COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Union of Equality: LGBTIQ+ Equality Strategy 2026-2030
Date: 2025-10-08
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU strategy, LGBTQ rights, discrimination on the basis of sexual orientation, equal treatment, hate speech, human rights, violence

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 8.10.2025  COM(2025) 725 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Union of Equality: LGBTIQ+ Equality Strategy 2026-2030   
 
 
INTRODUCTION 
Everyone in the European Union should feel safe and free to be their authentic self. Equality 
and  non-discrimination  are  founding  values  and  fundamental  rights  enshrined  in  the  EU 
Treaties and the Charter of Fundamental Rights of the European Union. These principles also 
guide the EU’s action on the international scene(1). Equal opportunities are also a cornerstone 
of the European Pillar of Social Rights(2).  

As President von der Leyen underlined in her  2025 State of the Union address: “Europe's 
independence  is  about  protecting  our  freedoms. The  freedom  to  decide. To  speak  out.  To 
move around a whole continent. The freedom to vote. To love. To pray. To live in a Union of 
equality.” These freedoms can only be a reality if all people, today’s and future generations, 
are free from discrimination. 

Equality and non-discrimination are vital to the EU’s democratic resilience, economic strength, 
social justice and cohesion. The Commission remains fully committed to defending equality 
and  non-discrimination  whenever  they  are  under  threat(3).  The  Commission,  the  European 
Parliament, the Council and Member States share a collective responsibility to uphold these 
rights, ensuring equality for all(4). 

In  2020,  the  Commission  adopted  its  first-ever  LGBTIQ  equality  strategy  2020-2025, 
strengthening  EU  action  against  discrimination  against  LGBTIQ+(5)  people.  The  strategy 
marked a key step in building a Union of Equality, the Commission’s vision for an inclusive 
Europe  where  everyone  can  live  freely,  regardless  of  their  identity.  It  resulted  in  the 
implementation of numerous LGBTIQ+ related actions, including key legislative proposals to 
advance  LGBTIQ+  rights,  as  well  as  unprecedented  support  for  LGBTIQ+  civil  society 
organisations through the Citizens, Equality, Rights, and Values (CERV) programme. 

The LGBTIQ equality strategy 2020-2025 was complemented by the adoption of 13 national 
strategies on LGBTIQ+ equality by Member States and resulted in the implementation of 
significant  LGBTIQ+-related  measures  at  EU  level.  The  creation  of  the  LGBTIQ  equality 
subgroup provided a platform for advancing equality efforts at the national level. 

Since  the  strategy’s  adoption,  social  acceptance  of  LGBTIQ+  people  has  increased. 
LGBTIQ+ people are now more open about themselves in their social environment. According 
to the 2023 special Eurobarometer on discrimination, people in the EU are more likely to be 

(1)  Article 2 of the Treaty on European Union and Article 21 and 23 of the Charter of Fundamental Rights. 
(2)  European Pillar of Social Rights - Building a fairer and more inclusive European Union - Employment, Social Affairs and Inclusion 
(3)  See for instance the statement by President von der Leyen on the Budapest Pride, 25 June 2025. 
(4)   In view of their path towards EU accession, candidate countries and potential candidates are also encouraged to promote equality and 

fundamental rights, in line with the relevant EU acquis. 

(5)  LGBTIQ+ people are people: 

−  who are attracted to others of their own gender (lesbian, gay) or any gender (bisexual); 
−  whose gender identity and/or expression does not correspond to the sex they were assigned at birth (trans, non-binary); 
−  who are born with sex characteristics that do not fit the typical definition of male or female (intersex);  
−  whose identity does not fit into a binary classification of sexuality and/or gender (queer); 
−  who identify with other sexual orientations or gender identities not specifically captured by the LGBTIQ acronym (the +). 
Throughout this text, the acronyms LGBTI, LGBTIQ, and LGBTIQ+ are used interchangeably, depending on the terminology employed 
in the specific document, initiative, or policy area being referenced. 

1 

 
 
 
comfortable with a lesbian, gay or bisexual colleague (75%, up 3 percentage points from 2019) 
and with their child being in a same-sex relationship (59%, up 4 percentage points). 

The visibility of LGBTIQ+ people in politics, civil society, sport, media and science challenges 
prejudices and helps foster social acceptance. Empowering LGBTIQ+ people, building on 
the legacy of powerful role models and contemporary culture, embracing their being among 
family  and  friends,  contributes  to  a  more  diverse  and  globally  diverse  society.  It  drives 
entrepreneurship, innovation and fosters sustainable economic growth. For instance, cities 
that are welcoming and inclusive of LGBTIQ+ people have stronger ‘innovation ecosystems’, 
greater concentrations of skills and talent, higher levels of entrepreneurship and a better quality 
of life(6). 

Despite progress, challenges persist. According to the third LGBTIQ survey carried out by the 
European  Union Agency  for  Fundamental  Rights  (FRA)  in  2023,  over  a  third  of  LGBTIQ 
people (37%) reported experiencing discrimination in the 12 months preceding the survey, 
with the highest rates among trans women (64%), trans men (63%), and intersex people (56%). 
The  growing  spread  of  anti-gender  and  anti-LGBTIQ+  narratives  appears  to  have  further 
intensified this  discrimination.  Research by  the FRA  indicates that LGBTIQ+ organisations 
and human rights defenders face particularly hostile environments, threats and attacks. 

Inequalities in employment, healthcare, education, access to housing, and access to services 
continue to restrict opportunities for LGBTIQ+ people. In  FRA’s third LGBTIQ survey, the 
respondents who reported experiencing discrimination said it occurred most frequently at work, 
in school, in healthcare settings or in public places. 

Discrimination leads to economic losses: a recent OECD study refers to annual GDP losses 
in the EU associated with discrimination based on sexual orientation of up to EUR 89 million. 
The same study highlights that the impact of discrimination extends beyond the economy. It 
undermines  social  cohesion,  weakens  civic  trust  and  erodes  support  for  democratic  values. 
Inclusive societies are more resilient, marked by  greater solidarity, stronger institutions and 
higher levels of civic participation. 

Recognising  achievements  and  ongoing  challenges,  the  2024  Commission  implementation 
report on the LGBTIQ equality strategy 2020-2025 affirmed the strategy’s instrumental role in 
advancing the rights of LGBTIQ+ people but also emphasised the need for stronger efforts at 
EU level. 

In 2024, the European Parliament called for a new, more comprehensive LGBTIQ+ equality 
strategy(7). Also  in  2024,  20  Member  States  signed  a  ministerial  declaration,  calling  for 
further action and committing to work with the Commission on renewing the strategy. When 
consulted  on  the  implementation  of  the  previous  LGBTIQ  equality  strategy,  civil  society 
organisations echoed these calls, underscoring the urgency of continued action. 

(6)  Open For Business (2025), ‘City Ratings 2025’. 
(7)  European  Parliament  resolution  of  8  February  2024  on  the  implementation  of  the  EU  LGBTIQ  Equality  Strategy  2020-2025 

(2023/2082(INI)). 

2 

 
 
 
This  new  LGBTIQ+  equality  strategy,  as  announced  in  President  von  der  Leyen’s  2024 
political guidelines, frames the Commission’s work on LGBTIQ+ equality for 2026-2030. It 
builds on the foundation of the first strategy, drawing from its ambition and the advancements 
already achieved, ensuring continuity while paving the way for further progress.  

The  strategy  aims  to  mobilise  a  collective  commitment  across  all  levels  of  governance  to 
safeguard fundamental rights and the values of equality and non-discrimination, enshrined in 
the Charter of Fundamental Rights and binding on all Member States as primary EU law. It 
also  sets  a  framework  that  requires  active  engagement  and  cooperation  from  the  European 
Parliament, Council, Member States, and civil society, to ensure its successful implementation. 

Implementation  of  this  strategy  will  follow  a  dual  approach  of  targeted  measures  and 
strengthened  equality  mainstreaming  across  different  policy  areas.  This  strategy,  as  its 
predecessor,  will  use  intersectionality  as  a  cross-cutting  principle.  It  will  address  how  the 
combination of sexual orientation, gender identity/expression and sex characteristics with other 
personal  characteristics  or  identities,  such  as  sex,  racial  or  ethnic  origin,  religion  or  belief, 
disability  and  age,  contributes  to  unique  experiences  of  discrimination.  In  this  way,  it 
complements existing and upcoming EU initiatives to promote equality for all(8). Furthermore, 
the strategy takes into account how geographic isolation can further compound these situations 
of vulnerability. 

