark, Finland, Germany, the Neth-
erlands and Sweden.

85

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

The  frequency  with  which  couples,  whether  of  the 
same sex or different sexes, hold hands in public varies 
according to national and social context. Only 3 % of 
all respondents, nevertheless, think same-sex couples 
holding  hands  in  public  is  very  widespread  in  their 
country of residence, compared with 75 % who say the 
same about heterosexual couples (Figure 58). Whereas 
fewer than one in 20 respondents in all countries except 
Spain say same-sex partners holding hands in public is 
very widespread, for example, at least two thirds of 
respondents in all countries think it very widespread 
for heterosexual couples.

“Most of the time my girlfriend and I kiss in public wherever 
we are. Many people come to us and congratulate us on 
our courage and pride […]. The negative reactions would 
definitely be more and maybe even more serious [if we were 
guys].” (Greece, bisexual woman, 18)

“My partner and I were once reprimanded for kissing in 
public. We were in a park when a security officer came over 
to say the rules were everyone had to sit up straight on park 
benches (I guess we had been cuddling). That might have 
been okay if not for the man on a bench right across from 
us lying on his wife‘s/girlfriend‘s lap, who did not receive a 
similar warning.” (Slovakia, gay, 32)

Figure 58:   Respondents indicating that same-sex couples and different-sex couples holding hands in public is 

‘very widespread’, by country (%)

EU LGBT average

3

Greece

Lithuania

Hungary

Slovenia

Italy

Poland

Ireland

Bulgaria

Latvia

Croatia

Estonia

Luxembourg

Slovakia

France

Austria

Malta

Czech Republic

Portugal

Cyprus

Romania

Finland

Germany

Denmark

Sweden

Belgium

United Kingdom

Netherlands

1 

1

1

1

1 

1 

1

1

1

1

2

2

2

2

2 

2

2

2

2

2

3

4

4 

4

5

5

5 

75 

68

66

68

70 

81 

81

83

83

85

78 

81

75

82

80

77

65

62

67

70

70

61

68

65

66

68

73

64

Spain

9 

0

20

40

60

81

80

100

Heterosexual partners 

Same-sex partner 

Question: 

 B2. In your opinion, how widespread are the following in the country where you live? E. Same-sex partners holding hands 
in public. F. Heterosexual partners holding hands in public. Very widespread. Order is based on same-sex partners holding 
hands in public is very widespread.

Base: 

Source: 

All LGBT respondents.

FRA, EU LGBT survey, 2012

86

Daily life

In  addition  to  reporting  low  instances  of  same-sex 
couples holding hands in public, two thirds (66 %) of 
respondents say they themselves avoid holding hands 
in public with their same-sex partner for fear of being 
assaulted, threatened or harassed. Men are particularly 
likely to avoid holding hands with a same-sex partner: 
three quarters of gay (74 %) and bisexual (78 %) men 
avoid such behaviour, compared with more than half of 
lesbian (51 %) and bisexual women (52 %) (Figure 59).

At least half of the respondents in all EU Member States 
say they avoid holding hands with a same-sex partner 
for fear of being assaulted or harassed, ranging from 
89 % of respondents in Croatia and Cyprus, and 87 % 
of respondents in Romania to 49 % of respondents in 
Denmark and 45 % of respondents in Spain.

Figure 59:   Respondents who avoid holding hands in public with a same-sex partner for fear of being assaulted, 

threatened or harassed because of being LGBT, by country and LGBT group (%)

ES
DK
DE
FI
CZ
SE
NL
AT
LU
BE
MT
UK
FR
PT
EL
IT
EE
IE
SI
SK
LV
HU
PL
BG
LT
RO
CY
HR
EU LGBT average

Lesbian women
Gay men
Bisexual women
Bisexual men
Transgender

45 

49 

51 

52 

53 

54 

56 

56 

57 

64 

69 

70 

70 

73 

74 

74 

76 

77 

78 

78 

81 

81 

83 

83 

83 

87 

89 

89 

66 

51 

52 

58 

74 

78 

0

10

20

30

40

50

60

70

80

90

100

Question: 

E1. Do you avoid holding hands in public with a same-sex partner for fear of being assaulted, threatened or harassed? 

Base: 

Source: 

All EU LGBT survey respondents not saying ‘I do not have a same-sex partner’.

FRA, EU LGBT survey, 2012

87

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

The visibility of LGBT people in public life is also affected 
by whether transgender persons avoid expressing their 
gender identity for fear of being assaulted, threatened 
or harassed.

A third (32 %) of all transgender respondents say that 
they avoid expressing their gender for fear of being 
assaulted, threatened or harassed (Figure 60). Look-
ing in more detail at the transgender subgroups, cross-
dressers (66 %) are more than twice as likely to avoid 
expressing  their  gender  as  transsexual  (24  %)  and 
gender variant, queer or other transgender respondents 
(28 %). In addition, transgender respondents whose 
assigned sex at birth was male (38 %) are almost twice 
as likely to avoid expressing their current gender as 
those who were assigned a female sex at birth (21 %).

“Now I don‘t get randomly harassed for having a history 
of transsexualism because it’s simply not visible when 
I’m clothed. However, in the years when my gender was 
perceived as ambiguous I felt threatened and harassed on 
a daily basis.” (Poland, transgender (transsexual), gay, 29)

At Member State level, half of the respondents living in 
Lithuania (53 %) and Latvia (50 %) say that they avoid 
expressing  their  gender  or  desired  gender  through 
their physical appearance and clothing for fear of being 
assaulted, threatened or harassed, compared with one 
in five respondents in Cyprus, the Czech Republic and 
Italy.

3�2�3�   Avoiding locations for fear of 
assault or harassment

Half (50 %) of all respondents report that they avoid 
certain places or locations for fear of being assaulted, 
threatened or harassed because of being LGBT. Gay men 
(53 %) and transgender (50 %) respondents are most 
likely to adapt their behaviour in this way (Figure 61).

“I don’t walk alone as a cross-dresser in public places where 
I think there is a risk of being harassed or insulted. I only do 
that in gay restaurants, taxis, and gay bars and clubs, and 
only in the evening.” 

(Luxembourg, transgender (cross-dresser), bisexual, 60)

As shown in Figure 63, in Lithuania, Hungary, Croatia, 
Bulgaria, Poland and Romania, at least six out of 10 
of all respondents say that they avoid certain places 
or locations for fear of being assaulted, threatened or 
harassed because of being LGBT. This is almost twice 
as many respondents as in Sweden, Denmark, Finland 
and Luxembourg, for example. 

In several EU Member States, the data on avoiding loca-
tions varies markedly by LGBT group. For example, gay 
and bisexual men in Poland avoid locations in much 
higher proportions than lesbian and bisexual women. 
Similarly, whereas Ireland and the United Kingdom are 
among the countries where transgender respondents 
are most likely to say they avoid certain locations, 
lesbian, gay and bisexual respondents in these coun-
tries show around average levels of such avoidance 
behaviour.

Those respondents who say that they avoid certain 
places or locations for fear of being assaulted, threat-
ened or harassed because of being LGBT were asked 

Figure 60:  Respondents who avoid expressing gender through physical appearance and clothes for fear of 

being assaulted (%)

EU Transgender average

Transgender

Transsexual

24 

32 

39 

60 

75 

57 

Cross dresser

66 

31 

Yes 

No 

Don't know 

8 

4 

2 

3 

Gender variant/Queer/Other

28 

58 

14 

0

10

20

30

40

50

60

70

80

90

100

Question: 

Base: 

Source: 

 TR9. Do you avoid expressing your gender (or your desired gender) through your physical appearance and clothing for fear of 
being assaulted, threatened or harassed?

All transgender EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

88

Figure 61:   Respondents who avoid certain places or locations for fear of being assaulted, threatened or 

harassed because of being LGBT (%)

EU LGBT average

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

50

49

53

50

36

42

45

47

43

58

52

32

0

10

20

30

40

50

60

70

80

Yes
No
Don't know

5

4

3

6

6

18

90

100

Question: 

E2. Do you avoid certain places or locations for fear of being assaulted, threatened or harassed because you are LGBT?

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Figure 62:   Respondents indicating locations as unsafe for being open about sexual orientation/gender identity, 

% of those who avoid locations (%)

Street, square, car parking lot or other public place

Public transport

Public premises or buildings

Park

Café, restaurant, pub, club

Sports club

My home

Other

18 

17 

69 

68 

57 

51 

46 

42 

0

10

20

30

40

50

60

70

80

Question: 

 E3. Where do you avoid being open about yourself as [category on the basis of A3 or A4 (self-identification)] for fear of 
being assaulted, threatened or harassed by others? 

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

 EU LGBT survey respondents who avoid certain places and are in paid work or students (unsafe location: workplace or school).

FRA, EU LGBT survey, 2012

to select where they avoid being open about them-
selves as LGBT for fear of being assaulted, threatened 
or harassed by others. Public transport (69 %) and 
streets or other public places (68 %) are the locations 
where respondents most often avoid being open about 
being LGBT for fear of being assaulted, threatened or 
harassed by others. In addition, at least four out of 10 
respondents who say that they avoid certain places 
or locations for fear of being assaulted, threatened or 
harassed because of being LGBT select the workplace 
(47 %), school (47 %), cafés, restaurants, pubs and clubs 
(46 %) and sports clubs (42 %) as places where they 
avoid being open about being LGBT. 

“In order to stay safe, as a gay male I surround myself with 
open-minded people and only go to places I consider safe. 
I like football but I would never go to the stadium with my 
partner!” (Italy, gay, 31)

In  addition,  one  in  five  respondents  who  say  that 
they avoid certain places or locations for fear of being 
assaulted, threatened or harassed because of being 
LGBT  avoid  being  open  about  being  LGBT  at  home 
(Table 17). It should be recalled in this context that 
7 % of both the most recent and most serious hate-
motivated violent incidents reported by the respond-
ents were committed by someone in the respondent’s 
family or household (see Table 4). As shown in Table 17, 
younger respondents, and particularly young bisexual 
respondents, are much more likely to avoid being open 
at home than their older peers. This trend does not 
hold for bisexual men, however. Unlike in the other 
groups, the proportion avoiding being open at home for 
fear of being assaulted, threatened or harassed does 
not decrease significantly by age: at least three in 10 
bisexual men respondents in each age category feel 
that it is unsafe to be open at home. It should be noted 

Daily life

89

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 63:   Respondents who avoid certain places or locations for fear of being assaulted, threatened or 

harassed because of being LGBT, by country (%)

EU LGBT average

50

LT

HU

HR

BG

PL

RO

LV

SK

EE

UK

BE

IE

FR

SI

CY

MT

IT

EL

PT

DE

CZ

ES

NL

AT

SE

DK

FI

LU

68

68

62

61

61

61

58

55

55

55

54

53

53

52

49

49

47

46

46

46

43

41

41

39

38

37

34

32

0

10

20

30

40

50

60

70

80

90

100

Questions: 

 E3. Where do you avoid being open about yourself as [category on the basis of A3 or A4 (self-identification)] for fear of 
being assaulted, threatened or harassed by others? 

Note: 

Base: 

Source: 

FA1_10. ; FA2_10. ; FB1_10. ; FB2_10. Where did it happen?

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Table 16:  Respondents who avoid being open about themselves as LGBT at home for fear of being assaulted, 

threatened or harassed, by age group and LGBT group (%)

Age

Lesbian women

Gay men

Bisexual women Bisexual men

Transgender

EU LGBT average

18–24 years

25–39 years

40–54 years

55+ years

Total

26

11

6

6

16

25

14

8

8

16

35

18

8

12

26

38

29

29

29

33

27

16

13

9

18

27

15

9

10

18

Question: E3.   Where do you avoid being open about yourself as [category on the basis of A3 or A4 (self-identification)] for fear of being 

assaulted, threatened or harassed by others?

Note: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man with a 
transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

Base: 

EU LGBT respondents who avoid certain places or locations for fear of being assaulted, threatened or harassed because of being LGBT.

Source: 

FRA, EU LGBT survey, 2012

90

 
Daily life

that bisexual respondents are also the least open about 
being LGBT in general, and the most likely to be closeted 
towards their own family.

3�2�4�   Relationship between perception 
of public attitudes, negative 
experiences and avoidance 
behaviour

Analysis of the relevant survey data indicates a number 
of links between respondents’ perception of public atti-
tudes towards LGBT people, their own experience of 
violence and harassment and whether they avoid hold-
ing hands, expressing their gender or certain places 
or locations for fear of being assaulted, threatened or 
harassed. This reflects the interrelationship among per-
ception, experience and behaviour.

“Having experienced sudden violence on the street, I tend 
to become both cautious and aware of the environment in 
which I am with my lover when holding hands – which often 
spoils the fun, and the intimacy of that gesture.”   
(Germany, gay, 52)

The more widespread respondents perceive expres-
sions of hatred and aversion towards LGBT people in 
public to be, the higher the proportion avoiding certain 
places or locations for fear of being assaulted or har-
assed for being LGBT. Similarly, the more widespread 
respondents think assaults and harassment against 
LGBT people to be, the more likely they are to avoid 
certain places (Table 18). Conversely, those respondents 
who say that expressions of hatred and aversion, as 
well as assault and harassment, are rare are the most 
likely to say they do not avoid certain places or locations 
for fear of being assaulted or harassed for being LGBT.

“There were fewer (and less serious) [instances of 
harassment] in recent years, much fewer in the previous five 
years than before, when they were quite frequent, because 
I spent less time in public spaces such as pubs, and spent a 
lot of time among my friends at an international university 
campus.” (Slovakia, transgender (gender variant), 30)

Looking at the country-level, data show a link between 
the avoidance of holding hands with a same-sex partner 
in public and avoiding certain places for fear of being 
assaulted or harassed because of being LGBT. Denmark 
and Spain, for example, are among the countries where 

Table 17: 

 Respondents who avoid certain places or locations for fear of being assaulted, threatened or harassed 
because of being LGBT, by perceptions of expressions of hatred and version towards LGBT people in 
public and assault and harassment against LGBT people (%)

Avoid certain places or locations for fear of being assaulted, threatened or harassed

Expressions of hatred and aversion towards LGBT in public

Total number

Yes

Very rare

Fairly rare

Fairly widespread

Very widespread

Don’t know

Total

9,122

36,284

33,745

12,358

1,570

93,079

Assaults and harassment against LGBT

Very rare

Fairly rare

Fairly widespread

Very widespread

Don’t know

Total

11,287

43,106

27,022

6,535

5,129

93,079

29

42

56

68

35

50

29

45

61

72

42

50

No

66

54

39

27

52

45

67

51

34

24

47

45

Don’t know

4

5

5

5

13

5

4

5

5

5

11

5

Questions:   B1. In your opinion, how widespread are the following in the country where you live? C. Expressions of hatred and aversion 

towards lesbian, gay, bisexual and/or transgender in public; D. Assaults and harassment against lesbian, gay, bisexual and/or 
transgender people.

 E2. Do you avoid certain places or locations for fear of being assaulted, threatened or harassed because you are [category on 
the basis of A3 or A4 (self-identification)]?

Note: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man with a 
transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

91

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

comparatively low numbers of respondents say that 
they avoid places or locations or holding hands with a 
same-sex partner in public for fear of being assaulted or 
harassed because of being LGBT. Conversely, respond-
ents in Bulgaria, Croatia, Hungary, Lithuania, Poland and 
Romania report the highest levels of both same-sex 
couples avoiding holding hands in public and avoiding 
certain locations for fear of being assaulted or harassed 
because of being LGBT.

Three quarters of all transgender respondents say that, 
as far as they knew, in the country where they live a 
person can change their official documents to match 
their  preferred  gender,  either  with  (67  %)  or  with-
out (5 %) the need to fulfil certain criteria. Around one 
in 10 of all transgender respondents say it is not possible 
to make such a change in their country of residence, 
and a fifth do not know whether or not they can modify 
official gender markers (Figure 64).

“I have a pretty important leadership position and I was 
thinking what if tomorrow I admitted that I also like men. 
I would lose everything, people would start gossiping and 
probably I would need to quit my job if in the meantime they 
had not found some reason to fire me … it is very difficult 
to always be concerned with the way you talk, with whom 
you speak and what you speak about so that you don’t raise 
suspicious which will ruin your career and life.”  
(Romania, bisexual man, 44)

“The legal requirement for mandatory sterilization in order 
to have one’s identified gender recognised on documents 
is against human rights in every respect imaginable; also, 
the way transgender people are marked within society and 
on official documents as not ‘fitting‘ either their assigned 
sex OR their identified gender makes it easy to be targeted 
for further discrimination by schools/bureaucrats/doctors/
employers/etc.” (Czech Republic, transgender (gender variant), 23)

3�3�  Reassigning sex and 

changing gender markers 
in official documents

For transgender respondents, another issue that may 
influence the extent to which they feel accepted and 
included in society as a transgender person in daily life 
is the possibility of modifying entries in official docu-
ments to match their preferred gender.

Respondents who are transgender or transsexual and 
those with a transsexual past are most likely to say 
that, as far as they know, in the country where they 
live a person can change their official documents to 
match their preferred gender with or without fulfill-
ing certain criteria. Nine out of 10 of all transsexual 
(93 %), women with a transsexual past (92 %) and men 
with a transsexual past (88 %) say that it is possible to 
modify gender markers in their country of residence, 
compared with around six out of 10 gender variant 
(65 %), cross-dresser (68 %) and queer respondents 
(64 %) (Figure 64).

Figure 64: Possibility to change official documents to match the preferred gender (%)

EU Transgender average

Transgender

Transsexual

Woman with a transsexual past

Man with a transsexual past

Gender variant

Cross dresser

5

4

5

4

3

4

4

Queer

6

Other

7

67

9

19

79

88

88

85

61

64

59

49

8

10

3

4

3

5

6

6

24

25

27

11

8

9

14

30

Yes, without
obligatory criteria 

Yes, upon fulﬁlment
of certain criteria 

No 

Don't know 

Question: 

 TR7. As far as you know, in the country where you live, can a person change their official documents to match their 
preferred gender?

Base: 

Source: 

All transgender EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

92

Figure 65:   Possibility to change official documents to match the preferred gender, % of respondents who said 

‘Yes, upon fulfilment certain criteria’, by country (%)

EU Transgender average

67

82

81

80

80

78

74

73

73

72

71

69

67

66

65

 DE

NL

 FI

 UK

 DK

 FR

 AT

 SE

 PL

 BE

PT

 ES

 HU

CZ

 SI*

 LV

EE*

 IT

LU

 MT*

 HR

 IE

SK

 EL

 RO

 LT

BG

 CY

55

54

54

53

45

44

37

35

35

35

34

28

20

8

0

10

20

30

40

50

60

70

80

90

100

Question:  

 TR7. As far as you know, in the country where you live, can a person change their official documents to match their 
preferred gender?

Base: 

Source: 

All transgender EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

“Finding a qualified psychologist or psychiatrist is not 
obvious at all. I managed to find a general practitioner who 
is willing to follow my transition. So it is impossible for me 
to officially change my name because I need a letter from a 
psychiatrist.” (Belgium, transgender (transsexual), lesbian, 33)

Responses vary significantly by country, ranging from 
eight out of 10 respondents saying that it is possible for 
a person to change their official documents to match 
their preferred gender upon the fulfilment of certain 
criteria in Germany (82 %), the Netherlands (81 %), 
Finland (80 %) and the UK (80 %) to fewer than one 
in 10 in Cyprus. Respondents living in Spain, Slovenia 
and the UK are the most likely to say that modifying 
gender markers in official documents is possible with-
out obligatory criteria (15 %, 14 % and 8 %, respec-
tively) (Figure 65).

“Even when people have changed their documents in 
the past, the name and gender change is listed as a small 
note on the bottom of the birth certificate which remains 
unchanged otherwise. This is important when enrolling in 
schools and starting a job, among other things, opening the 
door to discrimination, and otherwise requiring transgender 
persons to disclose private information.”  
(Croatia, transgender (transsexual), other sexual orientation, 26)

Those respondents who say it is, as far as they know, 
possible for a person in the country where they live to 
change their official documents to match their preferred 
gender upon the fulfilment of certain criteria were then 
asked what they would have to do in order to make such 
changes in official documents. About three quarters 
(77 %) of these respondents say they would have to 
provide a medical or psychological diagnosis of trans-
sexuality, gender dysphoria/transgenderism or similar 

Daily life

93

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 66:  Requirements that have to be done to change the official documents to match the preferred gender, 

% those transgender saying there is a need for certain criteria (%)

Prove medical/psychological diagnosis
of transsexuality

Complete the real life test
Undergo mandatory psychotherapy/
psychiatric treatment

Prove hormonal treatment to change the gender

Prove your irreversible gender reassignment

77 

65 

61 

56 

50 

Get divorced/not be married

36 

Prove your permanent infertility

27 

Other

15 

0

10

20

30

40

50

60

70

80

90

Question: 

Base: 

 TR8. As far as you know, what would you have to do in order to change your official documents to match your preferred 
gender in the country where you live?

 Those transgender EU LGBT survey respondents who say there is a need for certain criteria to change a person’s official 
documents to match the preferred gender.

Source: FRA, EU LGBT survey, 2012

to change official documents to match their preferred 
gender (Figure 66). In addition, two thirds (65 %) say 
they would have to complete a real life test: a time 
period for which they are required to have lived socially, 
for example at work and with friends and family, within 
the preferred gender.

3�4�  Free movement and 

obstacles in accessing 
benefits or services 
that would have been 
available for a different-
sex spouse or partner 

Every citizen of the Union has the right to move and 
reside  freely  within  the  territory  of  the  Member 
States  (Art.  45,  CFR).  For  many  people  in  the  EU, 
living  and  working  in  a  country  other  than  that 
of which they are a citizen is an essential part of 
daily life. This may also involve accessing benefits 
or  services  in  the  new  country  of  residence.  By 
presenting these results, this section sheds light on 
respondents’  lived  experience  of  one  of  the  EU’s 
core principles.

One tenth (9 %) of all survey respondents are not citi-
zens of their country of residence (Figure 67), compared 
with 7 % among the total EU population, according to 
Eurostat data.32 Of this 9 %, three quarters are citizens 
of another EU Member State and a quarter are citizens 

32  Eurostat (2011).

94

of a non-EU country.33 Non-national respondents are 
typically fairly established in their new country of resi-
dence: fewer than one in five had moved within the 
past year, and nearly half have lived in their country 
of residence for at least six years before the survey.

There is no significant difference in the proportion of 
non-nationals in the different LGBT groups. There is, 
however, considerable difference in the proportion 
of non-nationals in each country: more than a fifth of 
respondents are not citizens of the country in Luxem-
bourg (37 %), the UK (25 %), Belgium (23 %) and Cyprus 
(21 %), for example. In the UK and the Netherlands in 
particular, this is much higher than the proportion of 
non-nationals in the general population (7 % and 4 %, 
respectively). Just one in 100 respondents in Croatia and 
Lithuania are non-citizens.

Respondents  who  say  that  they  currently  live  in  a 
Member State other than their country of citizenship are 
asked whether they thought their country of residence 
was a better, much the same or worse country to live in 
for a lesbian, gay, bisexual or transgender person than 
their country of citizenship. The results should be read 
with some caution, as the question did not establish the 
reasons why people had left their country of citizenship.

33  Language problems and, possibly, looser ties to the national 
LGBT communities may have prevented the survey from 
reaching some migrant LGBT populations, particularly those 
from non-EU countries, at rates similar to those of EU citizens.

Figure 67:  Nationals and non-national respondents in the EU LGBT survey, by country (%)

Daily life

EU LGBT average
LU
UK
BE
CY
AT
IE
NL
ES
SE
DK
MT
CZ
DE
EE
FR
LV
PT
EL
HU
FI
IT
SI
BG
SK
RO
PL
LT
HR

63

75
77
79

91

84
85
85

88

89

90
91
91
92
92
93
94
95
95
96
96
97
97
97
97
97
97
99
99

35

21

21
18

7

14
12
12

8
8
8
8
7
6
6
6
4
3
4
4
3
2
3
2
3
2
2
1
1

2
2
4
2
3
2
3
3
4
3
2
1
2
2
2
2
2
2
1
1
1
1
1
2
0
1
1
0
0

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Not a migrant 

EU migrant 

Non-EU migrant 

At Member State level, however, the results vary widely. 
About three quarters of non-national respondents in 
Spain (76 %), the Czech Republic (74 %), Sweden (73 %), 
the Netherlands and the United Kingdom (both 72 %) 
say that these are better countries to live in as an LGBT 
person than their country of citizenship. In contrast, 
in Romania (81 %), Slovakia (70 %), Croatia (65 %), 
Cyprus (55 %), Poland (52 %) and Malta (52 %) the 
majority of non-national respondents say that their 
country of residence is a worse country to live in for 
LGBT people than their country of citizenship. 

“I only wish I could live in a place without being afraid that I 
am gay and could have someone with whom I can share my 
ride through life … a couple’s life … I want to go to a country 
where I don’t have problems and where I have rights and 
obligations as a gay person.” (Cyprus, gay, 36)

Of those respondents who are non-nationals in their 
country of residence, six out of 10 (60 %) say that their 
country of residence is a better country to live in for 
LGBT people than their country of citizenship. Just one 
in eight (12 %) respondents say their country of resi-
dence is a worse place to live as an LGBT person than 
their country of citizenship. The results are broadly the 
same across LGBT group, and for all non-nationals and 
third nationals.

“I could not have lived in my own country (Turkey) as a 
gay. This is why I chose to come to Germany. Nobody in my 
family knows about it, there is no way that I can share this 
with them. It is impossible, they would never accept it.” 
(Germany, gay, 35)

95

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 68:  Evaluation of the social environment for LGBT people in the country of residence compared to home 

country, by country (%)

EU LGBT average
ES
CZ
SE
NL
UK
DE
FI
BE
DK
FR
IE
SI*
AT
EL
HU
PT
LV*
IT
LU
MT
BG
PL
HR
CY
LI*
SK
RO
EE*

76

74

73

72

72

68

60

61

59

58

44

43

38

37

37

36

35

32

23

16

23

25

30

28

25

19

18

18

10

9

8

7

3

12

25

12

29

27

22

23

12

18

19

20

24

21

23

22

27

29

28

34

36

25

24

26

23

31

30

41

27

27

34

23

28

27

34

42

44

65

52

48

52

55

64

70

11

3

6

6

4

3

1

2

6

2

6

2

4

2

3

6

5

6

7

4

3

0

8

6

2

5

2

7

10

2

7

5

6

5

0

0

1

81

56

17

Better 

Much the same 

Worse 

Don't know 

Question: 

 H4. Would you say that [COUNTRY IN H1] is a better, much the same or a worse country to live in for [category on the basis 
of A3 or A4 (self-identification)] people than [COUNTRY IN H2]?

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

 EU LGBT survey respondents who were non-nationals in their country of residence.

FRA, EU LGBT survey, 2012

“Discrimination and public persecution of LGBT people is so 
pronounced that I could not feel safe, or free, in that country 
any more. […] I do not intend to ever return there to live, 
although my family and friends are there, until there are 
major changes in laws and attitude nationally.” (Latvia, gay, 40)

To gather further information about respondents’ expe-
riences of being non-nationals in an EU Member State, 
those respondents who say that they are married or in 
a registered partnership with a same-sex partner are 
asked whether they have ever moved to an EU country 
(and also taken up local residence) together with their 
same-sex partner since they got married or registered 
their partnership. Respondents who answered ‘yes’ to 
this question are asked if, in the country where they 
moved to and took up residence, they or their partner 

have been denied or restricted access to any benefits or 
services that would have been available for a different-
sex spouse or partner because they had a same-sex 
partner or spouse. Not all of these respondents have 
attempted to access services or benefits that would 
have been available to different-sex spouses. Given 
this, only 631 respondents indicate whether they or 
their same-sex partner have been denied or restricted 
access to benefits or services that would have been 
available to different-sex partners. The low sample size 
means these findings should be treated with caution.

“We need EU-wide equality of treatment of same-sex 
couples. All EU member states should provide the same 
right of the freedom of movement for same-sex couples as 
heterosexual couples.” (Luxembourg, gay, 54)

96

Figure 69:  Respondents who moved to a different country with married or registered same-sex partner having 

experienced denial or restricted access to any benefits or services that would have been available 
for a different-sex spouse or partner because of having a same-sex partner, by country 

Daily life

21

18

30

24

26 

40 

37

5 

7

19 

22 

13 

16 

22 

21 

35 

49 

50 

EU total
DE
UK
FR
ES
NL
BE
AT
SE
DK
FI
LU
IE
IT
PL
PT
CZ
SK
EL
HU
SI
RO
BG
HR
CY
LT
EE
MT
LV

0 

0 

0 
0 
0 
0 
0 
0 

100 

100 
100 

Question: 

Base: 

 H15. In the country where you have moved to (taken up residence), have you or your partner been denied or restricted 
access to any benefits or services that would have been available for a different-sex spouse or partner because of you 
having a same-sex partner or spouse?

 By country of residence, among those EU LGBT survey respondents who moved to a different country with married or 
registered same-sex partner and did not indicate that they never attempted to access services where this question could 
be relevant; all LGBT persons. 

 For the country of residence, overall 43% of respondents are migrants; 361 cases are current migrants (where place of 
residence and nationality do not match), the rest are past migrants.

EU LGBT survey respondents who were non-nationals in their country of residence.

Source: 

FRA, EU LGBT survey, 2012

The results do, nevertheless, indicate that a significant 
number (30 %) of eligible respondents in a legally rec-
ognised same-sex partnership expressed that they 
have been denied or restricted access to benefits or 
services on the basis of being in a same-sex rather than 
a different-sex civil partnership or marriage when living 
in another EU Member State.

“Being a couple of immigrants from different non-European 
countries makes our life difficult in Europe since we don‘t get 
recognized as a unit. We cannot get married in our countries, 
and most European countries only marry gay couples 
belonging to their citizenship. […] A straight couple wouldn‘t 
have the same problem, since they could get married 
anywhere, thus protecting their family union.”  
(Poland, lesbian, 24)

97

 
 
4

Cross-cutting themes

A number of themes emerge from the data which cut 
across the different areas covered by the research and 
indicate commonalities or discrepancies of experience 
according to national, social and economic context, as 
well as by age and LGBT subgroup. This section briefly 
examines some of these key themes. In many cases, 
more research is needed to determine the causal rela-
tionships between the findings.