To prepare this strategy, the Commission conducted an extensive consultation process. This 
included a call for evidence, an open public consultation and targeted consultations, comprising 
dedicated consultative meetings, with stakeholders such as LGBTIQ+ umbrella organisations, 
Member  States  representatives,  social  partners  and  international  organisations.  The 
consultative activities on the Commission’s Have Your Say portal alone showed high interest 
among respondents in the topic. 

STRATEGIC OBJECTIVES 

1.  PROTECT 

LGBTIQ+ people continue to face disproportionate levels of violence and hatred, which are 
exacerbated  by  the  rise  of  anti-LGBTIQ+  narratives  in  the  EU  and  around  the  world. This 
undermines  fundamental  rights  and  threatens  the  foundations  of  democratic  societies  by 
promoting fear, exclusion and social fragmentation. It is essential to combat and prevent all 
forms  of  violence  and  dismantle  hateful  narratives  to  uphold  the  common  EU  values  of 
equality, human dignity and respect of fundamental rights for all. 

(8)  The EU Roma strategic framework for equality, inclusion and participation, the European pillar of social rights, the strategy for the rights 
of persons with disabilities 2021-2030, the strategy on the rights of the child, the strategy on combating antisemitism and fostering Jewish 
life, the gender equality strategy 2026-2030 (planned for Q1 2026) and the anti-racism strategy 2026-2030 (planned for Q4 2025). 

3 

 
 
 
 
 
1.1. Combating harmful practices 

Conversion practices  ‘are deeply harmful interventions that rely on the medically false idea 
that LGBT[IQ+] people are sick, inﬂicting severe pain  and suffering, and resulting in long-
lasting psychological and physical damage’(9). According to the FRA’s third LGBTIQ survey, 
24%  of  LGBTIQ  people  have  experienced  conversion  practices,  including  physical  and 
sexual  violence,  verbal  abuse  and  humiliation. This  figure  almost  doubles  to  47%  for  trans 
women and 48% for trans men.  

Trans, non-binary and intersex people also continue to face severe violations of their bodily 
autonomy(10):  some  EU  Member  States  still  impose  surgical  or  medical  intervention 
requirements for legal gender recognition(11). The FRA’s third LGBTIQ survey and the related 
report ‘Being intersex in the EU’, show that 57% of intersex respondents said that they or 
their parents did not provide informed consent to undergo surgical or hormonal procedures, 
resulting in lasting physical and psychological harm. 

To  help  Member  States  ban  conversion  practices(12),  the  Commission  will  publish  a  study 
analysing  the  nature,  prevalence  and  impact  of  these  practices  on  LGBTIQ+  people.  To 
facilitate coordinated action, the Commission will also promote structured dialogue on the 
topic,  in  particular  through  the  expert  group  on  LGBTIQ+  equality,  under  the  High-Level 
Group  on  non-discrimination,  equality,  and  diversity.  Based  on  the  study’s  findings,  the 
Commission  will  take  appropriate  action  to  combat  conversion  practices,  with  a  particular 
focus on supporting Member States, who play a critical role in this area. The Commission will 
also continue to tackle other harmful practices such as intersex genital mutilation and the forced 
medicalisation of trans people. 

In  developing  its  approach  to  combating  conversion  practices,  the  Commission  will,  in 
particular,  take  into  account  the  recent  European  citizens’  initiative,  ‘Ban  on  conversion 
practices in the European Union’(13).  

1.2. Ensuring safety and tackling hate against LGBTIQ+ people 

Hate-motivated harassment and violence against LGBTIQ+ people continue to increase. The 
FRA’s  third  LGBTIQ  survey  reported  that  in  2023,  55%  of  LGBTIQ  respondents  had 
experienced hate-motivated harassment in the 12 months preceding the survey, an increase 
of 18 percentage points from 2019. Reports of physical and sexual attacks have also escalated, 

(9)  United Nations Independent Expert on protection against violence and discrimination based on Sexual Orientation and Gender Identity, 

Practices of so-called “conversion therapy”, 1 May 2020. 

(10)  Legal gender recognition in the EU: The journeys of trans people towards full equality, Publications Office of the European Union, 

2020; ILGA Europe 2025 Rainbow Map.  

(11)  The expression legal gender recognition is used in the strategy, as it is commonly employed in policy and academic texts, without prejudice 
to other expressions used by the Court of Justice of the European Union. In  case C-4/23, Mirin, 4.10.2024, EU:C:2024:845, the Court 
uses the expression “change of gender identity” to refer to procedures for a change of legal gender at domestic level, and the phrase 
“recognition (…) of a change of (…) gender identity lawfully acquired in another Member State” to refer to cross-border situations, that 
is the recognition in a Member State of a change of legal gender obtained in another Member State. 
(12)   European Parliament Research Service: eight Member States have already banned conversion practices.  
(13)   The verification of the statements of support of the initiative has been completed successfully and the initiative is expected to be submitted 

to the Commission for examination. 

4 

 
 
 
 
with trans, non-binary and intersex people disproportionately affected. Stakeholders consulted 
for this strategy strongly underlined the urgent need to address these ongoing challenges.  

At EU level,  the  current  legal  framework  provided by the  Council Framework Decision on 
combating certain forms and expressions of racism and xenophobia and by the Directive on 
combating violence against women and domestic violence only covers hate offences based on 
racist and  xenophobic grounds and  cyber incitement  to  violence or hatred based on gender, 
respectively(14). There is still no legislation ensuring criminal law protection against offences 
based  on  sexual  orientation  and/or  gender  identity. As  a  result,  the  legal  framework  across 
Member States is fragmented and inconsistent (15). 

In 2021, the Commission proposed that the Council decides to include hate speech and hate 
crime in the list of ‘EU crimes’ under Article 83(1) of the Treaty on the Functioning of the 
European  Union  (TFEU)(16).  Such  Council  Decision  would  provide  the  legal  basis  for 
secondary legislation that harmonises criminal law definitions of hate offences on grounds not 
currently provided for under relevant EU law. 

Given the absence of progress on such a Council Decision, the Commission is considering a 
legislative initiative based on the existing areas of crime covered by Article 83(1) of TFEU to 
harmonise the definition of hate offences committed online. A comprehensive definition of 
hate  offences  at  EU  level  was  also  one  of  the  key  recommendations  adopted  by  those 
participating  in  the  2024  European  Citizens  Panel  on  tackling  hatred  in  society.  The 
Commission is committed to following up these recommendations. 

To help law enforcement and justice professionals identify LGBTIQ+-phobia in offences that 
amount to hate crimes, the Commission will continue to work with Member States to improve 
hate crime recording and victim support under the Commission’s High-Level Group on 
combating hate speech and hate crime. This effort will be carried out in cooperation with 
EU  agencies  and  international  organisations  (e.g.  the  FRA,  the  Council  of  Europe  and 
ODIHR(17)). The Commission will also continue to support training for police authorities on 
LGBTIQ+-phobia in hate crimes and on non-discrimination(18). 

In addition, the Commission remains committed to supporting civil society organisations and 
projects that work to fight LGBTIQ+-phobic hatred and discrimination through relevant EU 
funding  instruments.  These  instruments  include  the  Citizens,  Equality,  Rights  and  Values 
(CERV)  programme  during  the  current  multiannual  financial  framework,  which  should  be 
followed by the proposed AgoraEU programme,  currently in  the legislative process,  for the 
next Multiannual Financial Framework. 

The Commission will continue to promote a safe environment for LGBTIQ+ victims to report 
crime through the next EU strategy on victims’ rights. The Commission is also supporting 

(14)  See details in section 1.3. 
(15)  Study to support the preparation of the European Commission's initiative to extend the list of EU crimes, 2021. 
(16)  Communication “A more inclusive and protective Europe: extending the list of EU crimes to hate speech and hate crime”, COM/2021/777 

final. 

(17)  The OSCE Office for Democratic Institutions and Human Rights.  
(18)  See the initiatives proposed by the Facing Facts network. 

5 

 
 
 
the Parliament and the Council in adopting the revised Victims’ Rights Directive, which aims 
to strengthen the rights of all victims of crime, including LGBTIQ+-phobic hate crimes. 

To  ensure  the  correct  and  effective  application  of  EU  non-discrimination  and  fundamental 
rights law, the Commission will actively support judicial training on this topic as part of its 
judicial  training  strategy  2025-2030.  Furthermore,  the  Commission  is  providing  funding 
through  the  Justice  programme,  which  aims  to  facilitate  effective  and  non-discriminatory 
access  to  justice for all. This  includes  promoting  effective  civil  and criminal  procedures  by 
contributing to the consistent and coherent application of Union law, and by promoting and 
supporting the rights of crime victims, in line with the priorities set out in the EU strategy on 
victims' rights for 2020-2025. 