4�1�  Country patterns: 

a diverse picture

Respondents’ experiences and perceptions vary con-
siderably according to their national context. There 
are clear country-level differences, indicating that the 
enjoyment of fundamental rights for LGBT persons in 
the EU and Croatia varies markedly depending on where 
in the EU LGBT persons live.

“I have never experienced any bullying, terror or any 
bad words from classmates, colleagues, family or friends 
regarding my homosexuality. I came out at 14. [I’m open] to 
my classmates, friends and family. And I am really happy that 
nothing bad happened.” (Czech Republic, gay, 23)

Looking at the overall results, respondents in Belgium, 
the Czech Republic, Denmark, Finland, Luxembourg, 
the Netherlands, Spain and Sweden indicate that they 
generally experience and perceive a social environ-
ment that is comparatively favourable for LGBT people. 
They are generally less likely to be victims of violence, 
harassment or discrimination, to perceive widespread 
negative attitudes towards LGBT people, or to avoid cer-
tain locations or behaviours for fear of being assaulted, 
threatened or harassed. For example, one in three of all 

respondents in the Netherlands, Denmark, Luxembourg, 
Sweden and Belgium has felt personally discriminated 
against or harassed on the grounds of sexual orienta-
tion in the last 12 months, compared with an EU LGBT 
average of 47 % (see Figure 2 on p. 26).

Conversely, the results indicate that, overall, respond-
ents in Bulgaria, Croatia, Cyprus, Greece, Ireland, Italy 
Latvia, Lithuania, Poland and Romania generally experi-
ence a social environment that is less inclusive towards 
LGBT people and where they are more likely to be vic-
tims of violence, harassment and discrimination.

“I’m seriously considering moving to another EU country to 
have a feeling of acceptance from the society. I wouldn’t say 
that society in Latvia is outwardly hostile – people need time 
to learn and adapt to new paradigms, but sometimes I feel 
that I don’t want to wait that long.” (Latvia, gay, 24)

There are, however, several notable exceptions. Results 
from Luxembourg and Finland, where participants indi-
cate that they experience comparatively low levels of 
discrimination and violence because of being LGBT, 
show average levels of respondents hiding being LGBT 
when at work during the last five years (Figure 70). 
Conversely, respondents in Ireland are among the least 
likely to say they are never open about being LGBT at 
work in the previous five years. Furthermore, in Italy 
a higher than average proportion of respondents who 
have felt personally discriminated against in the past 
year because of being LGBT in one of the situations 
covered by the survey say that they have reported the 
most recent such incident to somebody (see Figure 24 
on p. 48).

“Being gay in Belgium is not a problem EXCEPT in schools. I 
remember a teacher calling gays ‘sick’.” (Male, gay, 30)

99

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 70:   Respondents who have never been open about being LGBT at work in the last five years,  

by country (%)

EU LGBT average

32 

RO

LT

CY

EL

HR

LV

HU

PL

BG

SK

PT

IT

SI

EE

FR

FI

AT

LU

MT

CZ

DE

SE

ES

IE

BE

UK

DK

NL

58

58

55

52

52

52

50

47 

47

44

43

42

42

41

35

32

31

30

29 

27

27

27

26

24

21

18

17

13

0

10

20

30

40

50

60

70

80

90

100

Questions: 

C8. Did you have a paid job any time during the last 5 years?

 C8A. During your employment in the last 5 years, have you: A. Been open about you being [category on the basis of A3 or 
A4 (self-identification)] at work? Never.

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

EU LGBT survey respondents who had a paid job during the last five years.

FRA, EU LGBT survey, 2012

Note: 

Base: 

Source: 

 “I have never experienced any discrimination for being 
gay in Denmark – outside high school that is. I went to high 
school in a small town in the country and was harassed a lot 
for being gay before I even knew it myself.”  
(Denmark, gay, 39)

“I have visited schools, as part of a programme by a Dutch 
LGBT organisation. We would typically spend one hour 
with a class at a school to tell them about LGBT issues. 
Unfortunately, many schools did not allow us to come. Often 
for fear that parents would complain to the school board.”  
(Netherlands, gay, 46)

On several key issues, the findings imply a uniformity 
of experience across the EU and Croatia. For example, in 
each Member State, between 83 % (in Latvia) and 97 % 
(in Cyprus) of all respondents, when at school before 
the age of 18, have seen or heard negative comments 
or conduct because a schoolmate was perceived to be 
LGBT (Figure 14). In addition, very few of the respond-
ents in any country who has been a victim of harass-
ment in the past year because of being LGBT reported 
the last such incident to the police: the percentage 
ranged from 7 % in Malta to 0 % in Latvia and 1 % in 
Finland (Figure 51).

100

 
Cross-cutting themes

4�2�  Visibility and invisibility 

of LGBT persons 

of respondents who are predominantly open about being 
LGBT in their various social contexts is substantially higher 
than the life satisfaction of those who are not. 

The data on the visibility of LGBT persons are crucial for 
understanding the other survey results and the overall 
fundamental rights situation of LGBT persons. Being 
identified by others as an LGBT person has a great effect 
on whether individuals are likely to be the target for 
a number of – primarily negative – behaviours aimed 
at LGBT persons. It is therefore likely to be linked to 
the extent to which LGBT people feel free to express 
themselves.

“I have experienced humiliation, beatings and insults from 
people I know and people I do not know, but I wanted people 
in my surrounding to learn that I am a human like any other, 
and that my sexual orientation does not make me different 
from them!” (Bulgaria, transgender, 29)

Moreover, the freedom to express one’s identity in social 
life is a minimum requirement for the fulfilment of many 
fundamental rights and for equal participation in soci-
ety. This holds true independent of the right to privacy 
and of LGBT persons’ personal choice about whether 
to be open about their sexual orientation or gender 
identity. The survey finds that, in general, respondents 
are only selectively open about being LGBT in their vari-
ous social circles, such as with family members, friends, 
neighbours, colleagues at work, schoolmates, immedi-
ate superiors or heads of departments, customers or cli-
ents at work, and medical staff or healthcare providers. 
Bisexual and transgender respondents are particularly 
likely not to be open about being LGBT with their family, 
schoolmates or work colleagues. There are rather large 
differences between countries in the proportion of all 
respondents who are open about their LGBT identity.

“I would really like to be openly lesbian but my environment 
is homophobic so I have no choice.” (Greece, lesbian, 40)

“When my parents found out I was gay, they told me I am no 
longer their son and to collect my things and get out. They 
do not agree that I live with the man I love and want to raise 
a child together, because of the public opinion.”  
(Bulgaria, gay, 21)

“The overall situation for gay/bi/transgender people in 
Sweden is good; however, the fear, realistic or not, of 
harassment, ridicule, being frozen out, scepticism and even 
physical harm/threats thereof makes me and many other 
gay people keep quiet about our sexual orientation in the 
workplace, school etc.” (Sweden, gay, 45)

The key trend regarding the visibility of LGBT persons 
revealed by the results is that LGBT persons who are 
more open in more settings generally give more posi-
tive responses – from experiences of discrimination to life 
satisfaction – than those who are not open or who hide 
their LGBT identity. This relationship exists in all countries 
surveyed. For example, the self-reported life satisfaction 

Furthermore, the data show a relationship between 
experiences  and  perceptions  of  discrimination  and 
the social visibility of LGBT persons. For example, the 
less open respondents are about being LGBT, the more 
likely they are to perceive discrimination on the basis 
of sexual orientation to be widespread in their country 
of residence. Moreover, countries where a higher than 
average percentage of respondents have felt personally 
discriminated against or harassed in the last 12 months 
on the basis of their sexual orientation also has an 
above average proportion of respondents saying that 
discrimination based on a person’s sexual orientation 
is widespread. Explanations may include the possibility 
that perceptions of widespread discrimination, or per-
sonal experiences of discrimination because of being 
LGBT, may inhibit openness. Conversely, people who 
have not felt personally discriminated against because 
of being LGBT could perceive such discrimination as less 
widespread than those who are themselves frequently 
discriminated against because of being LGBT, and may 
thus feel more able to be open about their identity. 

“I have only a few experiences of discrimination and these 
are not that important. But I believe that I don’t have more 
experiences because I am not open about being a lesbian to 
all my friends, my family, society.” (Greece, lesbian, 21)

“I think the main reason why I did not experience any 
discrimination is not many people know I’m gay and certainly 
when walking the streets people just won’t know.”  
(Netherlands, gay, 54)

“I believe open discrimination against LGBT people in 
Hungary is relatively low only because LGBT individuals are 
virtually invisible.” (Hungary, gay, 30)

“Maybe we are not assaulted or beaten but the fact that we 
are forced to hide and keep quiet is enough discrimination.”  
(Cyprus, lesbian, 38)

“I daily experience my minority status and am constantly 
aware of it and take it into account in my dealings with my 
daily life. [I] have been careful always to work in a context 
where I knew in advance that my sexual orientation would 
not create insurmountable problems.” (Denmark, lesbian, 66)

The data also indicate that the extent to which LGBT 
people express their identity in public is influenced 
by fear of becoming victims of violence and harass-
ment because of being LGBT. Irrespective of how open 
respondents are about being LGBT, they tend not to 
adopt behaviours that they considered risky because 
of being LGBT. For example, two thirds of all respond-
ents said they avoid holding hands with their same-sex 
partner in public for fear of being assaulted, threatened 
or harassed. In all but two of the 28 countries covered 
by the survey, more than half all respondents avoid 

101

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

holding hands with their same-sex partner in public 
for this reason.

“I hold hands with my same-sex partner most of the time in 
London and Brighton. Straight couples hold hands and kiss 
in public, so why shouldn‘t we? I‘ve noticed more and more 
same-sex couples holding hands in public. I just wish more 
would do the same, to increase visibility!” (UK, gay, 26)

“I want to kiss my boyfriend outside the four walls of an 
apartment. I want to be able to hold his hand.”  
(Bulgarian, gay, 19)

“Having experienced sudden violence on the street, I tend 
to become both cautious and aware of the environment in 
which I am with my lover when holding hands, which often 
spoils the fun, and the intimacy of that gesture.”  
(Germany, gay, 52)

In addition, nearly half of all respondents say they avoid 
certain locations for fear of being assaulted, threatened 
or harassed because of being LGBT. Respondents have a 
strong tendency to avoid specific locations where they 
encountered violence or serious incidents of harassment.

“Many people in this country are tolerant towards the LGBT 
minority, yet they do not want to see couples of the same 
gender in reality or provide them with rights similar to those 
of heterosexual couples.” (Slovakia, gay, 27)

Another crucial parameter of the social visibility of LGBT 
persons is the public awareness of openly LGBT persons 
and the language used by public figures about LGBT 
people. Public debates initiated by political figures often 
provide the context for positive or negative attitudes 
towards LGBT people, from work and economy to edu-
cation and services. The data on offensive language 
about LGBT people by politicians show considerable 
variation by country: whereas just 1 % of all respond-
ents in Belgium, Denmark, Luxembourg and the Neth-
erlands think such language is very widespread, the 
figure is over 50 % in Italy and Lithuania. 

“Many Croatian politicians and public figures have since 
given homophobic statements, both directly and indirectly 
degrading LGBT people.” (Croatia, bisexual woman, 31)

Moreover,  the  survey  results  show  a  relationship 
between the level of offensive language about LGBT 
people by politicians and the experience of discrimina-
tion on the grounds of sexual orientation: in 14 of the 17 
countries in which less than half of respondents expe-
rienced discrimination or harassment on the grounds 
of sexual orientation in the year before the survey, a 
majority of respondents say that offensive language 
about LGBT people by politicians is rare. Conversely, 
more discrimination experiences are reported in coun-
tries where the survey respondents say that offensive 
speech by politicians is widespread.

“It is not rare for politicians, members of the Church 
hierarchy and other public figures to condemn LGBT 
persons and reject calls for equality based on ignorance and 
prejudice.” (Poland, gay, 29)

“In Bulgaria, to be openly gay in a small town or village is 
unthinkable. You will be permanently ridiculed, insulted and 
harassed.” (Bulgaria, gay, 20)

“I would also say that having a good job with a good salary 
and a good education ring-fences you against homophobia 
since your status as a ‘productive‘ member of society is 
valued highly – especially in the times we live in.”  
(Belgium, gay, 37)

4�3�  Age: younger LGBT 
persons experience 
a less favourable social 
environment

There is a link between respondents’ age and their 
experiences  and  perceptions  of  living  as  an  LGBT 
person in the EU and Croatia. Generally, there is an 
inverse relationship between age and the inclusive-
ness  of  respondents’  environment  towards  LGBT 
people: the younger the respondent, the more likely 
they are to perceive their environment as intolerant 
towards LGBT people. This may reflect a social context 
in which younger people are less able to select those 
with whom they interact on a daily basis; for example, 
younger people are more likely to live at home or to 
be in education, where they do not have the oppor-
tunity to choose their classmates or teachers. More 
research is required, however, to explore this issue in 
greater depth.

Younger respondents also assess discrimination to be 
more widespread in their countries than older respond-
ents. Respondents aged between 18 and 24 are the 
most likely of all age groups to say that, in their opinion, 
discrimination based on a person’s sexual orientation is 
widespread in their country of residence.

Furthermore, younger respondents are less open about 
being LGBT than their older peers: the proportion of all 
respondents who say that they are open about being 
LGBT to most or all of the people they encounter in 
their personal and professional lives increases with each 
step up in age group. Indeed, young adulthood and sec-
ondary schools are the least tolerant environments, 
according to respondents. As shown in Figure 72, two 
thirds (67 %) of all respondents say they always or often 
hid or disguised the fact that they were LGBT during 
their schooling before the age of 18. Boys especially 
opted for complete secrecy: almost three quarters of 
gay men (72 %) and bisexual men (73 %) respondents 
were never open to anyone at school about being gay 
or bisexual (see Figure 12 on p. 36).

102

Cross-cutting themes

The youngest respondents are also the most likely to 
say that they avoid being open at home for fear of being 
assaulted, threatened or harassed. Possible explana-
tions for this finding may include a higher proportion of 
younger respondents living with their parents, poten-
tially making ‘coming out’ as LGBT more difficult.

At the same time, respondents in the youngest age 
group say that they are those most likely to suffer from 
discrimination and violence which they think happened 
because they are LGBT. For instance, the proportion 
of  respondents  who  say  that  they  felt  personally 

discriminated against or harassed on the grounds of 
sexual orientation in the last 12 months decreased with 
age: 57 % of all 18- to 24-year-olds say that they were 
victimised in this way, compared with 27 % of those 
over the age of 55 (see Figure 3 on p. 27). Similarly, 
of those respondents who were victims of violence or 
threats of violence in the last 12 months, 18- to 24-year-
olds are twice as likely as those aged 40 to 54, and three 
times as likely as those aged over 55, to have experi-
enced violence in the year before the survey because 
of being LGBT.

Figure 71:   Respondents ‘always’ or ‘often’ hiding or disguising being LGBT during schooling before the  

age of 18, by country (%)

EU LGBT average

67 

LT

LV

EL

CY

RO

IE

EE

BG

IT

AT

DE

UK

SI

HR

HU

FR

ES

LU

MT

NL

BE

DK

PL

PT

SE

FI

SK

CZ

81 

77 

76 

76 

73 

72 

72 

71 

69 

68 

68 

68 

67 

66 

66 

66 

66 

65 

64 

63 

63 

63 

62 

60 

59 

59 

58 

57 

0

20

40

60

80

100

Question: 

 C9. During your schooling before the age of 18, did you: B. Hide or disguise that you were [category on the basis of A3 or 
A4 (self-identification)] at school? Always; often.