The Directive on combating violence against women and domestic violence acknowledges 
that persons affected by intersectional discrimination, including LGBTI people, are at greater 
risk  of  gender-based  violence  and  requires  Member  States  to  take  preventive  measures  and 
provide specific support to these victims. In addition, it qualifies as aggravating circumstance 
committing an offence to punish the victim for the victim’s sexual orientation. 

In accompanying Member States in transposing the Directive correctly, the Commission will 
pay  particular  attention  to  the  challenges  faced  by  victims  of  intersectional  discrimination, 
including  LGBTI  victims.  The  Commission  will  facilitate  the  exchange  of  good  practices 
among Member States on this topic through the EU Network for the prevention of violence 
against women and domestic violence.  

In  research  and  innovation,  the  Commission  will  support,  in  cooperation  with  Member 
States(19), the implementation of the Code of Conduct on counteracting gender-based violence 
in research and innovation developed as part of the European Research Area (ERA) policy 
agenda  2022-2024(20)  which  incorporates  an  intersectional  approach. The  Commission  will 
also  fund  research  under  Horizon  Europe  on  disinformation,  gender-based  violence,  hate 
crime and hate speech, taking into account the specific needs of people in vulnerable situations, 
such as can be the case for LGBTIQ+ persons. As President von der Leyen underlined in her 
2025 State of the Union address, ‘science has no passport, gender, ethnicity or political colour’ 
- a principle central to the Choose Europe initiative. 

LGBTIQ+  youth(21)  often  face  multiple  forms  of  discrimination,  experience  prejudice,  hate 
crimes and are particularly vulnerable to sexual abuse(22). To protect all children(23) from child 
sexual abuse, the Commission will support the co-legislators in adopting the two legislative 
proposals(24). 

(19)   Council conclusions on the New European Research Area, (OJ C 374, 22.11.2021, p. 1). 
(20)  European Commission, European Research Area Policy Agenda – Overview of actions for the period 2022-2024, Publication Office, 

2021. 

(21)  There is no unified EU definition of youth but generally and for data collection purposes, young people are defined as being between 15 

and 29 years old, Overview - Children and youth - Eurostat. 

(22)  See  Smith,  John,  and  Anna  Brown.  ‘Child  sexual  abuse/exploitation  and  LGBTQI+  children:  Context,  links,  vulnerabilities,  gaps, 

challenges and priorities.’ Child Abuse & Neglect, 2024, doi.org/10.1016/j.chipro.2024.100001. 

(23)  As laid down in the UN Convention on the Rights of the Child (UNCRC), a child is any human being below the age of 18. 
(24)  COM (2022) 209 final and COM (2024) 60 final. 

6 

 
 
 
Further, the Commission Recommendation on integrated child protection systems strengthens 
the EU’s commitment to zero tolerance for violence. It encourages Member States to ensure 
that all children, in all their diversity, can enjoy the same rights of access to and benefit from 
protection  across  all  of  their  territories.  All  children  are  to  be  protected,  supported  and 
empowered by promoting inclusive, coordinated and systemic approaches within national child 
protection systems and responding to the specific vulnerabilities.  

The right to gather peacefully is enshrined in the Charter of Fundamental Rights, and within 
its competences, the Commission is committed to defending and upholding it at all times. While 
Pride marches and other community events are landmark expressions of visibility and identity 
for  LGBTIQ+  people  across  Europe,  in  some  EU  Member  States  attempts  to  restrict  the 
exercise  of  this  right  have  raised  serious  concerns.  Violent  attacks  and  harassment  against 
participants  also  remain  a  pressing  concern  in  several  Member  States(25),  undermining  both 
their safety and their ability to express themselves freely in public spaces.  

As part of the Communication on ProtectEU: a European internal security strategy, helping 
Member  States  to  guarantee  security  for  the  public,  the  EU  protective  security  advisory 
programme will be strengthened. This programme will carry out vulnerability assessments of 
high-risk events, including Pride marches, at the request of Member States and financed under 
the Internal Security Fund. The Commission will also tackle LGBTIQ+-phobic extremism in 
the upcoming EU agenda on preventing and countering terrorism and violent extremism. 

Groups  in  situations  of  vulnerability  or  those  facing  discrimination  or  social  exclusion  are 
disproportionately  affected  by  crises.  Therefore,  the  Preparedness  Union  Strategy 
specifically identifies inequality as a risk factor for preparedness and aims to foster a culture 
of  inclusive  preparedness,  leaving  no  one  behind.  Mainstreaming  equality  considerations  is 
essential to ensuring that all EU citizens and communities become active participants in crisis 
preparedness and response efforts. 

During the Second World War and persecutions by Nazis and their collaborators, it is estimated 
that 50 000 gay and bisexual men were subject to ‘severe jail sentences in brutal conditions’, 
with  around 10-15 000 being  sent  to  concentration camps(26).  Many lost their lives, and the 
experiences  of  survivors  went  unacknowledged  for  decades.  Recognising  that  the  roots  of 
LGBTIQ+  persecution  run  deep  in  European  history,  the  Commission  is  committed  to 
remembrance as an integral part of promoting equality and preventing future atrocities. To do 
so, it will make project funding available through the relevant EU funding instruments, such 
as  the  CERV  programme.  The  Commission  will  also  support  and  participate  in  high-level 
events commemorating LGBTIQ+ persecution. 

(25)  According to the 2025 ILGA-Europe Annual Review, attacks on LGBTI Pride marches are increasing. 
(26)  Holocaust Memorial Day Trust – Gay people. 

7 

 
 
 
 
 
 
1.3. Countering hate and discrimination online 

The online world offers important opportunities for LGBTIQ+ people. Social media and digital 
platforms are key spaces for self-expression, identity, and a create a sense of community. They 
are vehicles to amplify LGBTIQ+ voices, build support networks, and mobilise for equal 
rights, especially for young people and those in less accepting environments. 

Yet,  online  hate  speech  and  harassment  create  a  hostile  digital  environment  for  LGBTIQ+ 
people,  affecting  their  safety,  well-being  and  freedom  of  expression  and  contributing  to  a 
climate of fear and exclusion. The FRA’s third LGBTIQ survey supports this: 63% of LGBTIQ 
people said they had often or always encountered hateful content online that calls for violence 
against them.  Moreover, LGBTIQ+ people and women are increasingly targeted by anti-gender 
narratives  online,  often  as  part  of  foreign  information  manipulation  and  interference 
(FIMI) and disinformation campaigns. Foreign actors are increasingly well funded and use 
FIMI to manipulate public opinion, fuel polarisation, and interfere with democratic processes 
within the EU and worldwide. Such actions are a direct challenge to the EU’s core values of 
equality, respect for human dignity and non-discrimination. 

The Directive on combating violence against women and domestic violence criminalises 
for the first time cyber incitement to violence or hatred based on gender. Once implemented in 
the  national  laws  of  Member  States(27),  this  will  ensure  common  protection  against  gender-
based  online  hate  speech  in  the  EU.  Furthermore,  the  Directive  criminalises  the  most 
widespread forms of gender-based violence online, namely non-consensual sharing of intimate 
or manipulated material, cyber stalking and cyber harassment.  

The Digital Services Act sets out obligations for providers of hosting services to address illegal 
content  online,  including  incitement  to  hate  or  discrimination,  including  against  LGBTIQ+ 
people. Also, providers of very large online platforms and search engines are obliged to assess 
and mitigate the systemic risks stemming from their services, including the impact inter alia on 
the rights to human dignity and non-discrimination, negative effects related to gender-based 
violence and serious negative consequences to the person’s physical and mental well-being. 
The Commission,  together with  the competent  national  authorities, will continue to  enforce 
this regulation. 

In January 2025, the revised Code of conduct on countering illegal hate speech online + (the 
‘Code of conduct+’) was assessed positively by the Commission and the European Board for 
Digital  Services  and  integrated  into  the  framework  of  the  Digital  Services Act,  providing  a 
response also to the recommendations from the European citizens’ panel on tackling hatred in 
society. 

Platforms that sign the Code of conduct+ commit to engaging in industry cooperation and in 
multi-stakeholder  forums  to  improve  prevention  against  illegal  hate  speech,  including  on 
LGBTIQ+ people. The  Commission  will monitor implementation  of the  Code of  conduct+, 

(27)  The Directive does not apply to Denmark according to Denmark’s position set out in Protocol No 22 to the Treaty on European Union 

and the Treaty on the Functioning of the European Union. 

8 

 
 
 
facilitate its regular review and adaptation, and provide support to platforms, including through 
an online knowledge hub gathering relevant resources on illegal hate speech online. 

The  Commission  is  also  closely  monitoring  Member  States’  implementation  of  the  revised 
Audiovisual Media Services Directive. The Directive strengthens protection against content 
inciting hatred or violence and bans discriminatory commercial audiovisual communications, 
including on the grounds of sex or sexual orientation. 

Cyberbullying and other forms of violence facilitated by technology are a serious and growing 
concern  and  disproportionately  affect  LGBTIQ+  young  people(28).The  Commission’s 
forthcoming  action  plan  on  cyberbullying  will  aim  to  prevent  abusive  behaviour  online, 
including when it targets LGBTIQ+ young people. The Commission will also conduct an EU-
wide inquiry into the effects of social media on well-being, with a focus on young people, 
including those from the LGBTIQ+ community. 

1.4. Ensuring  protection  for  LGBTIQ+  applicants  for  international  protection  and 

migrants 

LGBTIQ+  asylum-seekers  face  intersectional  and  additional  risks  while  en  route  and/or  on 
arrival in the EU and may have different needs than other applicants. According to the FRA’s 
third LGBTIQ survey, 54% of LGBTIQ people who identified as asylum seekers or refugees 
had  experienced  discrimination  in  the  year  before  the  survey  (substantially  higher  than  the 
average of 37% among all LGBTIQ respondents). They are also at particular risk of harassment 
and violence and may be deprived of legal assistance or specific healthcare, such as hormone 
treatment(29). 

The pact on migration and asylum strengthened safeguards and guarantees for vulnerable 
applicants  for international  protection, including  LGBTIQ+ people. According to the  FRA’s 
survey Being Black in the EU, among people of African descent, those who self-identify as a 
minority - including whether on the basis of sexual orientation, gender identity/expression or 
sex characteristics - experience more discrimination. Additional sources of discrimination, such 
as encountering barriers in relation with a disability, can exacerbate the vulnerability of these 
individuals. 

The Commission  will continue to  build synergies with  the  action plan on integration and 
inclusion 2021-2027, which acknowledges the multiple and intersecting challenges LGBTIQ 
migrants face. In addition, under the EU Roma strategic framework for equality, inclusion 
and participation and the upcoming anti-racism strategy 2026-2030, the Commission will 
continue tackling the challenges faced by racialised LGBTIQ+ people. 

(28)  See study conducted by the International Lesbian, Gay, Bisexual, Trans, Queer and Intersex Youth and Student Organisation (IGLYO).  
(29)  See  UNCHR,  Protecting  LGBTIQ+  people  in  situations  of  forced  displacement: A  Stocktaking  on  UNHCR  progress  since  the  2021 

Roundtable, June 2023. 

9 

 
 
 
 
 
 
The Commission is collaborating with the EU Agency for Asylum (EUAA), the European 
Border  and  Coast  Guard Agency  (Frontex)  and  Member  States  to  develop  tools  to  help 
identify vulnerable applicants early on and provide them with support(30).Through the Asylum 
and  Migration  Fund  (AMIF)  and  the  Neighbourhood,  Development  and  International 
Cooperation Instrument (NDICI), or any successor instrument, the Commission intends to 
continue  financing  initiatives  to  ensure  safeguards  for  applicants  and  vulnerable  applicants, 
including sufficient support for LGBTIQ+ applicants.  

Key actions by the European Commission:   

✓  Combat conversion practices, based on the findings of a dedicated study, and considering the 

related European citizens’ initiative on this topic. 

✓  Explore legal options to strengthen the criminal law framework to combat hate speech and hate 

crime within the existing Treaty provisions. 

✓  Monitor the implementation of the Code of conduct+ on countering illegal hate speech online 
and create an online knowledge hub gathering relevant resources regarding illegal hate speech 
online. 

✓  Adopt an action plan on cyberbullying by 2026. 

2.  EMPOWER 
In  recent  decades,  legislative  and  policy  advancements  have  helped  create  more  inclusive 
societies,  including  for  LGBTIQ+  people.  The  FRA’s  third  LGBTIQ  survey  shows  that 
LGBTIQ+  people  are  more  open  about  their  sexual  orientation,  gender  identity  or  sex 
characteristics in their social environment (52%, up 6 percentage points from 2019), with this 
trend more evident for trans and intersex people. 

Ensuring access to employment, healthcare, education, and other public services for LGBTIQ+ 
people,  including  in  rural  and  remote  areas,  unlocks  their  potential  and  allows  them  to 
contribute fully to their communities and the economy. Promoting inclusion strengthens social 
cohesion  and  boosts  the  EU’s  innovation,  productivity  and  global  competitiveness.  This 
strategy reaffirms the Commission’s commitment to empower LGBTIQ+ people to live free 
and equal in all areas of life and when moving across Member States. 

2.1  Laying the foundations for LGBTIQ+ empowerment 

Promoting  inclusion  from  an  early  age  is  crucial  for  the  well-being  and  development  of 
LGBTIQ+ people. Inclusive and supportive environments help young people build confidence, 
resilience,  and  a  positive  sense  of  identity,  while  fostering  empathy  and  respect  among  all. 
When children grow up in environments that celebrate diversity, they are more likely to thrive 
academically,  socially,  and  emotionally,  and  to  carry  these  inclusive  values  into  adulthood, 
passing them on to future generations. 

(30)   EUAA Products (europa.eu).  

10 

 
 
 
 
 
 
 
However,  as  already  outlined  in  the  LGBTIQ  equality  strategy  2020-2025,  children  of 
rainbow families and LGBTIQ+ young people often face stigma and discrimination from an 
early  age.  Moreover,  according  to  the  FRA’s  third  LGBTIQ  survey,  two  thirds  of  LGBTIQ 
people (67%) reported that, during their time in school, they had suffered bullying, ridicule, 
teasing, insults or threats. These incidents can have long-term effects. 

The Commission will continue facilitating the exchange of best practices on safe and inclusive 
education  for  all  among  Member  States  and  experts  within  the  European  Education Area 
strategic framework working groups. This action reflects the strong emphasis stakeholders 
put on education during the strategy’s consultations. 

These efforts are further strengthened by the EU strategy for the rights of the child and the 
EU  Network  for  Children’s  Rights.  The  2024  Recommendation  on  developing  and 
strengthening integrated child protection systems in the best interests of the child encourages a 
multidisciplinary  approach  to  child  protection.  It  supports  Member  States  to  develop  and 
strengthen  their  child  protection  systems  according  to  children’s  needs  and  in  their  best 
interests. In addition, the EU Children’s Participation Platform provides an inclusive space 
for EU children to discuss topics that matter to them with policymakers.  

The  Commission  will  also  build  on  the  New  European  Bauhaus  initiative,  which  connects 
sustainability,  inclusion  and  aesthetics,  to  promote  safe  and  welcoming  spaces  for  all.  By 
fostering  inclusive  design  in  public  spaces,  schools  and  communities,  the  New  European 
Bauhaus  can  contribute  to  reducing  stigma,  enhancing  visibility,  and  creating  environments 
where LGBTIQ+ people are included and can feel safe and valued. 

The Commission will continue engaging with youth organisations seeking to advocate for the 
rights of LGBTIQ+ young people through the EU Youth Stakeholders Group. Ensuring that 
young people have inclusive opportunities for professional and personal development remains 
a  priority.  The  Commission  will  continue  tackling  barriers  linked  to  discrimination  in 
education,  training,  youth  and  sport  using  relevant  EU  spending  instruments,  such  as  the 
Erasmus+ and European Solidarity Corps programmes(31). 

Concerning  healthcare,  14%  of  LGBTIQ  people  report  discrimination  by  healthcare 
professionals,  according  to  the  FRA’s  third  LGBTIQ  survey. This  can  lead  to  disparities  in 
prevention, diagnosis and treatment as many avoid seeking medical care due to fear of a hostile 
reaction. To tackle these health inequalities, the Commission will continue to raise awareness, 
share information and facilitate knowledge-sharing, including through the EU health policy 
platform,  the  public  health  best  practices  portal  and  by  supporting  research  projects  on 
better  access  to  health  and  care  services  through  Horizon  Europe.  To  raise  awareness  on 
LGBTIQ+  issues  among  healthcare  professionals,  the  Commission  made  training  material 
from the HEALTH4LGBTI project available to Member States.  

(31)  Commission Implementing Decision (EU) 2021/1877 of 22 October 2021 on the framework of inclusion measures of the Erasmus+ and 

European Solidarity Corps Programmes 2021-2027 (OJ L 378, 26.10.2021, p. 15). 

11 

 
 
 
 
 
In  preventive  care,  the  Commission  will  continue  to  focus  on  those  facing  intersecting 
vulnerabilities  and  health  inequalities.  In  cancer  control,  the  needs  of  people  in  vulnerable 
situations,  including  LGBTIQ+  people,  will  continue  to  be  met  through  implementation  of 
Europe’s beating cancer plan, while the European Cancer Inequalities Registry will identify 
trends and disparities in cancer prevention and care. For example, cancer rates related to human 
papillomavirus (HPV) and hepatitis B (HBV) are particularly high among LGBTIQ+ people(32). 
The  Commission  will  support  strengthening  and  implementing  evidence-based  awareness-
raising campaigns of the importance of HPV and HBV vaccinations as effective cancer 
prevention tools. These campaigns will be LGBTIQ+-inclusive and take into account gender 
specificities where relevant. 