Note: 

Base: 

Source: 

 Categories for self-identification in A3 and A4 included transgender, transsexual, woman with a transsexual past, man 
with a transsexual past, gender variant, cross dresser, queer, lesbian, gay, bisexual or other. 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

103

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

4�4�  Differences by LGBT 
group: transgender 
persons consistently 
report worse experiences

Overall, lesbian and gay respondents provide broadly 
similar answers to the questions asked in the European 
LGBT survey. The responses of bisexual participants also 
indicate a general commonality of experience with 
lesbian and gay participants, although bisexual men 
respondents, especially, are much less likely to be open 
about being LGBT than gay or lesbian respondents.

Transgender respondents, however, consistently indi-
cate that they experience an environment that is less 
tolerant towards them than that experienced by lesbian, 
gay and bisexual respondents.

“I believe we are moving forward when it comes to 
acceptance of lesbians and bisexuals; however, it is still 
difficult as a LGBT person sometimes. I think being gay 
or a trans-person is a lot more difficult still as the level of 
acceptance is not as high.” (UK, bisexual, 22)

This section briefly presents some examples of notable 
differences in the responses of lesbian, gay, bisexual 
and transgender respondents.

4�4�1�  Lesbian women respondents

Lesbian women respondents are the most open of all 
groups about being LGBT and are also less likely than 
gay men respondents to avoid locations for fear of 
being assaulted, threatened or harassed. However, the 
overall rate of discrimination on any ground (Figure 1) is 
significantly higher among lesbian women respondents 
than among gay men respondents. In the 12 months 
preceding the survey, lesbian women were slightly 
more likely to have felt personally discriminated against 
or harassed on the basis of their sexual orientation, and 
much more likely to have felt personally discriminated 
against or harassed on the basis of their gender than 
gay men. This may suggest that lesbian respondents 
face discrimination both because of being a lesbian and 
because of being a woman.

4�4�2� Gay men respondents

Responses from gay men indicate that they are more 
likely than lesbian and bisexual respondents to feel 
that their social environment does not accept them. 
Gay men respondents are, for example, much more 
likely than either lesbian women or bisexual respond-
ents to consider that, in their country of residence, dis-
crimination because a person is LGBT is widespread. 
In addition, they are more likely than lesbian women 
to think that the last incident of discrimination against 

them happened partly or entirely because they were 
perceived to be gay. Furthermore, gay men respond-
ents are the most likely of all the LGBT groups to avoid 
certain locations or places for fear of being assaulted, 
threatened or harassed because of being gay.

4�4�3�   Bisexual men and bisexual 
women respondents

Bisexual  respondents,  and  especially  bisexual  men 
respondents, are much less likely to be open about 
themselves than the other LGBT groups. For example, 
significantly higher proportions of bisexual men than of 
the other LGBT groups are open to none of their friends 
or family. Bisexual respondents are also more likely 
than other LGBT groups to avoid being open about being 
bisexual at home for fear of being assaulted, threatened 
or harassed. Moreover, this fear does not decrease sig-
nificantly with age among bisexual men respondents, 
as it does among the other LGBT groups.

“I wish that it was more okay to be in doubt and not have to 
classify yourself into one category. Many lesbians and gay 
people really struggle with their sexuality, but they have a 
relatively big community with nightclubs, internet forums 
etc. I often feel that bisexuals are not ‘truly part’ of this 
society, but [are looked] at as people who cannot decide or 
do not have the courage to come out as gay.”  
(Denmark, bisexual woman, 19)

However, bisexual men and women experience vio-
lence,  harassment  and  discrimination  in  different 
ways, indicating that gender plays a role in respond-
ents’ experiences. Of those bisexual respondents who 
were victims of violence or a threat of violence in the 
year preceding the survey, bisexual women (31 %), for 
example, are less likely than bisexual men (48 %) to 
say that the last violent incident they experienced in 
the past year had happened partly or entirely because 
they were perceived to be bisexual. Conversely, bisex-
ual women (47 % of all bisexual women respondents) 
are more likely than bisexual men (36 % of all bisexual 
men respondents) to say that they had felt person-
ally discriminated against or harassed on the grounds 
of sexual orientation in the 12 months preceding the 
survey (see Figure 2 on p. 26). 

“Life as a bisexual male person is very harsh. First, it is very 
difficult to identify other bisexuals, as society has not yet 
comprehended the genderless view that I as a bisexual have 
on my fellow humans. I tend to be categorized as gay and 
not wanting to admit it.” (Germany, bisexual man, 29)

4�4�4� Transgender respondents

With  few  exceptions,  transgender  participants’ 
responses indicate the highest levels of discrimination, 
harassment and violence experienced by the different 
LGBT groups. 

104

Figure 72:   Respondents attacked or threatened with violence for any reason in the previous five years and in 

the previous year, by LGBT group (%)

Cross-cutting themes

Lesbian women

Gay men

Bisexual women

Bisexual men

Transgender

23 

25

28 

25

9 

9 

11 

10

34

15

0

10

20

30

40

50

60

70

80

90

100

in the last 5 years 

In the last year 

Questions: 

 F1_A. In the last 5 years, have you been: physically/sexually attacked or threatened with violence at home or elsewhere 
(street, on public transport, at your workplace, etc.) for any reason? Yes.

FA1_2. When did the LAST physical/sexual attack or threat of violence happen? 1. In the last 12 months.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

“To be a transgender in Lithuania is the hardest thing 
imaginable. I live with constant fear, in the end you don‘t 
even want to live at all.” (Lithuania, transgender, bisexual, 25)

Transgender  respondents  are  the  most  likely  of  all 
respondent groups to have experienced violence and 
harassment in both the five years and the one year 
preceding the survey. In addition, they are more likely 
to  say  that  they  have  felt  personally  discriminated 
against in the past year because of being LGBT, par-
ticularly in the areas of employment and healthcare. 
Furthermore, there is great variation between coun-
tries concerning the percentage of all lesbian, gay and 
bisexual respondents that feel discrimination because a 
person is lesbian, gay or bisexual is widespread in their 
country of residence, but this variation is not found in 
the responses of transgender participants. In 19 out of 
the 28 countries surveyed, a majority of all transgen-
der respondents indicate that discrimination because a 
person is transgender is very widespread.

“The incidents of harassment and abuse would be much 
higher if I was more open about being transgender. When 
I opened up to family members I was browbeaten with 
criticism and treated like a fool.”  
(Ireland, transgender (transsexual), heterosexual, 29)

Moreover, the overall association of being very open 
with lower levels of discrimination does not hold true 
for transgender respondents. In the transgender group, 
the more open respondents are about being transgen-
der, the more likely they are to say that they felt person-
ally discriminated against or harassed in the past year 
because of being transgender.

4�5�  Gender, gender expression 

and experiences 
of discrimination

When taking into account the respondents’ gender and 
gender expression, the results show particular trends. 
Respondents  whose  responses  indicate  that  their 
gender expression and sex assigned at birth does not 
align according to societal expectations, for example 
respondents assigned a male sex at birth who express 
themselves as female, also indicate a less inclusive 
social environment. For example, those whose gender 
expression does not ‘match’ their sex assigned at birth 
(10 %) are twice as likely as those with ‘matching’ sex 
assigned at birth and gender expression (5 %) to have 
experienced violence or the threat of violence in the 
last 12 months because of being LGBT. In addition, two 
thirds of all gay men respondents (61 %) say they had 
receive negative reactions because of behaving in a 
‘too feminine’ way, whereas seven in 10 of all lesbian 
(69 %) and bisexual women (68 %) respondents expe-
rienced negative reactions for behaviour considered 
‘too masculine’.

“Usually I dress in a feminine way, while being recognisable 
as biologically male, which prompted several verbal attacks, 
a case of threatened violence, and a case of actual physical 
attack.” (Hungary, transgender (gender variant), lesbian, 31)

Furthermore, lesbian and bisexual women, as well as 
transgender respondents, are much more likely than 
men to have been discriminated against on the basis 
of their gender in the 12 months preceding the survey. 
This contributed to the overall higher one-year discrimi-
nation rates in these groups compared with gay and 
bisexual men respondents. 

105

 
 
 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 73:   Respondents who felt discriminated against or harassed on the grounds of gender in the last 

12 months, by LGBT group (%)

EU LGBT average

17

Lesbian women

34

Gay men

5

Bisexual women

Bisexual men

6

Transgender

0

10

39

38

20

30

40

50

60

70

80

90

100

Question: 

 C2. In the last 12 months, in the country where you live, have you personally felt discriminated against or harassed on the 
basis of one or more of the following grounds? B. Gender.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

“I think that women face more harassment in general, and as 
a lesbian woman I find the amount of comments I get on a 
day-to-day basis disgusting.” (United Kingdom, lesbian, 20)

The characteristics of incidents of discrimination, vio-
lence and harassment are also related to participants’ 
gender. Of those respondents who were attacked or 
threatened  with  violence  in  the  past  year,  women 
respondents are less likely than men respondents to say 
that the last incident of violence against them happened 
because they are LGBT. These women respondents are, 
however, much more likely than men respondents to 

say that the last attack they experienced in the last 12 
months because of being LGBT was a sexual attack. 
Conversely, men respondents were more likely than 
women respondents to alter their behaviour for fear 
of  being  assaulted,  threatened  or  harassed.  Higher 
proportions of gay and bisexual men than lesbian and 
bisexual women respondents avoid holding hands in 
public with a same-sex partner, for example. The link 
between experiences of discrimination on the grounds 
of gender sexual orientation and multiple discrimination 
needs more in-depth research.

106

5

How do respondents think 
their fundamental rights 
can be improved?

To understand the respondents’ views on what is needed 
to improve the fundamental rights situation of LGBT per-
sons, survey respondents were asked their views on 
measures to improve the fundamental rights of LGBT 
persons. The findings outlined in this chapter show that 
there is broad support among the respondents for more, 
and more effective, policies by national authorities.

More than half of all respondents (58 %), including a 
majority of respondents in all LGBT groups, think posi-
tive measures to promote respect for the human rights 
of lesbian, gay and bisexual people are very or fairly 
rare in their country of residence (Table 19).

Significant variation, however, exists among EU Member 
States and Croatia. In 18 Member States and Croatia, 
at least six in 10 of all respondents think measures 

to promote respect for the human rights of lesbian, 
gay and bisexual people are rare. Conversely, in four 
Member States, fewer than a quarter of all respondents 
say such measures were rare (Figure 74).

A higher proportion of all respondents (76 %) think that 
positive measures to promote the fundamental rights 
of transgender people are rare. This proportion rises to 
80 % among transgender respondents themselves. In 
all but one country, the Netherlands, a majority of all 
LGBT respondents say positive measures to promote 
respect for the human rights of transgender people are 
rare. In Bulgaria (90%), Italy (95 %), Greece (90 %), 
Hungary (90 %), Lithuania (90 %) and Romania (90 %), 
nine in 10 of all respondents say that positive measures 
to promote respect for the human rights of transgender 
people are rare (Figure 75).

Table 18: Positive measures to promote respect for the human rights of LGB people (%)

Total number

Very rare

Fairly rare

Fairly widespread

Very widespread

Don’t know

Lesbian 
women

15,236

Gay men

Bisexual 
women

Bisexual 
men

Transgender

57,448

6,424

7,200

6,771

EU LGBT 
average

93,079

18

43

29

6

3

19

38

32

9

3

15

44

31

6

4

16

38

33

8

5

20

43

27

4

6

18

40

31

7

4

Question: 

 B1. In your opinion, how widespread are the following in the country where you live? H. Positive measures to promote respect 
for the human rights of lesbian, gay or bisexual people (for instance equality plans, public campaigns, specialised services, etc.).

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

107

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 74:   Respondents who think that positive measures to promote respect for the human rights of lesbian, 

gay and bisexual people are ‘fairly rare’ or ‘very rare’, by country (%)

92 

92 

89 

89 

89 

88 

88 

88 

86 

58 

77 

75 

73 

72 

70 

66 

64 

64 

61 

58 

EU LGBT average
LV
RO
SK
IT
EL
HU
BG
LT
CY
HR
PL
MT
EE
FR
PT
AT
SI
CZ
LU
DE
ES
FI
IE
DK
BE
UK
SE
NL

46 

44 

42 

40 

29 

24 

23 

22 

16 

0

10

20

30

40

50

60

70

80

90

100

Question: 

 B1. In your opinion, how widespread are the following in the country where you live? H. Positive measures to promote 
respect for the human rights of lesbian, gay or bisexual people (for instance equality plans, public campaigns, specialised 
services etc.). Very rare; Fairly rare.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

“A couple of facts that make me feel discriminated against: 
1) Gay men are prohibited from donating blood. 2) Same-
sex couples cannot adopt children. 3) Same-sex couples 
can enter a registered partnership but do not get any of 
the tax-benefits a married man and woman receive. This is 
discrimination, discrimination by law.” (Germany, gay, 22)

“I feel discriminated against by my own national legislative 
system. Being in a solid relationship with my partner for six 
years now, I deplore the absence of opportunities to enter 
same-sex civil unions in a publicly acknowledged normative 
framework. […] I wish the EU could do more to push for the 
harmonization of civil rights in Europe.” (Italy, gay, 27)

Respondents were also asked to assess a number of 
proposals to counter homophobia and transphobia. 
These proposals reflect many of the standards set out 
in the Council of Europe Recommendation on measures 
to combat discrimination on grounds of sexual orienta-
tion or gender identity (Rec(2010)5). 

At least six in 10 of all lesbian, gay and bisexual respond-
ents strongly agree that all of the proposed measures, 
with the exception of anti-discrimination policies at the 
workplace, would allow them to be more comfortable 
living as a lesbian, gay and bisexual person in their 
country of residence (Figure 76).

“I believe it‘s highly important to promote LGBT marriage as 
we are just like any other people who want to be happy and 
have a family.” (Estonia, bisexual woman, 29)

“What I miss the most is an information campaign in schools. 
Young people have to know that it’s okay to be gay. And 
most of them need role models.” (Austria, lesbian, 20)

108

How do respondents think their fundamental rights can be improved?

Figure 75:   Respondents who think that positive measures to promote respect for the human rights of 

transgender people are ‘fairly rare’ or ‘very rare’, by country (%)

EU LGBT average
IT
RO
BG
EL
HU
LT
SK
HR
LV
PL
CY
FR
SI
EE
MT
PT
AT
CZ
IE
FI
DE

ES
DK
UK
BE
SE

76

95

90

90

90

90

90

89

89

88

87

85

84

83

83

81

80

78

75

72

72

69

67

67

63

58

55

52

49

0

10

20

30

40

50

60

70

80

90

100

Question: 

 B1. In your opinion, how widespread are the following in the country where you live? I. Positive measures to promote 
respect for the human rights of transgender people (for instance equality plans, public campaigns, specialised services 
etc.). Very rare; Fairly rare.

Base: 

Source: 

All EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

“There are many women like us, raising children together. 
I wish someone noticed that the absence of marriages/
partnerships/adoption does not mean that people just stop 
living. We plan our lives despite the lack of legal protection. 
It is very hard – not only we must often be in the closet, but 
our small children have to learn it too.” (Lithuania, lesbian, 32)

Among transgender respondents, six in 10 strongly 
agree that each of the proposed measures would allow 
them to live more comfortably as a transgender person 
in their country of residence (Figure 77). In addition, 
three quarters of transgender respondents agree or 
strongly agree that easier domestic legal procedures 
for gender reassignment would allow them to be more 
comfortable living as a transgender person: just 6 % say 
they are satisfied with the current situation.