In  addition,  the  Commission  will  continue  supporting  the  World  Health  Organization 
(WHO) global health sector strategies on HIV and related co-infections, viral hepatitis and 
sexually  transmitted  infections.  It  will  also  work  with  the  HERA  Civil  Society  Forum, 
established under the Health Emergencies Preparedness and Response Authority (HERA), to 
identify systemic barriers for people in vulnerable situations, including LGBTIQ+ people, in 
accessing  vaccines,  therapeutics,  and  diagnostics,  as  part  of  the  EU  strategy  on  medical 
countermeasures.  

Mental  health  is  another  critical  area  where  LGBTIQ+  people  face  heightened  risks. 
LGBTIQ+  persons  with  disabilities,  in  particular,  are  at  an  increased  risk  of  violence, 
harassment and subsequent mental health issues: according to the FRA’s third LGBTIQ survey, 
66%  of  LGBTIQ  people  with  disabilities  reported  having  considered  suicide  in  the  year 
preceding the survey.  

The  Commission  will  continue  to  focus  on  all  persons  in  vulnerable  situations  through  the 
Communication on a comprehensive approach to mental health, including the EU support 
package on stigma and discrimination(33). It will also build synergies with the strategy for the 
rights of persons with disabilities 2021-2030 and promote the exchange of best practices on 
this topic through the Disability Platform. 

The Commission will continue promoting diversity and inclusion through the Creative Europe 
programme  (which  should  be  followed  by  the  proposed AgoraEU  programme  2028-2034, 
currently in legislative process). 

The  Commission  will  continue  to  celebrate  initiatives  that  showcase  the  role  of  sport  in 
promoting  equality  and  diversity  through  the  #BeActive  EU  Sport  Awards  and  raise 
awareness during the European Week of Sport and through the annual EU Sport Forum. It will 
also promote good practice exchanges between Member States on how to ensure equal access 
to sport. 

Through the Open Method of Coordination (OMC) group ‘Fight against hate speech in 
sport’, created under the EU work plan for sport 2024-2027,the Commission will provide a 

(32)   See  Moradi,  Ghobad,  et  al.  “The  prevalence  of  hepatitis  C  and  hepatitis  B  in  lesbian,  gay,  bisexual  and  transgender  populations:  a 
systematic review and meta-analysis.” European Journal of Medical Research, vol. 27, 2022, https://doi.org/10.1186/s40001-022-00677-
0  and  Sherry, Alexander  D.,  et  al.  “Overall  Survival  and  Quality-of-Life  Superiority  in  Modern  Phase  3  Oncology  Trials: A  Meta-
Epidemiological Analysis.” JAMA Oncology, vol. 11, no. 7, 2025, pp. 718–724, https://doi.org/10.1001/jamaoncol.2025.1002  

(33)  Mental health (europa.eu). 

12 

 
 
 
forum for Member States and stakeholders to share practices and develop recommendations on 
how to ensure sport is a safe and inclusive space for all and how to combat hate speech in sport, 
including targeting LGBTIQ+ people. 

In transport, the Commission will continue to improve diversity, equality, and inclusion through 
the network of Ambassadors for #DiversityInTransport and ensure policies are inclusive. 

Artificial  intelligence  (AI)  is  rapidly  transforming  the  technological  landscape  and  holds 
immense potential to improve lives and revolutionise industries. However, this potential also 
comes with challenges, especially the risk of reinforcing existing biases(34). To tackle this, the 
AI Act prohibits AI systems that categorise individuals based on their biometric data to infer 
their  sexual  orientation  or  that  harm  users  by  manipulating,  deceiving  or  exploiting  their 
vulnerabilities.  

In  addition,  providers  of  high-risk  AI  systems  must  consider  risks  to  fundamental  rights, 
including non-discrimination, before deploying their systems or using them. In implementing 
these rules, the Commission will focus on discrimination on various grounds, including sexual 
orientation, gender identity/expression or sex characteristics. To foster informed policymaking, 
the Commission will also provide a discussion platform on equality data and AI for Member 
States and other stakeholders. 

The Commission also plans to present a 2030 roadmap on the future of digital education 
and skills as part of the Union of Skills. The roadmap is envisaged to put in place an AI literacy 
framework  for  primary  and  secondary  education,  strengthening  efforts  on  tackling 
disinformation and misinformation through digital literacy education, addressing the need for 
online safety and digital well-being and challenging stereotypes from an early age. 

According to the FRA’s third LGBTIQ survey, lesbians (42%) and trans women (64%) reported 
the  highest  rates  of  discrimination  in  terms  of  sexual  orientation  and  gender  identity 
respectively. LBTIQ+ women can experience discrimination both as women and as LBTIQ+ 
people. This new LGBTIQ+ strategy will take this intersectional perspective into account. The 
actions  and  measures  proposed  in  the  upcoming  gender  equality  strategy  2026-2030  will 
apply to women and girls in all their diversity. 

2.2  Empowering LGBTIQ+ through employment and social inclusion 

Diversity and inclusion drive innovation and strengthen Europe’s competitiveness. Inclusive 
workplaces that support LGBTIQ+ people benefit from broader perspectives, creativity, and 
problem-solving. The FRA’s third LGBTIQ survey shows a decrease in overall employment 
discrimination (18%, down 3 percentage points from 2019), including when looking for a job 
(9%, down 1 percentage point). Moreover, evidence shows that jobseekers value diversity and 
inclusion  policies  when  looking  for  job,  highlighting  the  importance  of  such  policies  in 
attracting and retaining talent(35). 

(34)  EU Agency  for  Fundamental Rights (FRA),  Bias  in algorithms  - Artificial  intelligence  and  discrimination,  Publications  Office  of  the 

European Union, 2022.  

(35) See Business case of diversity and inclusion at work, Publications Office of the European Union, 2025 

13 

 
 
 
 
The  Employment  Equality  Directive  enshrined  in  EU  law  the  right  to  work  free  from 
discrimination  and  harassment  based  on  sexual  orientation,  among  other  grounds.  The 
Commission will continue to ensure the rigorous application of this Directive and will publish 
a report on its  application in  2026.  Based on the  Study  on sanctions for discrimination, the 
Commission is considering taking further steps to help Member States ensure that the sanctions 
adopted  under  national  law  under  the  Employment  Equality  Directive  are  effective, 
proportionate  and  dissuasive.  The  clarification  in  the  Pay  Transparency  Directive  that  the 
concept  of  discrimination  includes  intersectional  discrimination  will  strengthen  the  right  to 
equal pay, where discrimination on grounds of sex is exacerbated for instance by discrimination 
on the basis of sexual orientation. 

The European network of legal experts in gender equality and non-discrimination intends to 
also  publish  an  academic  report  on  CJEU  case  law  relating  to  the  rights  of  LGBTIQ 
people. This report will analyse the developments in this area over the past three decades. 

The Commission will also continue supporting the Council Presidencies and Member States 
with all possible means to reach the required unanimous agreement on the proposal for the 
Equal Treatment Directive. This proposal is a building block for achieving the Commission’s 
priority  of  building  a  Union  of  Equality  and  aims  to  fill  a  major  gap  in  the  EU’s  non-
discrimination law. It would expand the protection against discrimination on the grounds of 
sexual  orientation,  among  others,  beyond  the  area  of  employment  to  areas  such  as  social 
protection, education, and housing. 

To  ensure  that  equality  bodies  can  contribute  effectively  to  enforcing  the  EU’s  equality 
Directives,  the  Commission  will  ensure  the  correct  and  full  transposition  of  Directives 
2024/1500  and  2024/1499.  The  Directives  aim  to  guarantee  the  independence,  powers  and 
resources of equality bodies, requiring Member States to ensure that equality bodies can help 
victims,  and  extend  the  mandate  of  equality  bodies  to  discrimination  based  on  sexual 
orientation in employment. They also strengthen protection for victims of discrimination based 
on their gender reassignment(36),  when such discrimination is  recognised under EU law.   In 
2026,  the  Commission  will  adopt  an  implementing  act  establishing  indicators  on  the 
functioning of equality bodies, including in combating discrimination. 