In contrast, very few lesbian, gay and bisexual respond-
ents, and even fewer transgender respondents, say that 
the current situation with regard to these measures is 
fine. For example, just 3 % of lesbian, gay and bisexual 
respondents say the current situation regarding meas-
ures implemented at school to respect lesbian, gay and 
bisexual person is fine, and just 2 % of transgender 
respondents say the current situation of public figures 
openly speaking in support of transgender people is fine.

“I wish that politicians would have the courage to support 
the normality of any LGBT relationship. I wish for laws that 
would defend human rights regardless of sex or sexual 
orientation. Above all, I wish for equality in everything that 
means social relations. I wish for, more than anything, a 
change in the general mentality [regarding LGBT persons].” 
(Romania, lesbian, 37)

109

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure 76:   Measures that would allow respondents to be more comfortable living as a lesbian, gay or bisexual 

person, opinions by measure (%)

Recognition of same-sex
partnerships across the EU
Better acceptance
by religious leaders
Measures implemented
at school
The possibility to marry and/or
register of partnership

Open support of public ﬁgures

Training of public servants on
the rights of LGB people
National authorities
promoting rights
The possibility to 
foster/adopt children
Anti-discrimination policies
at the workplace

1 

1

3

6

4 

5 

8

18 

16

43 

83 

71 

71 

61 

61 

61 

60 

56.7 

0 

20 

40 

60 

80 

100 

Current situation is ﬁne 

Strongly agree 

Question: 

B2. What would allow you to be more comfortable living as a lesbian, gay or bisexual person in the country where you live?

Base: 

Source: 

All lesbian, gay and bisexual EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

Figure 77:   Measures that would allow respondents to be more comfortable living as a transgender person, 

opinions by measure (%)

Measures implemented
at school

Training of public servants on 
the rights of Transgender people

Better acceptance
by religious leaders

Anti-discrimination policies
at the workplace

National authorities
promoting rights

Open support of
public ﬁgures

2 

2

1

2 

2

5 

64

61 

59

57 

57 

56 

0 

20 

40 

60 

80 

100 

Current situation is ﬁne 

Strongly agree 

Question: 

 B2. What would allow you to be more comfortable living as a transgender person in the country where you live?

Base: 

Source: 

All transgender EU LGBT survey respondents.

FRA, EU LGBT survey, 2012

110

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Council  of  Europe,  Commissioner  for  Human  Rights 
(2011), Discrimination on grounds of sexual orientation 
and gender identity in Europe, Strasbourg, Council of 
Europe, available at: www.coe.int/t/Commissioner/
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31 March 2010.

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transgender-survey-results

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France, Prime Minister (2012), Programme of govern-
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les violences et les discriminations commises à raison 
de l’orientation sexuelle ou de l’identité de genre), 
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111

Annex 1: Approach and research methodology

The EU LGBT survey collected information from LGBT per-
sons living in the EU and Croatia. A total of 93,079 per-
sons who identified themselves as lesbian, gay, bisexual 
and transgender participated in this survey.

Survey method

The  survey  was  conducted  through  an  anonymous 
online  questionnaire,  primarily  promoted  in  LGBT-
related online media and social media. This methodol-
ogy generated by far the largest collection of empirical 
information about LGBT people available in Europe and 
worldwide.

The bulk of the questionnaire was composed of closed 
questions, with respondents given a range of possible 
responses among which they were asked to select the 
one or several answers which most applied to them. 
Where relevant, to accommodate respondents who felt 
unable to answer the question or that it did not apply 
to them, one option was ‘don’t know’. At the end of the 
questionnaire was an open section where respondents 
provided additional information. A non-representative 
selection of these responses is used in this report, but 
does not form part of the data analysis.

The  main  advantage  of  the  online  methodology  is 
the complete anonymity of respondents, allowing the 
survey to reach the less open LGBT population, as well as 
to obtain data about negative experiences that people 
do not normally talk about in an interview. The main 
limitation of this online methodology is that its sample 
is not statistically representative of the total LGBT popu-
lation, which, as a ‘hard to reach population’, cannot 
be identified in population registers. Nevertheless, the 
results can be considered robust because the number of 
survey respondents is very large and because it man-
aged to reach out to heterogeneous populations within 
the target groups in each country. This was supported by 
the country-level awareness-raising campaign, as well 
as by the social media activities of the survey organisers. 

internet users, who were informed about the survey 
and who decided to participate in it. Nevertheless, the 
very large sample size means it is plausible that the 
tendencies found in the results reflect to a large extent 
those of the LGBT population in the EU and Croatia.

There are a number of factors which may have influ-
enced  the  representativeness  of  the  sample.  Any 
survey of specific population groups identified through 
characteristics such as being lesbian, gay, bisexual or 
transgender can survey only those who self-identity 
as belonging to this group. This excludes individuals 
whose behaviour may, sometimes or always, indicate 
a non-heterosexual orientation but who do not identify 
as lesbian, gay, bisexual or transgender. For example, 
a woman who has occasional same-sex encounters may 
not identify herself as a bisexual woman. Moreover, the 
propensity of the various LGBT groups to ‘categorise’ 
their sexual orientation or gender identity may vary 
across countries, social statuses, ages, social and cul-
tural contexts or other variables, as well as over time. 
These factors may also influence the extent to which 
LGBT people are open about their identity, even in the 
case of an anonymous online questionnaire.

Unequal access to the internet may also have influenced 
the sample, especially in the Member States with lower 
levels of internet access. Lack of internet connection not 
only meant that certain segments of the LGBT commu-
nity could not be reached by many of the awareness-
raising activities, but also that these people may have 
faced obstacles to filling in the questionnaire.

In addition, although the full anonymity of respondents 
was essential to ensure the wide participation of LGBT 
respondents, it theoretically could allow people to fill 
in the survey multiple times – although respondents 
were encouraged not to do so – and provides greater 
opportunity for respondent misidentification. Accord-
ingly, careful steps were taken throughout the develop-
ment and implementation of the survey to ensure the 
quality and consistency of data.

Statistical representativeness

Data quality and consistency

The absence of a statistical consensus about the defi-
nition of LGBT people and the lack of available data 
about the proportion of LGBT people within the general 
population, combined with the difficulties in approach-
ing people to take part in a survey on the basis of 
their sexual orientation or gender identity, meant that 
random sampling was not feasible. In statistical terms, 
the European LGBT survey therefore represents the 
opinions of 93,079 people who identified themselves 
as lesbian, gay, bisexual and transgender, who were 

Respondents’ eligibility was established at the begin-
ning of the questionnaire. Only those who self-identified 
as lesbian, gay, bisexual or transgender, who lived in 
one of the 27 EU Member States and Croatia – regardless 
of legal circumstances (residency) or citizenship – and 
who were aged at least 18 were allowed to complete 
the full questionnaire. Throughout the questionnaire, 
the wording of questions was adapted to the respond-
ents’ particular group. For example, lesbian respond-
ents were asked about their personal experiences as 

113

Research process

The development and implementation of the survey 
were divided into two distinct phases. In phase 1, FRA 
designed the research and developed the question-
naire while the contracted consortium – Gallup Europe 
and ILGA Europe – conducted preliminary research and 
developed the technical aspects of the online survey 
tool. This involved conducting background research to 
explore existing statistical resources on LGBT popula-
tions and identify key online media and publications 
that could be used to promote the survey among the 
target audience. Next, a detailed communication plan 
and  awareness-raising  campaign  were  developed, 
including a visual identity and communication tools to 
support the promotion of the survey, as well as identify-
ing online agents to promote it.

Phase 2 consisted of the data collection and analysis. 
Data collection included hosting, operating and moni-
toring the online questionnaire, as well as implementing 
the awareness-raising strategy and developing more 
targeted awareness-raising efforts where necessary. 
FRA finalised the analysis based on processing and sta-
tistical analysis of the survey data by Gallup.

FRA’s Scientific Committee and external experts were 
consulted throughout the process on the development 
and implementation of the research instruments and 
analysis. More detailed information about the method-
ology of the survey will be available in a forthcoming 
Technical Report.

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

a lesbian rather than as an ‘LGBT’ person. Certain ques-
tions were asked only of transgender respondents, for 
example those related to gender reassignment.

The online questionnaire included several controls, 
such as filters, to ensure that the collected data were 
internally coherent. It also required that a response be 
given to each question, with the option to select ‘don’t 
know’ or ‘does not apply’ as necessary. This ensured 
that completed questionnaires had no omissions in 
terms of questions skipped entirely. The data were not 
further edited after they were collected.

The online, self-administered nature of the survey did 
not allow for controls over the quality of the answers 
received or over the identity or characteristics of the 
respondents. However, the large sample size combined 
with the length of the questionnaire – respondents took 
an average of 28 minutes to complete the survey – acts 
as a quality safeguard, helping to ensure that the overall 
results of the survey reflect the genuine experiences 
and opinions of LGBT people. Furthermore, the national 
experts did not report any campaign aiming to distort 
the results.

Weighting of data

To avoid the influence of the under- or overrepresenta-
tion of any particular lesbian, gay, bisexual or transgen-
der group or nationality in the sample, data weighting 
was applied to the EU LGBT average. This procedure 
guarantees that the opinions of the lesbian, gay, bisex-
ual and transgender respondents from each country are 
represented proportionally and reliably in the survey 
according to the country’s population. In the absence of 
reliable statistics on the proportionate size of the LGBT 
population in the EU and Croatia, this weighting was 
based on two assumptions. First, it assumed that the 
relative size of lesbian, gay, bisexual and transgender 
groups within the overall LGBT population is similar in 
all countries. Group weights are therefore computed 
as an average of the share of each group in the total 
data set across all countries, with each country having 
the same weight. Second, the weighting assumed that 
the relative size of the LGBT population over the age 
of 18 in each EU Member State and Croatia is equal to 
the relative size of the total adult population in each 
EU Member State and Croatia (country weights are com-
puted based on Eurostat data).

In this report, the base number (N) of responses to each 
question is presented as an unweighted count, whereas 
the percentages of respondents selecting a particular 
answer are presented in weighted form.

114

Annex 2: Survey sample

The  EU  LGBT  survey  gathered  93,079  completed 
responses. Table A1 shows the sample size by coun-
try (n), its total population over the age of 18 and the 

proportion of responses relative to the total adult popu-
lation. It also shows the number of responses according 
to the weighting methodology described above. 

Table A1: 

 Sample size by country (n) and their 18+ population, the proportion of the number of cases in the 
sample relative to the total 18+ population and weighted count

Country  
(of residence)

n

Population 18+

n relative to the total 
18+ population (%)

Weighted count

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

IE

IT

LT

LU

LV

MT

NL

PL

PT

RO

SE

SI

SK

UK

HR

2,543

2,901

1,033

265

2,469

2,0271

1,710

374

2,760

6,388

3,439

8,375

2,267

1,625

13,255

821

318

501

358

3,175

2,790

2,125

1,260

2,464

636

1,000

6,759

1,197

6,872,033

8,617,292

6,241,121

633,359

8,665,038

68,326,165

4,351,661

1,089,752

9,344,922

37,862,752

4,288,349

49,250,217

8,175,111

3,341,967

50,352,450

2,622,861

403,566

1,845,068

337,694

13,144,678

30,990,692

8,694,435

17,451,843

7,479,448

1,697,820

4,394,588

49,249,383

3,584,162

Total

93,079

409,308,427

Note: 

Base: 

n = sample size 

All EU LGBT survey respondents.

Sources: 

FRA, EU LGBT survey, 2012; Eurostat

0.0370

0.0337

0.0166

0.0418

0.0285

0.0297

0.0393

0.0343

0.0295

0.0169

0.0802

0.0170

0.0277

0.0486

0.0263

0.0313

0.0788

0.0272

0.1060

0.0242

0.0090

0.0244

0.0072

0.0329

0.0375

0.0228

0.0137

0.0334

0.0227

1,560

1,986

1,402

150

1,959

15,469

986

248

2,120

8,590

973

11,484

1,818

778

11,428

562

91

389

77

2,983

7,094

1,911

3,965

1,700

385

989

11,182

802

93,079

115

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

The largest number of responses, over a fifth of the 
total sample, came from persons residing in Germany, 
with a further one in eight responses coming from Italy. 
Reflecting  their  lower  population  sizes,  the  fewest 
responses were received from people living in Cyprus, 
Estonia, Luxembourg, Malta and Slovenia. Participation 
rates ranged widely, with the highest value recorded in 
Malta and the lowest in Romania.

Sample composition

Respondents of the survey tend to be men, gay, young 
and highly educated. These groups are possibly over-
represented in the sample. As the true distribution in 
the LGBT population is not known, it is impossible to 
ascertain critical selection bias. However, participa-
tion in the online survey varies between countries and 
depends highly on local networks and stakeholders, 
especially in the case of the EU LGBT survey, which 
was promoted by LGBT associations, in publications and 
websites and through social media. A precondition for 
participation was unobstructed and continuous access 
to the internet for a considerable amount of time in 
order to complete the questionnaire (from 30 minutes 
to one hour). Thus, unequal access to internet due to 
age, education, income and local infrastructure will be 
reflected in the survey. Women and older persons do 
show lower internet use rates throughout the Euro-
pean Union, but this alone will not sufficiently explain 
apparent imbalances in the sample structure. Further 
research is needed to reveal the social dynamics of 
such a low participation rate. Different experiences 
of discrimination can lead to a higher motivation or to 
reluctance to participate in a survey on discrimination. 
However, the result could also reflect different levels 
of self-declaration or self-organisation among gay and 
lesbian persons within a country. As explained above, 
the sample of the European LGBT survey is not statisti-
cally representative of the total LGBT population of the 
European Union and Croatia, which is unknown. Never-
theless, the 93,079 respondents represent a very large 
group, plausibly representing most opinions, behaviours 
and attitudes that are present in the statistical universe 
of the survey.

The LGBT universe includes persons with identities 
based on gender, including where the sex assigned at 
birth and the preferred gender do not align, and sexual 
orientation, encompassing sexual orientations other 
than strictly heterosexual. The questionnaire asked 
respondents to categorise themselves according to 
a wide range of – often overlapping – identities related 
to their sexual orientation, gender identity, gender 
expression, gender perception and birth sex. A detailed 
breakdown of the sample according to these identities 
is presented in the section below.

Although these detailed overviews of the identities of 
European LGBT survey respondents offer rich possibili-
ties for further analysis, the large number of categories 
and ensuing small subsamples did not fit the purpose 
of this report. Given this, a less detailed but clearer cat-
egorisation was adopted for the analysis of survey data, 
using the four main identities that were the subject of 
the research: lesbian, gay, bisexual and transgender. 
Within the bisexual group, men and women respond-
ents were split to allow analysis by sex.

The term ‘transgender’ was used in the survey as an 
umbrella term encompassing all those who identified 
as gender variant, cross-dressers, transgender, trans-
sexual, men or women with a transsexual past, queer 
or another term. Self-identification with transgender 
subcategories  was  used  in  analysing  trans-specific 
questions. However, transgender respondents were not 
grouped together with other respondents who identi-
fied as having the same sexual orientation: throughout 
the analysis, lesbian transgender respondents appear 
among the transgender respondents and not among 
lesbian women. 