As ‘guardian of the Treaties’, the Commission will monitor Member States’ compliance with 
EU law, will use all the instruments at its disposal to protect EU values and will not hesitate to 
take the actions, where appropriate, as it has done in the past. For instance, in July 2022, the 
Commission referred Hungary to the CJEU over national rules that discriminate against people 
based on their sexual orientation and gender identity(37). The Commission considered that these 
rules  breached  several  EU  laws,  including  single  market  rules,  the  fundamental  rights  of 
individuals, in particular LGBTIQ people, and common values that are at the core of the EU 
(Article 2  TEU).  Sixteen  Member  States  and  the  European  Parliament  intervened  in  the 

(36)  As defined by the European Institute for Gender Equality: ‘Gender reassignment’ is a term referring to the set of medical measures that 
can, but do not have to, include psychological, endocrinological and surgical treatments aimed at aligning a person’s physical appearance 
with their gender identity. The term was used in the judgements in Case C-423/04, Richards, 27.4.2006, EU:C:2006 and Case C-117/01, 
K.B. v National Health Service Pensions Agency and Secretary of State for Health, 7.1.2004, EU:C:2004:7. 

(37)  C-769/22 Commission v Hungary, Valeurs de l’Union. 

14 

 
 
 
proceedings in support of the Commission. The Advocate General issued an opinion on 5 June 
2025. The judgment of the CJEU is pending at the time of this strategy’s adoption. 

In the area of diversity management, the Commission reaffirms its unwavering commitment 
to promoting diversity and inclusion in the workplace, particularly at a time when progress in 
this field is facing increasing pushback. Evidence from the OECD shows that companies that 
actively  promote  diversity  and  inclusion  are  more  likely  to  attract  and  retain  talent,  foster 
innovation and achieve stronger financial results. 

The  Commission  will  continue  strengthening  LGBTIQ+-focused  efforts  within  the  EU 
Platform  Diversity  Charters.  The  Platform  will  work  closely  with  the  expert  group  on 
LGBTIQ+  equality  to  facilitate  dialogue  and  provide  guidance,  for  instance,  on  inclusive 
hiring  practices.  Good  practices  which  emerged  in  the  context  of  inclusive  employment 
initiatives, such as the Disability Employment Package, will be taken into account including 
with a view to fostering intersectional approaches. The Commission welcomes the pledge to 
promote more inclusive workplaces submitted by Diversity Charters(38) to the Commission on 
29 April 2025. 

Leading by example, the Commission will strengthen internal diversity and inclusion efforts. 
To this end, the Diversity and Inclusion Office will maintain regular dialogue with relevant 
staff associations and connect LGBTIQ+ employees with services which provide counselling 
and  legal  assistance.  It  will  also  promote  measures  to  simplify  administrative  processes  for 
LGBTIQ+ staff and work towards harmonisation of the recognition of rainbow families across 
institutions.  The  Chief  Confidential  Counsellor  will  combat  harassment.  Finally,  the 
Commission  will  continue  to  collect  equality  data  through  regular  staff  surveys  to  monitor 
progress. 

Discrimination  and  a  lack  of  social  acceptance  contributes  to  high  levels  of  poverty  and 
homelessness among LGBTIQ+ people. According to the FRA’s third LGBTIQ survey, 38% 
of respondents reported making ends meet ‘with great difficulty’ (compared with 22% of the 
general population based on the European Quality of Life Survey 2023) and 13% have had to 
stay  with  friends  and  relatives  temporarily.  To  better  understand  these  challenges,  the 
Commission will publish, by early 2027, a study on housing inequality and discrimination 
with  an  intersectional  approach.  Its  findings  will  contribute  to  the  implementation  of  the 
European affordable housing plan and allow the Commission to take appropriate action to 
promote  safe,  accessible  and  non-discriminatory  housing,  including  in  cooperation  with 
Member States. 

To ensure access to essential protection and services and tackle the root causes of poverty, the 
Commission will launch its first-ever EU anti-poverty strategy in early 2026, which aims to 
address the multidimensional nature of poverty and structural inequalities. 

Additionally,  the  Commission  will  promote  the  socio-economic  integration  of  marginalised 
communities through EU spending instruments, such as the European Social Fund Plus in 

(38)   There are 27 Diversity Charters, one per each Member State. They are organisations based in the EU Member States that provide support 
and promote best practice in diversity management to thousands of leading multinational companies, SMEs and public organisations. 

15 

 
 
 
the current programming period and the proposed national and regional partnership plans 
(NRPP) beyond 2028. As part of the European Platform on Combating Homelessness, the 
Commission will also intensify its efforts to mainstream the needs of vulnerable groups and 
support evidence-based, integrated and person-centred approaches to combating homelessness. 

2.3  Ensuring equal rights across borders 

In the EU, LGBTIQ+ people enjoy marriage equality and/or civil partnerships in 22 Member 
States.  Ensuring  equal  recognition  of  family  relationships  across  the  EU  strengthens  the 
rights, security, and well-being of LGBTIQ+ families, allowing them to fully enjoy their family 
life and participate equally in society, no matter where they live. However, due to differences 
in family law among Member States, family ties may no longer be recognised in cross-border 
situations.  According  to  the  FRA’s  third  LGBTIQ  survey,  14%  of  LGBTIQ  parents  had 
encountered difficulties in having their parenthood legally recognised in another Member State.  

EU free movement law, particularly the Free Movement Directive together with fundamental 
rights under the Charter of Fundamental Rights, upholds the right of all EU citizens and their 
family  members,  including  same-sex  spouses  and  partners  and  their  children,  to  move  and 
reside freely within the EU. The Commission is committed to ensuring the proper application 
of EU free movement rules, fundamental rights and relevant judgments of the Court of Justice 
of the European Union (CJEU) (39). To that end, the Commission published, in December 2023, 
the Guidance on the right of free movement of EU citizens and their families that provides for 
the  necessary  clarifications  on  specific  issues  that  have  been  identified  when  applying  the 
acquis, including with regards to rainbow families. 

In  parallel,  the  Commission  will  continue  raising  awareness  of  these  rights,  including  by 
supporting training for legal practitioners, particularly judges and prosecutors, and through 
its communication channels (e.g. Your Europe). If necessary, the Commission will not hesitate 
to take further action as appropriate to uphold these rights. 

While substantive family law falls under the competence of Member States, the EU can adopt 
measures that have cross-border implications. A number of instruments(40) already provide for 
mutual recognition of judgments on divorce, parental responsibilities, maintenance, property 
regimes  and  succession.  These  instruments  apply  to  everyone,  regardless  of  their  sexual 
orientation or gender identity, and therefore fully apply to LGBTIQ+ people. The Commission 
will monitor and enforce, where necessary, how Member States apply these instruments to 
rainbow families in cross-border situations. The Commission will also engage in discussions 
with  Member  States  to  identify  any  practical  challenges  facing  rainbow  families  in  cross-
border situations. 

(39)   See judgment of 5 June 2018, C‑673/16, Coman, EU:C:2018:385; judgment of 14 December 2021, C-490/20 V.M.A., EU:C:2021:1008; 
order of 24 June 2022, C-2/21, K.S., EU:C:2018:385; judgment of 4 October 2024, Case C-4/23, Mirin, EU:C:2024:845, judgment of 
3 April 2024, Case C-713/23, Wojewoda Mazowiecki, EU:C:2025:235 and Case C-43/24, Shipov. 

(40)  See, for example, Regulation 2019/1111 on matrimonial matters and parental responsibility matters, Regulation 4/2009 on maintenance 
obligations, Regulation 2016/1103 on matrimonial property regimes, Regulation 2016/1104 on the economic consequences of registered 
partnerships, and Regulation 650/2012 on succession. 

16 

 
 
 
 
EU law on free movement already requires Member States to recognise the parenthood of a 
child as established in another Member State, so that children can exercise the rights they derive 
from  EU  law.  The  Commission  will  continue  to  support  Member  States  in  adopting  the 
proposed  regulation  to  strengthen  the  protection  of  the  rights  of  children  in  cross-border 
situations through the harmonisation of Member States’ rules on private international law 
on parenthood. The proposal would ensure that the parenthood of a child, as established in a 
Member State, would be recognised in all other Member States for all purposes beyond what 
is  already  ensured  under  EU  law  on  free  movement.  Negotiations  in  the  Council  on  this 
proposal, which requires adoption by unanimity, are ongoing. 

Requirements for legal gender recognition vary significantly across Member States. While a 
number  of  Member  States  have  adopted  self-determination  models,  others  impose  medical 
procedures,  which  the  European  Court  of  Human  Rights  has  found  may  infringe  human 
rights(41). The Commission will facilitate exchanges of best practices among Member States 
to support the development of legal gender recognition procedures based on self-determination 
that are free from age restrictions. 

Key actions by the European Commission:   

✓  Continue  supporting  the  Council  Presidencies  and  Member  States  with  all  possible  means  to 
reach the required unanimous agreement on the proposal for the Equal Treatment Directive. 

✓  Publish a report on the application of the Employment Equality Directive and provide guidance 
on inclusive hiring practices, in collaboration with the EU Platform Diversity Charters and the 
expert group on LGBTIQ+ equality. 

✓  Raise  awareness  and  foster  knowledge-sharing  on  health  equality  via  the  EU  Health  Policy 
Platform  and  the  Public  Health  Best  Practices  Portal,  while  also  building  on  insights  from 
relevant Horizon Europe research projects. 

✓  Carry out a study on housing inequality and discrimination to be published by early 2027 and 

use its findings in the implementation of the European affordable housing plan. 

✓  Set out a 2030 roadmap on the future of digital education and skills. 

✓  Continue  to  support  Member  States  in  adopting  the  proposed  regulation  on  the  mutual 

recognition of parenthood between Member States. 

(41)   S.V.  v  Italy, Application  No 55216/08,  11 October 2018. A.P.,  Garçon and  Nicot v  France, Applications  Nos 79885/12,  52471/13 and 

52596/13, 6 April 2017. 

17 

 
 
 
 
 
 
3.  ENGAGE 
In line with Article 21 TEU and through the EU action plan on human rights and democracy 
and the EU guidelines to promote and protect the enjoyment of all human rights by LGBTI 
persons, the EU is already a global leader in promoting and protecting the rights of LGBTIQ+ 
people. Achieving full equality requires sustained commitment and active engagement at all 
levels. This strategy reflects the Commission’s determination to advance the full and equal 
enjoyment of all human rights by all within the EU and around the world. 

3.1  Strengthening engagement within the EU 

Member States play a vital role in advancing LGBTIQ+ equality on the ground. Thanks to the 
incitement of the first EU LGBTIQ equality strategy, many Member States have already taken 
steps  to  advance  LGBTIQ+  equality  at  national  level.  The  Commission  calls  now  on  all 
Member States to adopt national action plans on LGBTIQ+ equality by 2027, in line with 
the  guidelines  for  strategies  and  action  plans  to  enhance  LGBTIQ  equality  and  the 
accompanying monitoring checklist(42). To encourage national measures on LGBTIQ+ equality 
and  their  implementation,  Member  States  are  also  encouraged  to  nominate  national 
coordinators on LGBTIQ+ equality or build on existing structures for this purpose. 

The Commission will continue supporting and monitoring these efforts through the High-Level 
Group on non-discrimination, equality and diversity and specifically its subgroup of experts 
on LGBTIQ+ equality, whose mandate will be strengthened to include representatives from 
candidate countries and improve cooperation with the Council Presidencies. In the context of 
the  expert  group,  Member  States  and  other  stakeholders  will  be  invited  to  provide  regular 
updates  on  their  activities  and  disseminate  this  information  to  increase  the  visibility  of 
LGBTIQ+  equality  measures.  Member  States  will  also  be  able  to  get  involved  in  thematic 
activities to address specific policy areas, such as healthcare, education and AI. 

The  Commission  will  continue  to  give  visibility,  celebrate  and  support  local  authorities 
championing inclusivity through the European Capitals of Inclusion and Diversity Awards 
and foster exchanges of best practices among winners, Diversity Charters signatories and civil 
society organisations. 

The  Commission  will  also  strengthen  cooperation  with  international  LGBTIQ+  equality 
expert groups and networks. These include the Council of Europe’s Committee of Experts 
on  Sexual  Orientation,  Gender  Identity  and  Expression,  and  Sex  Characteristics  which 
commenced its mandate in 2024 and the European Governmental LGBTI Focal Points Network 
steered by the Council of Europe. 

(42)  The European Commission also encourages EU candidate countries and potential candidates to follow good practices of EU Member 

States in this area. 

18 

 
 
 
 
 
 
A healthy democracy relies on an open, thriving civic space, where civil society can operate 
freely  and  people  can  express  their  identity  without  fear.  However,  LGBTIQ+  civil  society 
organisations face mounting challenges as their ability to support their communities, advocate 
for human rights and safeguard democratic values comes under increasing pressure. 

 The forthcoming EU Civil Society Strategy will establish a common framework to guide the 
Commission’s engagement with and support for civil society across policy areas. It also seeks 
to  further the work with  Member States on promoting  and sustaining  a thriving civic space 
across the EU, which includes civil society organisations and human rights defenders active in 
promoting and protecting EU values, including equality and non-discrimination. 

The Commission will also promote a new “LGBTIQ+ Policy Forum” with LGBTIQ+ civil 
society  organisations,  social  partners  and  academia  to  address  emerging  challenges,  assess 
progress and ensure the effective implementation of this strategy. This will allow for structured 
and open dialogue with different stakeholders, including regular roundtable discussions with 
European LGBTIQ+ umbrella organisations. 

Young people are key allies in building inclusive and democratic societies. Through the EU 
youth  dialogue  and  the  targeted  youth  policy  dialogues  with  Commissioners,  the 
Commission  ensures  that  voices  of  young  people,  particularly  those  from  groups  at  a 
heightened risk of discrimination, including LGBTIQ+ people, are heard in the policymaking 
process. This inclusive mechanism will continue to ensure openness to all young people to help 
shape policies, including those in the LGBTIQ+ community. 

The Commission will continue to support Member States in integrating equality principles into 
national reforms and investments via relevant EU spending instruments, such as the Technical 
Support Instrument and the Recovery and Resilience Facility. 

The  Commission  ensures  EU  funds  are  implemented  fairly.  It  will  continue  to  monitor  the 
fulfilment  of  the  ‘horizontal  enabling  condition’(43)  on  the  effective  implementation  and 
application of the Charter of Fundamental Rights throughout 2021-2027 for all funds under the 
Common Provisions Regulation. It will also enforce the revised Financial Regulation, which 
explicitly lists incitement to discrimination, hatred or violence as grounds for exclusion from 
EU funding.  

The  Commission  doubles  down  its  commitment  to  support  LGBTIQ+  civil  society 
organisations,  grassroots  activism  and  advocacy,  in  a  context  where  funding  for  these 
organisations is increasingly being cut(44). The Commission will continue to promote equality 
and  non-discrimination  under  the  next  Multiannual  Financial  Framework  (MFF),  in 
particular  via  the  AgoraEU  programme.  Within  AgoraEU,  the  Commission  proposed  to 
allocate EUR 3.6 billion to the new Citizens, Equality, Rights and Values+ strand, more than 
doubling the budget under the current Citizens, Equality, Rights and Values programme. 

(43) Regulation (EU) 2021/1060 of the European Parliament and of the Council of 24 June 2021 (OJ L 231, 30.6.2021, p. 159). 
(44)  See, for instance, Holding the Line: Defending LGBTI movements in the 2025 Funding Crisis - Global Philanthropy Project. 

19 

 
 
 
 
In addition, according to the proposal tabled, all National and Regional Partnership Plans would 
enshrine strong safeguards to ensure respect of the Rule of Law and the effective application 
of  the  EU  Charter  of  Fundamental  Rights  throughout  implementation.  They  also  would 
prevent any discrimination based on, among others, gender and sexual orientation during their 
preparation, implementation, monitoring, reporting and evaluation(45). 

Reliable and comparable equality data are crucial for designing and monitoring evidence-based 
policies using an intersectional perspective. The mandate of the equality data expert group 
under the High-Level Group on non-discrimination, equality, and diversity will be renewed. In 
cooperation with the FRA, it will promote the collection of equality data, including data on the 
challenges faced by LGBTIQ+ people.  

Moreover, the Commission will continue to work with the relevant EU agencies, such as the 
FRA,  the  European  Foundation  for  the  Improvement  of  Living  and  Working  Conditions 
(Eurofound)  and  the  European  Institute  for  Gender  Equality  (EIGE),  to  provide  technical 
assistance  to  Member  States  on  equality  data,  including  targeted  data  on  intersectional 
discrimination. Additionally, it will continue to work with national statistic offices to enhance 
the collection of harmonised equality data under Eurostat’s equality and non-discrimination 
statistics task force. Building on the success of the first High-Level European Round Table on 
Equality data that took place in 2021, the Commission will organise a second edition, bringing 
together key stakeholders to further promote the collection and use of equality data. 

The Commission will prepare a Recommendation to improve the collection, analysis and use 
of  equality  data,  in  cooperation  with  the  Member  States.  This  will  strengthen  support  for 
Member States and other stakeholders, providing tools to help monitor the state of equality in 
the EU and improve mainstreaming equality data.  

The Commission intends to publish a new Eurobarometer on discrimination in the EU in 
2027, and invites FRA to conduct the next wave of its comprehensive LGBTIQ+ survey for 
publication in 2029. 