Sample typology by LGBT group

Only respondents who categorise themselves as being 
lesbian,  gay  or  bisexual  were  allowed  to  complete 
the survey, unless they stated that they identify as 
transgender. In this case, respondents selecting any of 
the possible sexual orientation answers were allowed 
to continue.

To facilitate the analysis of the data, these categories 
were merged to create four main groups of respondents 
which reflect the main target groups of the research: 
lesbian, gay, bisexual and transgender persons. On this 
basis, 62 % of respondents are gay men, 16 % are les-
bian women, 8 % are bisexual men, 7 % are bisexual 
women and 7 % are transgender.

To mitigate the effects of the overrepresentation of 
one group of respondents, typically gay men, in some 
country samples, and the overrepresentation of some 
countries in the total sample, a weighting methodology 
was applied to the data as described above. Follow-
ing the application of the weighting calculations, 56 % 
of the sample identified as gay men, 19 % as lesbian 
women, 9 % as bisexual women, 7 % as bisexual men 
and 8 % as transgender.

Despite the large number of respondents and the use 
of large analytical groups, in some cases the number of 
responses sharing a particular set of identities became 
very small. To retain the robustness of the analysis, this 
report highlights with an asterisk those cases where 
the number of applicable responses was fewer than 30.

116

Table A2: 

 LGBT typology used in this report, by country, number of instances and percentage within country 
(unweighted)

Annex 2: Survey sample

EU 
total

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

IE

15,236

437

424

226

41

565 2,445

393

99

399

897

820 1,302

307 423

57,448 1,558 1,998

474 164 1,432 13,907

930

170 1,590 4,409 1,192 5,720 1,455 864

Lesbian 
women

Gay men

Bisexual 
women

n

n

n

6,424

164

132

139

Bisexual men n

Transgender

n

7,200

6,771

217

167

182

165

88

106

18

17

25

163

590

136

61

219

354

756

326

135

141

139 2,000

170 1,329

108

143

20

24

288

264

514

214

190

481

592

435

236

134

58

139

Total

N 93,079 2,543 2,901 1,033

265 2,469 20,271 1,710 374 2,760 6,388 3,439 8,375 2,267 1,625

Lesbian 
women

Gay men

Bisexual 
women

%

%

%

Bisexual men %

Transgender %

16

62

7

8

7

17

61

6

9

7

15

69

5

6

6

22

46

13

9

10

15

62

7

6

9

23

58

7

6

7

12

69

3

10

7

23

54

8

6

8

26

45

16

5

6

14

58

8

10

10

14

69

6

8

3

24

16

14

35

22

6

14

68

64

4

7

5

6

10

6

26

53

9

4

9

Total

%

100

100

100

100 100

100

100

100 100

100

100

100

100 100 100

Lesbian 
women

Gay men

Bisexual 
women

n

n

n

Bisexual men n

Transgender

n

IT

LT

LU

LV MT

NL

PL

PT

RO

SE

SI

SK

UK

HR

2,136

177

51

150

109

614

375

456

139

427

160

144 1,285

235

8,668

439

187 200

173 1,937 1,754 1,168

690 1,053

345

584 3,795

592

805

100

996

650

65

40

16

26

38

83

22

46

40

214

264

268

70

341

18

18

159

251

138

259

146

87

214

147

269

374

64

38

29

96

572

157

61

115

294

105

813

108

Total

N 13,255

821

318 501

358 3,175 2,790 2,125 1,260 2,464

636 1,000 6,759 1197

Lesbian 
women

Gay men

Bisexual 
women

%

%

%

Bisexual men %

Transgender %

16

65

6

8

5

22

53

12

8

5

16

30

59

40

5

8

12

17

4

9

30

48

11

5

5

19

61

7

5

8

13

63

9

5

9

21

55

13

7

4

11

55

6

17

12

17

43

14

11

15

25

54

10

6

5

14

58

10

6

12

19

56

8

4

12

20

49

13

9

9

Total

%

100

100 100 100

100

100

100

100

100

100

100

100

100 100

Questions:  A2. What sex were you assigned at birth?

A3_1. please select the one answer that fits you the best.

A4. Would you say you are …

Note: 

Base: 

N = total survey sample (by country); n = subgroup sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

117

 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A3:  LGBT typology used in this report, by country, count and percentage within country (weighted)

EU 
total

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

IE

17,815

299

380 268

29

375

2,961

189

47 406 1,644 186 2,198 348

149

52,250 876 1,115

787

84 1,100 8,684 554 139 1,190 4,822 546 6,446 1021

437

8,626

145

184

130

14

182

1,434

91

23

196

796

90 1,064 168

Lesbian 
women

Gay men

Bisexual 
women

n

n

n

Bisexual men n

Transgender

n

6,812

7,576

114

127

145

162

103

114

11

12

143

159

1,132

1,259

72

80

18

20

155

173

629

699

71

79

840

133

935

148

72

57

63

Total

N 93,079 1,560 1,986 1,402

150 1,959 15,469 986 248 2,120 8,590 973 11,484 1,818

778

Lesbian 
women

Gay men

Bisexual 
women

%

%

%

Bisexual men %

Transgender %

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

19

19

56

56

56

9

7

8

9

7

8

9

7

8

19

56

9

7

8

19

19

56

56

9

7

8

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

Total

%

100 100

100 100 100 100

100 100 100 100

100 100

100 100

100

IT

LT

LU

LV

MT

NL

PL

PT

RO

SE

SI

SK

UK

HR

Lesbian 
women

Gay men

Bisexual 
women

n

n

n

Bisexual men n

Transgender

n

2,187

108

6,415

315

1,059

836

930

52

41

46

18

51

8

7

7

74

15

571

1,358

366

759

325

74

189 2,140

154

218

43 1,674 3,982 1,072 2,226

954

216

555 6,277

450

36

28

32

7

6

6

276

657

177

367

158

218

243

519

577

140

156

290

323

124

138

36

28

31

92 1,036

72

81

818

910

74

59

65

Total

N 11,428

562

91

389

77 2,983 7,094 1,911 3,965 1,700

385

989 11,182

802

Lesbian 
women

Gay men

Bisexual 
women

%

%

%

Bisexual men %

Transgender %

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

19

56

9

7

8

Total

%

100

100

100

100

100

100

100

100

100

100

100

100

100

100

Questions:  A2. What sex were you assigned at birth?

A3_1. PLEASE SELECT THE ONE ANSWER THAT FITS YOU THE BEST.

A4. Would you say you are …

Note: 

Base: 

N = total survey sample (by country); n = subgroup sample 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

118

 
 
Annex 2: Survey sample

Sample typology by sex, sexual 
orientation, gender identity, gender 
expression and gender perception

Table A4 provides more detail drawing on respond-
ents’ breakdown by sex, sexual orientation, gender 
identity, gender expression and gender perception of 
respondents.

Table A4:  Respondent typology according to their sex, sexual orientation, and gender expression ‘look’

Type

No. of 
respondents

% of all respondents (excluding trans)

Feminine lesbian women

Masculine lesbian women

Lesbian women – mixed gender expression

Feminine gay men

Masculine gay men

Gay men – mixed gender expression

Feminine bisexual women

Masculine bisexual women

Bisexual women – mixed gender expression

Feminine bisexual men

Masculine bisexual men

Bisexual men – mixed gender expression

TOTAL

Questions:  A2. What sex were you assigned at birth?

A4. Would you say you are …

10,666

1,634

2,936

788

52,725

3,935

5,259

228

937

93

6,589

518

86,308

A5. Do you agree or disagree with the following statements?

Base: 

All LGB survey respondents.

Source: 

FRA, EU LGBT survey, 2012

13.3

12.1

3.7

0.9

61.1

4.1

7.7

0.3

1.3

0.1

6.6

0.6

91.9

119

 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A5 provides more detail drawing on transgender 
respondents’ breakdown based on gender identity, sex 
assigned at birth, and gender perception.

Table A5: 

 Respondent typology according to gender identity, sex assigned at birth, and gender expression (how 
much they felt feminine and masculine)

Type

Sex assigned  
at birth

Gender perception, 
felt being…

No. of 
instances

% of all respondents 
(including LGB)

Transgender

Transsexual

Woman with 
a transsexual past

Man with 
a transsexual past

Gender variant

Cross-dresser 

Queer

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

Predominantly masculine

Predominantly feminine

Mixed

Predominantly masculine

Predominantly feminine

Mixed

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

65

430

132

317

25

97

22

689

56

369

31

50

16

343

38

163

11

25

77

69

108

93

41

151

87

212

275

35

10

35

306

48

157

116

115

274

0.07

0.53

0.16

0.34

0.02

0.11

0.03

0.84

0.06

0.44

0.04

0.05

0.02

0.38

0.04

0.16

0.01

0.03

0.09

0.09

0.13

0.11

0.05

0.14

0.10

0.25

0.34

0.03

0.01

0.02

0.41

0.05

0.19

0.12

0.13

0.28

120

Annex 2: Survey sample

Type

Sex assigned  
at birth

Gender perception, 
felt being…

No. of 
instances

% of all respondents 
(including LGB)

Predominantly masculine

Male

Predominantly feminine

Mixed

Predominantly masculine

Female

Predominantly feminine

Mixed

747

121

197

168

250

200

6,771

1.12

0.16

0.27

0.15

0.33

0.25

8.1

Other

TOTAL

Questions:  A2. What sex were you assigned at birth?

A3_1. PLEASE SELECT THE ONE ANSWER THAT FITS YOU THE BEST.

A5. Do you agree or disagree with the following statements?

Base: 

All transgender EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Sexual preference and behaviour 

The questionnaire asked respondents several questions 
about whom they are sexually attracted to and with 
whom they typically have sex. The responses to these 
questions act as a check of respondents’ self-declared 
sexuality. 

sexes in the vast majority of cases (83 % of bisexual 
women and 74 % of bisexual men). Nevertheless, in 
the bisexual groups a significant minority (14 % of the 
women and 22 % of the men) say that they have homo-
sexual preferences. Transgender respondents are about 
evenly split among those who are sexually attracted to 
men (36 %), to women (31 %) and to both sexes (29 %). 

The different lesbian, gay and bisexual groups have 
sexual preferences which in large part correspond with 
their self-classification: lesbian women are mainly sexu-
ally attracted to women (91 %), gay men are attracted 
to men (97 %), and bisexual groups are attracted to both 

In terms of sexual behaviour, gay men participants pre-
dominantly report that they have sex with men. Among 
lesbian respondents, 10 % indicate that they also or 
mainly have sex with men, and only about two thirds 
(68 %) say they only have sex with other women. 

Table A6:  Whom are you sexually attracted to? (%)

n/N

Males

Females

Both males and females

I am not sexually 
attracted to anyone

Don’t know

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

Total

15,236

57,448

6,424

7,200

6,771

93,079

1

91

7

1

0

97

0

2

0

0

2

14

83

1

1

22

3

74

1

1

36

31

29

3

2

60

22

18

1

0

Question:  A8. Whom are you sexually attracted to?

Note: 

Base: 

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

121

 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A7: 

In the last five years, respondents have had sex with … (%)

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

Total

n/N

15,236

57,448

6,424

7,200

6,771

93,079

Only women (or with one woman)

Mainly women

Both men and women

Mainly men

Only men (or with one man)

No one

Don’t know

68

15

7

1

2

6

0

0

0

2

9

86

4

0

15

11

37

13

14

9

1

4

7

36

28

19

6

0

24

9

15

10

29

12

1

17

4

10

9

53

6

0

Question:  A7. In the last five years, you have had sex with: ...

Note: 

Base: 

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Sizeable minorities in the bisexual groups engaged only 
in homosexual encounters during the past five years. 
Among bisexual women, another 14 % had only hetero-
sexual sex in the same time span, leaving about six in 10 
respondents who had sex with both men and women.

Transgender respondents’ sexual behaviour is slightly 
more  polarised.  More  than  half  had  sex  with  only 
women or only men, whereas one in five respondents 
say they had sex with either “mainly men” or “mainly 
women” and one in eight have not had any sexual part-
ner during the past five years.

Gender identity of transgender 
respondents

One in 12 (8 %) respondents identify themselves as 
transgender. These respondents are then able to fur-
ther self-identify as part of a transgender subgroup. 
Transgender, transsexual, queer and other are the most 
common identifications.

Around two thirds of transgender respondents were 
assigned male sex at birth, although there is consider-
able variation by transgender subgroup.

Table A8:  Description of transgender respondents, unweighted and weighted count*

Unweighted count

Weighted count

Total

6,771

1,066

1,217

397

199

539

654

1,016

1,683

Sex assigned 
at birth: female

Sex assigned 
at birth: male

2,574

4,197

439

450

58

139

285

80

505

618

627

767

339

60

254

574

511

1,065

Total

7,576

1,140

1,347

409

188

575

698

1,095

2,124

Sex assigned  
at birth: female

Sex assigned 
at birth: male

2,617

4,959

437

483

61

115

285

62

491

684

703

865

349

73

290

636

603

1,440

n

Transgender

Transsexual
Woman with a 
transsexual past
Man with a 
transsexual past
Gender variant

Cross-dresser

Queer

Other

Question:  A3_1. Please select the one answer that fits you the best.
Note: 

*  The questionnaire provided to respondents the option to select sex assigned at birth. Some respondents may have selected 

the wrong box or thought that they should state their current or legal sex, which may represent their experience more 
accurately. This may explain the apparently contradictory figures such as 58 women with a transsexual past with sex 
assigned at birth: female. On the other hand, it may well give us a glimpse of the individual personal stories which do not 
always fit under a predetermined normative or statistical categorisation.

Note: 
Base: 
Source: 

 n = sample
All transgender EU LGBT survey respondents.
FRA, EU LGBT survey, 2012

122

Annex 2: Survey sample

Table A9 presents the distributions of these subgroups 
within the countries covered.

Sexual orientation of transgender 
respondents

Transgender respondents are most likely to describe 
their  sexual  orientation  as  bisexual  (27  %)  or  gay 

(28 %). Around one in seven describe themselves as 
heterosexual/straight or could not classify their sexual 
orientation in any of the categories offered. Transgen-
der respondents, gender variant respondents and queer 
respondents are more likely to choose ‘other’ or to say 
that they could not answer this question.

Table A9:  Description of transgender respondents, by country (%)

n

Transgender

Transsexual

Woman with a  
transsexual past

Man with a  
transsexual past

Gender variant

Cross-dresser

Queer

Other

n

Transgender

Transsexual

Woman with a  
transsexual past

Man with a 
transsexual past

Gender variant

Cross-dresser

Queer

Other

10

20

6

4

6

16

23

16

IT

650

10

14

2

1

5

3

14

51

AT

BE

BG

167

165

106

CZ

DE

DK

170

1,329

143

CY

25

24

0

0

4

0

0

16

56

9

18

8

3

8

5

33

16

23

13

7

2

7

6

10

31

12

3

2

0

15

3

24

42

LT

LU

LV

MT

40

13

20

8

0

23

18

8

13

38

21

8

11

3

8

16

11

24

46

13

17

7

2

0

17

17

26

18

28

11

0

6

6

0

33

17

15

20

8

5

8

13

16

17

NL

251

23

25

9

5

4

7

8

19

24

17

3

1

6

18

8

21

PL

259

7

24

1

2

14

23

14

15

Question:  3_1. Please select the one answer that fits you best.