The  Commission  remains  committed  to  raising  awareness  of  LGBTIQ+  equality  and  non-
discrimination.  It  will  launch  a  communication  campaign  on  the  Union  of  Equality  to 
engage people across the EU on equality and non-discrimination values.  

The  Commission  will  continue  to  actively  promote  LGBTIQ+  equality  through  appropriate 
support  of  and  participation  in  meetings  organised  by  national  authorities  and  the  Council 
Presidencies  and  in  key  public  events  that  serve  as  milestones  for  the  LGBTIQ+ 
community, such as pride month and the International Day Against Homophobia, Transphobia 
and Biphobia. 

(45)  COM/2025/565 final 

20 

 
 
 
 
 
To make LGBTIQ+ equality part of all EU policies, the Commission will intensify cooperation 
across its departments and with other EU institutions. This will continue to be facilitated by the 
European  Commissioner  for  Equality,  the  equality  contact  point  in  cabinets,  the 
Commission’s Inter-Service Group on the implementation of this strategy and the Commission 
internal Task Force on Equality.  

3.2  Maintaining worldwide engagement to uphold LGBTIQ+ people’s human rights 

The EU remains  committed to  promoting the  rights of LGBTIQ+ people  internationally. 
The rights of LGBTIQ+ people are protected under existing international human rights law, 
and yet in many parts of the world, LGBTIQ+ people  face serious human rights violations, 
including persecution, imprisonment or even the death penalty(46), simply for being who they 
are. Increasingly, human rights defenders and their lives are put at risk to advance LGBTIQ+ 
equality.  

At  multilateral  level,  the  EU  will  work  to  build  regional  and  global  alliances  to  advance 
equality  including  in  the  United  Nations,  the  OSCE,  and  the  Council  of  Europe.  It  will 
continue participating in the UN’s LGBTI Core Group, and continue engaging with UN human 
rights mechanisms, including the UN Independent Expert on protection against violence and 
discrimination based on sexual orientation and gender identity. 

The  EU  will  remain  engaged  in  the  analysis  of  foreign  information  manipulation  and 
interference  activities  targeting  the  LGBTIQ+  community  and  will  actively  contribute  to 
preventing and responding to such attacks across different levels and regions worldwide. 

Bilaterally,  the  EU  will  intensify  efforts  to  combat  multiple  and  intersecting  forms  of 
discrimination, including those based on grounds of sexual orientation and gender identity. The 
EU will also step up action to prevent, denounce and combat all forms of discrimination and 
harassment against LGBTI people, LGBTI-phobic violence and hatred. The EU will continue 
to actively condemn and combat discriminatory laws, policies and practices, with a focus on 
advocating for the global decriminalisation of consenting same-sex relations.  

EU Delegations  will be  instructed  to continue  closely  monitor  developments  and engage in 
diplomatic outreach where restrictive laws are proposed. The EU will also continue to protect 
the rights of LGBTIQ+ persons in its political human rights dialogues. LGBTIQ+ equality will 
also remain in focus in the EU’s engagement with countries that benefit from trade preferences 
under the Generalised Scheme of Preferences and the Everything but Arms scheme. 

In its election observation missions, the EU will continue to consider instances of hate speech 
and inflammatory language, including when they target LGBTIQ+ people, and the portrayal of 
stereotypes  in  media  coverage.  The  EU  will  also  examine  measures  taken  by  the  relevant 
authorities to facilitate the participation of minority groups, including LGBTIQ+ people, in the 
electoral process and to counter discrimination against them. 

(46)  According to UNAIDS, 67 countries criminalise same sex relations, with 10 imposing the death penalty (2023).  .  

21 

 
 
 
 
Furthermore, the EU will continue to ensure that humanitarian aid and protection measures 
meet the specific needs of vulnerable LGBTIQ+ people, in line with fundamental humanitarian 
principles, such as impartiality and non-discrimination. Preventing, mitigating and responding 
to gender-based violence, including conflict-related sexual violence, is a key priority for the 
EU as a humanitarian donor. 

With regards to candidate countries and potential candidates, in line with the 2020 revised 
enlargement methodology, the EU will continue to champion the rights of LGBTIQ+ people, 
including  as  part  of  accession  negotiations  and  related  association  agreements.  The 
Commission’s annual enlargement package will continue to assess the human rights situation 
of LGBTIQ+ people in candidate countries and potential candidates. 

In particular, the Commission will monitor compliance with EU legislation and the relevant 
case  law  of  the  CJEU  and  European  Court  of  Human  Rights,  issue  recommendations  and 
support  measures  to  ensure  equality  for  LGBTIQ+  people  and  tackle  violence,  hatred  and 
discrimination. Furthermore, the Commission will continue to promote the rights of LGBTIQ+ 
people in its political and human rights discussions with neighbourhood countries. 

In order to support human right defenders, the Commission will continue to provide guidance 
on the processing of visa applications from human rights defenders through the EU visa code 
handbook. The  handbook  was  revised  in  June  2024  with  updated  guidance  and  examples, 
including for LGBTIQ+ human rights defenders. The EU Delegations around the world will 
also continue to implement the EU guidelines on human rights defenders. Specific support is 
also provided via the EU Human Rights Defenders Mechanism through emergency grants, 
relocation assistance, capacity building, and training for human rights defenders at risk 

Finally, to uphold the rights of LGBTIQ+ people, the Commission will apply a human rights-
based approach, together with gender and inequality analysis, to all actions funded through EU 
financing instruments, such as the Instrument for Pre-Accession Assistance (IPA) and the 
Neighbourhood,  Development  and  International  Cooperation  Instrument  (NDICI), 
including under the NDICI’s thematic programmes on human rights and democracy, and civil 
society. These programmes will also continue to provide financial support to LGBTIQ+ civil 
society organisations and human rights defenders. They should be followed by the proposed 
Global  Europe  Instrument,  currently  in  the  legislative  process,  for  the  next  Multiannual 
Financial Framework. 

Key actions by the European Commission: 

✓  Provide funding through relevant EU spending instruments to support projects and organisations 

upholding the rights of LGBTIQ+ people and combating discrimination. 

✓  Create  a  new  “LGBTIQ+  Policy  Forum”  with  LGBTIQ+  civil  society  organisations,  social 

partners and academia in 2026.  

✓  Launch in early 2027  a communication campaign  on the Union of Equality to engage people 

across the EU on equality and non-discrimination. 

✓  Prepare a Recommendation on equality data, complemented by the publication of a new edition 

of the Eurobarometer on discrimination in the EU in 2027. 

22 

 
 
✓  Implement actions to promote and protect the full and equal enjoyment of all human rights by 
LGBTIQ+ people across the world, both at multilateral and bilateral level, including advocating 
for the global decriminalisation of consenting same-sex relations. 

✓  Support  the  alignment  of  candidate  countries  and  potential  candidates  with  the  relevant  EU 

legislation and case law of the CJEU and the European Court of Human Rights. 

CONCLUSION 

This strategy reaffirms the vision of a European Union where LGBTIQ+ people are free to 
be themselves and to love. The EU and its Member States have made significant progress in 
advancing a Union of Equality. However, a lot can still be achieved for a truly equal society 
for all, free from discrimination and hatred. 

Building  on the LGBTIQ equality  strategy  2020-2025, this renewed strategy  continues the 
EU’s efforts to promote LGBTIQ+ equality and maintains a focus on priority areas, as well 
as  on  mainstreaming  LGBTIQ+  equality  into  all  policies,  with  an  intersectional  approach. 
Achieving equality  is  not  only  vital for  a  resilient democracy and cohesive society but  also 
essential for fostering thriving and competitive economies across Europe. 

Upholding  equality  and  non-discrimination  in  the  EU  is  a  shared  responsibility,  requiring 
joint  efforts  at  every  level.  EU  institutions  and  agencies,  Member  States,  including  their 
regional  and  local  authorities,  equality  bodies,  social  partners,  businesses,  civil  society  and 
individuals must continue and strengthen their engagement to achieve this renewed strategy’s 
objectives. Allies, people who do not necessarily identify as LGBTIQ+ themselves but who 
actively stand up for LGBTIQ+ equality, play a critical role by advocating, speaking out and 
actively supporting LGBTIQ+ equality in their daily lives, helping to turn shared values into 
tangible realities. 

The  Commission  invites  the  European  Parliament  and  the  Council  to  renew  their 
commitment and support the implementation of this strategy. In addition, the Commission calls 
on the Committee of the Regions and the European Economic and Social Committee to bring 
together  local  and  regional  authorities,  social  partners  and  civil  society  to  discuss  how  to 
advance LGBTIQ+ equality for all.  

The  Commission  will  regularly  monitor  implementation  of  the  measures  presented  in  this 
strategy and present a mid-term review in 2028. 

23