Note: 

Base: 

n = country sample

All transgender EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

EE

24

4

13

4

0

13

8

38

21

PT

87

5

11

2

2

7

7

11

54

EL

ES

FI

FR

HU

IE

264

214

481

435

134

139

21

6

0

0

9

5

16

44

9

18

2

1

7

7

14

42

RO

147

7

4

1

2

10

6

16

54

SE

374

13

23

5

6

5

13

17

19

15

19

5

5

11

13

15

17

SI

29

24

7

0

0

3

7

17

41

24

16

6

2

3

9

13

26

10

30

5

5

4

7

9

29

25

17

5

1

9

14

13

17

SK

UK

HR

115

813

108

13

9

0

1

30

3

32

12

22

25

14

2

8

6

10

13

13

8

3

1

17

12

27

19

123

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A10:  Sexual orientation of the transgender respondents, by category (%)

n

Lesbian

Gay

Bisexual

Hetero /
straight

Not sure/ other

Transgender

Transsexual

Woman with a transsexual past

Man with a transsexual past

Gender variant

Cross-dresser

Queer

Other

Total

1,066

1,217

397

199

539

654

1,016

1,683

6,771

15

21

33

1

18

7

21

19

18

Question:  A3_1. Please select the one answer that fits you the best.

Note: 

Base: 

n = category sample

All transgender EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Sociodemographic 
characteristics

Respondents were asked a series of questions about 
their age, sex, occupation, education, income and civil 
status, as well as whether they identified as belonging 
to a minority group.

Table A11:  Birth sex

29

28

35

27

36

48

16

19

27

18

29

20

26

7

25

1

4

14

23

13

11

9

20

6

17

9

14

15

9

1

37

20

14

45

49

28

Sex

Overall, the sample1 is dominated by men: seven in 10 
respondents are listed as male according to the sex 
they were assigned at birth; it should be noted that, for 
many transgender persons, the ‘sex assigned at birth’ is 
not a relevant category, as they do not identify with it. 

Female

Male

Total

Lesbian 
women

15,236

0

15,236

Gay men

0

57,448

57,448

Bisexual 
women

6,424

0

6,424

Bisexual men

Transgender

EU LGBT 
average

0

2,574 (35 %) 24,234 (31 %)

7,200

7,200

4,197 (66 %) 68,845 (69 %)

6,771

93,079

Question:  A2. What sex were you assigned at birth?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A12:  Age of participants

Age distribution (years)

18–24
25–39
40–54
55+
Total

Question:  A1. How old are you?

Base: 

All EU LGBTsurvey respondents.

Source: 

FRA, EU LGBT survey, 2012

124

Frequency
28,110
39,939
20,236
4,794
93,079

%
32
43
20
5
100

1  More considerations about participation rates among LGBT 

respondents are provided in Annex 1 ‘Approach and research 
methodology’.

Annex 2: Survey sample

Age

Respondents were categorised into four categories 
according to their age. The largest age group repre-
sented in the sample are respondents aged 25–39, and 
the smallest are those over 55.

Lesbian, and particularly bisexual women, respondents 
tend to be young, with more than 80 % of respondents 
under the age of 40. Transgender respondents are the 
oldest group of participants: a third are older than 40.

In general, the 25- to 39-year-old men group are the 
most populous, ranging from 38 % of the sample in 
the Czech Republic, Denmark and Finland to 21 % in 
Poland. There are some exceptions: in Poland, 40- to 
54-year-old men took part in the survey in the high-
est numbers (27 %). Female respondents older than 
55 years of age represent the smallest proportion of 
respondents in every country.

Figure A1:  Age breakdown (%)

EU LGBT average 

Lesbian women 

32 

38 

Gay men 

27 

Bisexual women 

53 

Bisexual men 

Transgender 

34 

30 

43 

44 

20 

16 

44 

38 

39 

38 

23 

21 

24 

80

18-24 

25-39 

40-54 

55+ 

5 

3 

5 

8 

1 

7 

8 

90

100

0

10

20

30

40

50

60

70

Question:  A1. How old are you?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A13:  Age and sex breakdown, by country (%)

BE

BG

CZ

DK

DE

EE

EL

ES

FR

IE

IT

Female 18–24
Female 25–39
Female 40–54
Female 55+
Male 18–24
Male 25–39
Male 40–54
Male 55+
n

11
15
5
1
16
32
17
4

20
11
2
0
27
31
8
2
2,901 1,033 2,469 1,710 20,271

13
13
4
1
14
29
21
5

15
16
1
0
22
38
7
1

12
19
2
0
15
38
13
1

8
15
7
1
14
29
21
5

11
13
6
3
15
24
20
9

18
13
3
0
19
30
14
4
374 2,760 6,388 8,375 1,625 13,255

10
20
3
0
19
37
9
2

14
13
3
0
18
37
13
1

11
15
5
1
19
31
17
2

CY
16
11
3
1
18
27
20
6
265

LV

16
14
2
0
26
33
8
2
501

LT

11
15
5
1
20
30
14
5
821

LU

HU

MT

NL

AT

PL

PT

RO

SI

SK

FI

SE

UK

HR

Female 18–24
Female 25–39
Female 40–54
Female 55+
Male 18–24
Male 25–39
Male 40–54
Male 55+
n

14
14
4
0
20
30
16
3

20
10
1
1
28
31
7
1
318 2,267

Questions:  A1. How old are you?

6
13
9
2
13
31
22
4

13
18
2
0
18
36
11
3

16
16
1
0
26
33
8
1
358 3,175 2,543 2,790 2,125 1,260 636 1,000 3,439 2,464 6,759 1,197

18
12
2
0
29
34
6
1

16
12
3
0
25
29
13
2

20
11
1
0
26
35
7
1

13
17
1
0
20
38
10
1

12
12
6
2
17
26
18
7

10
12
6
3
8
21
27
12

14
14
3
1
19
25
16
8

18
13
3
0
25
25
13
4

17
12
1
0
25
35
8
1

A2. What sex were you assigned at birth?

Note: 

Base: 

n = country sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

125

 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A14:  Education level, by LGBT group (%)

No formal education

Primary education

Secondary education

Post-secondary 
education other than 
college/university

College/university/ higher 
academic education

Other

n/N

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

0

2

22

14

59

3

0

1

23

15

58

2

0

2

24

13

58

3

0

2

27

15

53

3

0

3

30

16

48

3

0

2

24

15

57

3

15,236

57,448

6,424

7,200

6,771

93,079

Question:  H5. What is the highest level of education you have achieved?

Note: 

Base: 

n = subgroup sample; N = total survey sample 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Education 

A majority of respondents has college, university or 
higher academic degrees. This istrue for each LGBT 
group. In addition, a quarter of respondents has sec-
ondary education. There are virtually no respondents 
who report primary education as the highest completed 
level of education.

For analytical purposes, respondents were grouped into 
those that had completed college, university or higher 
degrees (59 %) and a second group including all other 
respondents (41 %). The proportion of respondents 

who have completed higher education is broadly simi-
lar across LGBT groups, although bisexual men and 
transgender respondents are slightly less likely to have 
a university or college degree.

Occupation

Three out of five respondents (58 %) indicate that they 
are in paid work, including those who are on temporary 
leave from work, and a further three out of 10 are stu-
dents. One in 15 respondents are unemployed, and small 
segments of the sample are doing unpaid or voluntary 
work, are retired or are otherwise not working.

Table A15:  Economic activity status, by LGBT group (%)

In paid work (including 
on maternity or other 
temporary leave)

In unpaid or voluntary work

Unemployed

Student

Retired

Otherwise not working 
(e.g. taking care of home. on 
a long sick leave. disabled)

Lesbian 
women

Gay 
men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

54

3

7

33

1

2

63

2

8

23

3

2

40

3

7

48

0

3

56

2

8

28

3

2

50

3

13

24

4

6

58

2

8

27

2

3

n/N

15,236

57,448

6,424

7,200

6,771

93,079

Question:  H6. Which of the following best describes your status?

Note: 

Base: 

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

126

Annex 2: Survey sample

The individual LGBT groups do not differ in their dis-
tribution by economic activity status, with one excep-
tion: bisexual women respondents are more likely to be 
students than in paid work, reflecting the fact that the 
majority were 18–25 years old. In addition, the propor-
tion of transgender respondents who are unemployed 
is higher than among other LGB respondents.

To simplify the analysis, respondents were grouped into 
three categories according to their economic activity: 
those in paid work (58 %), students (27 %) and ‘other 
non-working’ (15 %), which combined all the remaining 
categories.

The distribution of LGBT respondents by work status 
does not show significant variation across Member 
States and Croatia. In all but one country, the propor-
tions of the three categories are the same: those in paid 
work are represented in the highest number, followed 
by students and then those who are not working. The 
only exception is found in the Netherlands, where the 
proportion of those not in paid work exceeds the pro-
portion of students.

Table A16:  Employment, by country (%)

Income

The EU LGBT survey asked respondents about their 
monthly net household income. Income levels were 
recorded in four broad categories, derived from the 
European  Social  Survey  (ESS)  income  distribution 
results.2 The four categories were tailored to income 
levels in each country surveyed, so that about 25 % of 
the general population had a household income cor-
responding to each category.

Overall, the income distribution of the sample corre-
sponds to that of the general population: about a quar-
ter of the respondents belongs to each category.

Gay men are the most likely to report household income 
in the highest category. Conversely, bisexual women, 
and especially transgender respondents, are more likely 
than other LGBT groups to report a household income in 
the bottom quartile and less likely to report incomes in 
the top income quartile. In the case of bisexual women, 
this may reflect the young age of respondents and high 
proportion of students in the sample.

In paid work

Student

Other 
non-working

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

IE

66

24

10

65

22

13

62

26

62

20

13

18

53

39

8

66

21

13

53

28

67

22

19

11

47

27

26

52

28

20

54

31

16

58

28

14

53

33

14

55

29

17

n

2,543 2,901 1,033 265 2,469 20,271 1,710 374 2,760 6,388 3,439 8,375 2,267 1,625

In paid work

Student

Other 
non-working

IT

LT

LU

LV MT

NL

PL

PT

RO

SE

SI

SK

UK

HR

52

31

17

56

32

12

76

14

9

71

17

12

59

31

10

64

17

19

52

37

11

50

33

17

58

27

15

58

27

16

54

36

10

53

38

9

60

24

16

45

38

17

n

13,255

821

318

501

358 3,175 2,790 2,125 1,260 2,464

636 1,000 6,759 1,197

Question:  H6. Which of the following best describes your status?

Note: 

Base: 

n = country sample.

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

2 

For more information on the European Social Survey, see 
www.europeansocialsurvey.org/.

127

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A17:   Household income, by LGBT group (national income quartiles derived from European Social Survey 

household income results)

LGBT 
average

Lesbian 
women

Gay 
men

Bisexual 
women 

Bisexual 
men

Transgender 

Under lowest quartile

Between lowest quartile and median

Between median and highest quartile

Above highest quartile

27

25

22

26

30

26

23

21

24

24

23

30

35

26

21

19

27

24

23

27

36

25

20

19

Question: 

 H17. Could you please indicate what your household’s net combined monthly income is – that is, after deductions for tax, social 
insurance, etc.? [According to country of residence, a list of country-specific income bands was presented.]

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A18:   Income distribution of the LGBT samples in each country (national quartiles defined by empirical 
household income distribution in the general population in the particular country, reference data: 
European Social Survey, 2010), EU LGBT average

Country
AT
BE
BG
CY
CZ
DE
DK
EE
EL
ES
FI
FR
IE
IT
LV
LT
LU
HU
MT
NL
PL
PT
RO
SE
SI
SK
UK
HR

1st quartile
32
25
6
13
22
39
32
13
47
32
36
28
19
25
13
28
18
33
9
29
20
19
15
31
18
15
20
14

2nd quartile
29
25
13
19
23
25
33
19
26
20
27
28
23
33
15
21
20
23
17
27
23
16
17
25
29
28
22
20

3rd quartile
17
24
22
20
20
18
20
29
15
25
20
19
27
24
22
18
24
17
34
21
25
20
24
21
24
29
28
32

4th quartile
23
26
59
48
35
18
15
39
13
23
17
25
31
19
51
34
38
28
40
23
33
45
44
23
28
28
31
34

Question:  

 H17. Could you please indicate what your household’s net combined monthly income is – that is, after deductions for tax, social 
insurance, etc.? [According to country of residence, a list of country-specific income bands was presented.]

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

In most countries covered by the survey, the distribution 
of income among respondents is in line with that among 
the general population. In some Member States, how-
ever, the distribution of the sample does not align with 
the expected distribution based on ESS quartiles. For 

example, in Bulgaria, Latvia, Malta and Cyprus, respond-
ents report relatively higher income levels than those 
of the general population. In contrast, respondents in 
Greece are more likely than the general population to 
report the lowest levels of income.

128

Annex 2: Survey sample

Place of residence

Relationship status

The majority of respondents say they live in an urban 
area: a city (59 %), a town (21 %) or the suburbs or 
outskirts of a city (10 %). Urban residents dominate 
each individual LGBT group.

To analyse the results according to urbanisation level, all 
respondents who live outside cities were put together 
in a single category. In each individual LGBT group, 
respondents are more likely to live in cities than else-
where. Moreover, in all but five EU Member States, at 
least half of the respondents live in cities.

Household composition

The sample is split fairly evenly between those who live 
in single-person households (29 %), two-person house-
holds (33 %) and households of three or more (37 %).

To simplify the analysis, respondents were grouped into 
two categories: those living in single-person house-
holds and those who live in multi-member households. 
Significant majorities of respondents in all LGBT groups 
live in multi-member householders, although gay men 
respondents are less likely to live with other people 
than were other LGBT groups.

Similarly, majorities in each EU Member State and Croa-
tia live in multi-member households. This ranges from 
51 % of respondents in Finland to 84 % in Slovakia. 

The majority of respondents in all LGBT groups indicate 
they are currently living with a partner or spouse, or are 
involved in a relationship without living together. This is 
particularly true for lesbian and bisexual women. Con-
versely, transgender respondents are the most likely 
to say they have no relationship (48 %).

Most lesbian, gay and bisexual respondents have a part-
ner of the same sex (53 %), while 6 % have a partner 
of a different sex. Lesbian respondents are most likely 
to say they have a same-sex partner (69 %), whereas 
bisexual men and women are the most likely to say 
they have a partner of the opposite sex (28 % and 
27 %, respectively).

Combining  the  data  on  relationship  status  and  sex 
of  partner  indicates  that  26  %  of  respondents  live 
together with a same-sex partner, whereas 4 % cohabit 
with a different-sex partner. In addition, 25 % are in 
a relationship with a same-sex partner but do not live 
with them.

Living  together  with  a  same-sex  partner  is  most 
common among lesbian women respondents (38 %), 
and living together with a different-sex partner is most 
common  among  bisexual  men  respondents  (19  %). 
Being involved in a relationship with a same-sex partner 
without living together is most frequent among lesbian 
women respondents (32 %), whereas being involved 
in a relationship with a different-sex partner without 
living together is most frequent among bisexual women 
respondents (14 %).

Table A19:  Place of residence by LGBT group (%)

City

The suburbs or out-
skirts of a city

A town

A country village

A farm or home in 
the countryside

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

57

10

23

9

2

62

9

19

8

2

58

10

22

8

1

53

11

23

11

2

52

11

23

11

2

59

10

21

9

2

n/N

15,236

57,448

6,424

7,200

6,771

93,079

Question:  H7. Where do you currently live?

Note: 

Base: 

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

129

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure A2:  Place of residence (%)

EU LGBT average
BG
EL
PL
RO
EE
DK
LV
CY
PT
HU
SE
HR
LT
NL
SI
AT
FR
IT
UK
BE
DE
CZ
FI
IE
ES
SK
LU
MT

41 

59 

14 

19 

21 

24 

26 

28 

29 

29 

32 

33 

34 

36 

36 

37 

40 

41 

42 

43 

43 

44 

86 

81 

79 

76 

74 

72 

71 

71 

68 

67 

66 

64 

64 

63 

60 

59 

58 

57 

57 

56 

48 

50 

50 

52 

54 

61 

70 

81 

40

0

20

52 

50 

50 

48 

46 

39 

30 

19 

60

80

100

Residents of smaller settlements 

City dwellers 

Question:  H7. Where do you currently live?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A20:  Household size, by LGBT group (%)

Single household

Household with 2 people

Household with 3 people

Household with 4 people

Household with more 
than 5 people

N/A

n/N

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

22

37

19

15

8

0

34

35

14

11

6

0

20

29

23

18

10

0

27

24

21

18

10

1

30

30

18

14

9

1

29

33

17

13

7

0

15,236

57,448

6,424

7,200

6,771

93,079

Question:  H8. Including yourself, how many people live in your household?

Notes: 

Base: 

n = subgroup sample; N = total survey sample. N/A = no answer.

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

130

Annex 2: Survey sample

Single household 

Household with multiple members  

Figures A3 and A4: Household size (%)

EU LGBT average 

29 

Lesbian women 

22 

Gay men 

34 

Bisexual women 

20 

Bisexual men 

Transgender 

27 

30 

71 

78 

66 

80 

73 

70 

0

20

40

60

80

100

29 

71 

Single household 

Household with multiple members 

16 

18 

18 

18 
19 

19 

19 

21 

21 

22 

24 

24 

25 

26 

26 
27 

34 

35 

35 
35 

38 
39 

39 

40 

41 

44 

46 

49 

84 
83 

82 

82 

81 

81 

81 

79 
79 

78 

77 

76 

75 

74 

74 
74 

66 

66 
65 

65 

62 

61 

61 

60 

59 
57 

55 

51 

EU LGBT average
SK
LT
MT
CZ
IE
BG
PL
ES
RO
HU
IT
SI
UK
PT
LV
HR
LU
BE
AT
EE
DE
CY
EL
FR
NL
DK
SE
FI

0

50

100

Question:  H8. Including yourself, how many people live in your household?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

131

EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure A5:  Relationship status (%)

EU LGBT average 

30 

28 

42 

Lesbian women 

38 

32 

30 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

29 

28 

27 

29 

26 

35 

27 

24 

46 

37 

46 

48 

Living together with a partner /spouse 

Involved in a relationship without living together 

Have no relationship / do not have a partner 

Question:  H11. What best describes your current situation in the country where you live:

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Figure A6: Same-sex partnership (%)

Bisexual men 

27 

28 

46 

Bisexual women 

36 

27 

37 

Gay men 

54 

1 

46 

Lesbian women 

69 

1 

30 

EU LGBT average 

53 

6 

42 

Has a same-sex partner 

Has a partner of a different sex  

Has no partner currently 

0

20

40

60

80

100

Questions:  A2. What sex were you assigned at birth?

H12. Is your current partner a woman or a man? [transgender respondents excluded].

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

132

 
Annex 2: Survey sample

Table A21:   Proportion of same-sex versus different-sex couples living together with a partner/spouse or not (%)

Lesbian 
women

Gay men

Bisexual 
women

Bisexual men

Transgender

EU LGBT 
average

Living 
to-
gether

Not 
living 
to-
gether

Living 
to-
gether

Not 
living 
to-
gether

Living 
to-
gether

Not 
living 
to-
gether

Living 
to-
gether

Not 
living 
to-
gether

Living 
to-
gether

Not 
living 
to-
gether

Living 
to-
gether

Not 
living 
to-
gether

Has a same-
sex partner

Has a part-
ner of a dif-
ferent sex

Total

37

32

28

26

16

1

38

0

32

0

0

29

26

12

28

21

14

35

8

18

n.a.

n.a.

27

26

19

27

9

n.a.

n.a.

3

2

27

29

24

30

28

Questions:  H11. What describes your current situation in the country where you live?

H12. Is your current partner a woman or a man? [transgender respondents excluded]

A2. What sex were you assigned at birth?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

At Member State level, the percentage of respondents 
living together with a partner or spouse ranged from 
40 % in the Netherlands to 15 % in Greece and Cyprus.

Conversely,  the  proportions  of  respondents  with 
a same-sex partner, a different-sex partner and no 
partner are relatively consistent across the countries 
covered by the survey. For example, the percentages 
of respondents with a same-sex partner ranges from 
59 % in Lithuania to 43 % in Cyprus and Sweden.

Civil status

The vast majority of respondents indicate that their 
civil status is single (84 %). One in eight respondents 
are married or living in registered partnerships (12 %). 
Among these respondents, 9 % are in a legally recog-
nised relationship with a same-sex partner and 3 % 
are with a partner of a different sex. The proportion of 
respondents who are married or in a registered partner-
ship is the highest in Member States where same-sex 
couples are allowed to marry or register a partnership.

Bisexual men and transgender respondents are the 
most likely to be married or in a registered partnership 
(17 % and 15 %) and to indicate that they are divorced 
or separated (8 % and 9 %).

133

 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Figure A7:  Partnership status, those living together with a partner/spouse (%)

EU LGBT average
NL
LU
AT
DE
UK
BE
FR
DK
FI
CZ
LV
IE
EE
SE
LT
PL
ES
HU
SI
BG
MT
PT
SK
RO
IT
HR
EL
CY

30 

40 
39 

37 

36 
36 

35 
34 

33 
33 
33 
33 

32 

29 
29 
29 

28 
28 

27 

26 

25 
24 
24 

23 
23 

20 

17 

15 
15 

0

5

10

15

20

25

30

35

40

45

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A22:  Same-sex partners, by country (%)

Has a same-
sex partner
Has a partner of 
a different sex
Has no partner 
currently
n

Has a same-
sex partner
Has a partner of 
a different sex
Has no partner 
currently
n

AT

BE

BG

CY

CZ

DE

DK

EE

EL

ES

FI

FR

HU

IE

55

6

39

53

5

42

53

43

5

4

42

53

56

5

38

57

47

50

6

5

4

37

48

46

45

5

50

51

4

45

48

7

46

55

5

41

53

6

41

51

7

42

2,543 2,901 1,033 265 2,469 20,271 1,710 374 2,760 6,388 3,439 8,375 2,267 1,625

IT

LT

LU

LV

MT

NL

PL

PT

RO

SE

SI

SK

UK

HR

52

5

43

59

5

37

55

6

39

54

6

40

51

3

52

8

45

40

53

5

42

53

3

44

49

8

43

43

49

54

6

51

5

4

46

42

53

7

41

50

4

46

13,255

821

318

501

358 3,175 2,790 2,125 1,260 2,464

636 1,000 6,759 1,197

Questions:  A2. What sex were you assigned at birth?

A3_1. Please select the one answer that fits you the best.

H12. Is your current partner a woman or a man?

Note: 

Base: 

n = country sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

134

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Annex 2: Survey sample

Figure A8:  Civil status (%)

EU LGBT average 

Lesbian women 

Gay men 

Bisexual women 

Bisexual men 

Transgender 

12 

13 

10 

10 

17 

15 

84 

82 

86 

86 

74 

74 

3 

1 

4 

2 

2 

1 

4 

1 

5 

3 

1 

7 

2 

1 

Married/in a registered partnership 

Single 

Divorced 

Separated 
Widowed 

Question: 

 H10. In terms of you civil status in the country where you live, are you: 1. Single; 2. Married/in a registered partnership; 
3. Divorced; 4. Separated; 5. Widowed. 

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Figure A9:   Civil status, those married/in 
a registered partnership (%)

EU LGBT average
NL
DK
LU
SE
BE
DE
FR
UK
FI
ES
AT
IE
HU
LV
CZ
PT
SI
RO
PL
EE
LT
MT
BG
IT
EL
CY
HR
SK

12 

24 

22 
22 

18 

17 
17 
17 
16 
15 

13 
13 

10 

7 
7 
7 
6 
5 
5 
4 
4 

3 
3 
3 
2 
2 
2 
2 
2 

0

5

10

15

20

25

30

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

135

 
 
 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A23:  Proportion of respondents married/in registered partnership having same-sex or different-sex partner (%)

Married/ registered 
partnership, has 
a same sex partner
Married/ registered 
partnership, has a partner 
of a different sex
Total married/ registered 
partnership

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

13

0

13

10

0

10

4

5

10

2

15

17

n.a.

n.a.

15

9

2

12

n/N

15,236

57,448

6,424

7,200

6,771

93,079

Questions:  H10. In terms of civil status in the country where you live, are you …

H12. Is your current partner a woman or a man? [transgender respondents excluded]

Note: 

Base: 

A2. What sex were you assigned at birth?

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Living with children

Overall, one in eight respondents lives with a child 
under the age of 18. Gay men are less than half as likely 
as any of the other LGBT groups to have a child living in 
their household. The proportion of survey participants 
living in a household with at least one child under the 
age of 18 ranges from 17 % in the Czech Republic, Ire-
land, Malta and Slovakia to 9 % in Austria, Germany, 
Greece and the Netherlands.

Some 7 % of respondents live together with a same-sex 
partner and are parents (or their partner is a parent) of 
a child under the age of 18 living in the same household.

Figure A10:   Households with at least one 

cohabiting child (%)

EU LGBT average
SK
 MT
 CZ
 IE
 LV
PT
 HR
 LT
 CY
 HU
 PL
SI
 EE
 IT
 SE
 BE
 DK
 ES
 LU
 FR
BG
 FI
 RO
 UK
 NL
 DE
 EL
 AT

11.9 

17.3 
16.8 
16.6 
16.6 

15.6 
15.6 
15.6 
15.2 
14.9 
14.8 
14.4 
14.3 
13.9 
13.7 
13.7 
13.1 
13.1 
13 
13 
12.2 
11.6 
11.5 
11.1 

9.7 
9.1 
8.8 
8.8 
8.8 

0

10

20

30

Question: 

 H9. Do any children (under the age of 18) live in 
your household?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

136

 
 
 
Annex 2: Survey sample

Figure A11:  Households with at least one cohabiting child, % per country

EU LGBT average 

11.9 

Lesbian women 

16.7 

Gay men 

7.3 

Bisexual women 

Bisexual men 

Transgender 

20.4 

19.4 

15.7 

0

10

20

30

40

50

60

70

80

90

100

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Table A24:   Proportion of respondents who live together in a same-sex partner household being parent, or 

partner of a parent, of a child under 18 living in that household (%)

Current relationship status

Same-sex partnership

Living together with 
a partner/spouse

Involved in a relationship 
without living together

Has a same-sex partner

Has a partner of a different sex

Has a same-sex partner

Has a partner of a different sex

Being parent or partner of parent AND 
having a cohabiting child aged <18

7 %

34 %

2 %

5 %

Questions:  H11. What describes your current situation in the country where you live?

H12. Is your current partner a woman or a man?/A2. What sex were you assigned at birth?

H9. Do any children (under the age of 18) live in your household?

H9_1. Are you a parent or legal guardian of a child (or children)?

H9_3. Is this person your partner?

Base: 

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

Perception of belonging to a ‘minority’ 

Respondents were also asked if they considered them-
selves to be part of a 'minority', with several options 
given as possible replies. Seven in 10 self-identifiy as 
part of a sexual minority, whereas fewer than one in 10 

feel they are part of an ethnic, religious or other minor-
ity group, or a minority in terms of disability. A fifth of 
respondents say they do not consider themselves to be 
part of any of the listed minorities.

137

 
 
 
 
EU LGBT survey: European Union lesbian, gay, bisexual and transgender survey

Table A25:  Proportion of LGBT respondents considering themselves belonging to specific minority groups (%)

Sexual minority

Ethnic minority

Religious minority

Minority in terms 
of disability

Other minority group

None of the above

Don’t know

n/N

Lesbian 
women

Gay men

Bisexual 
women

Bisexual 
men

Transgender

EU LGBT 
average

77

6

6

3

6

16

4

72

8

7

3

5

21

3

68

8

10

5

8

23

4

54

8

9

4

6

35

6

66

7

8

9

16

19

4

71

8

7

4

6

21

4

15,236

57,448

6,424

7,200

6,771

93,079

Question:  H16. In the country where you live, do you consider yourself to be part of any of the following?

Note: 

Base: 

n = subgroup sample; N = total survey sample

All EU LGBT survey respondents.

Source: 

FRA, EU LGBT survey, 2012

138

European Union Agency for Fundamental Rights

EU LGBT survey – European Union lesbian, gay, bisexual and transgender survey
Main results

2014 — 140 pp. —  21 x 29.7 cm

ISBN 978-92-9239-175-1
doi:10.2811/37969

A great deal of information on the European Union Agency for Fundamental Rights is available on the Internet. 
It can be accessed through the FRA website at fra.europa.eu.

HOW TO OBTAIN EU PUBLICATIONS

Free publications:
•	 via	EU	Bookshop	(http://bookshop.europa.eu);
•	 at	the	European	Union’s	representations	or	delegations.	You	can	obtain	their	contact	details	on	the	Inter-

net (http://ec.europa.eu) or by sending a fax to +352 2929-42758.

Priced publications:
•	 via	EU	Bookshop	(http://bookshop.europa.eu).

Priced subscriptions (e.g. annual series of the Official Journal of the European Union and reports of cases 
before the Court of Justice of the European Union):
•	 via	one	of	the	sales	agents	of	the	Publications	Office	of	the	European	Union	 

(http://publications.europa.eu/others/agents/index_en.htm).

HELPING TO MAKE FUNDAMENTAL RIGHTS A REALITY FOR EVERYONE IN THE EUROPEAN UNION

In light of a lack of comparable data on the respect, protection and fulfilment of the fundamental rights of lesbian, 
gay, bisexual and transgender (LGBT) persons, the European Union Agency for Fundamental Rights (FRA) launched 
in  2012  its  European  Union  (EU)  online  survey  of  LGBT  persons’  experiences  of  discrimination,  violence  and 
harassment. The survey results provide valuable evidence of how LGBT persons in the EU and Croatia experience 
bias-motivated discrimination, violence and harassment in different areas of life, including employment, education, 
healthcare, housing and other services.

The findings show that many hide their identity or avoid locations because of fear. Others experience discrimination 
and even violence for being LGBT. Most, however, do not report such incidents to the police or any other relevant 
authority. By analysing the survey results, this report will assist the EU institutions and Member States in identifying 
the  fundamental  rights  challenges  facing  LGBT  people  living  in  the  EU  and  Croatia.  It  can  thereby  support  the 
development of effective and targeted European and national legal and policy responses to address the needs of 
LGBT persons and ensure the protection of their fundamental rights.

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FRA - EUROPEAN UNION AGENCY FOR FUNDAMENTAL RIGHTS
Schwarzenbergplatz 11 – 1040 Vienna – Austria
Tel. +43 158030-0 – Fax +43 158030-699
fra.europa.eu – info@fra.europa.eu
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