The legislation surrounding the regulation of transgender athletes in sport is of fascination to me, as an athlete myself. It is particularly concerning how the law has arguably facilitated the discrimination of transgender athletes. As we live in an increasingly more inclusive, gender-fluid society it is interesting to witness how the law may change in the future.
Social background of trans athletes
Public university sporting bodies have the ability to exclude transgender athletes from participating in sporting competition, if it is found necessary to ensure fair competition and the safety of competitors.[1] The term ‘transgender’ is used to refer to people whose gender identity is different from the gender they were at birth.[2]
Though there has been a lack of thorough scientific research in the area, the biological attributes associated with the male sex, in relation to the female sex, include ‘decreased body fat, increased heart and lung size – all of which adds up to strength and performance advantages’.[3] Therefore, one may conclude that exclusion is necessary as transgender female athletes have a clear biological advantage. However, some specialists have pointed out that such research is not ‘direct or consistent’ and fails to show that individuals have an athletic advantage over women at any stage of their (gender) transition.[4]

It is a common theme of media discussion that we live in an age of gender fluidity, especially in matters of sex.[5] Society is becoming increasingly aware and arguably more supportive of the transgender and intersex community. Arguably in light of this, the International Olympic Committee created a new transgender framework which outlines ten principles, including inclusion, non-discrimination and fairness, reflecting overall on a more inclusive society, where different abilities and characteristics are valued.[6]
Legal background
All forms of discrimination (direct, combined and indirect) are prohibited by the Equality Act.[7] However, the Act has an exemption whereby transgender and intersex athletes can be excluded from ‘gender-affected’ sporting participation, if it is proven necessary to (a) ensure fairness and (b) the safety of competitors.[8] For pre-pubescent transgender female athletes, the requirement of a ‘gender-affected activity’ is not needed as their exclusion is not necessary to ensure fair competition and the safety of competitors.[9] The exclusion clause only concerns post-pubertal transgender female athletes. At present, restrictions on participation are permitted to the extent they are ‘necessary and proportionate’ to the achievement of that objective.[10]
An example where the sport exemption in UK anti-discrimination legislation was used was by the IOC in their Stockholm consensus, in 2003, which incorporated a requirement of genital surgery.[11] The policy raised human rights issues of respect for individual dignity, privacy and bodily integrity. Meanwhile, there has also been a growing recognition of the importance of autonomy in choice of gender identity in society.[12] The policy has since been antiquated. However, it did appear to have breached the ‘right to privacy and work’ which is guaranteed under Article 8 of the European Convention on Human Rights (ECHR) and has been incorporated into UK law through the Human Rights Act 1998 (HRA). The term “privacy” has a broad scope of interpretation, where individuals are entitled to be ‘left alone’[13] to develop their personality autonomously and safely.[14] Individuals are expected to enjoy a ‘reasonable’ level of privacy[15] and therefore, any form of surgery or mandatory intake of testosterone suppressants arguably amounts to a breach of this human right, violating their bodily integrity and autonomy.
A requirement of surgery could also breach the right to enjoy the fundamental human rights without discrimination on any ground, such as sex.[16] The transgender policies in sport are arguably examples of indirect discrimination, this is where there is a policy or rule that applies to everyone but puts individuals with a specific protected characteristic, such as sex, at a particular disadvantage.[17]
Public authorities, like UK Sport, are obliged to take appropriate measures to protect people’s human rights. They must adopt reasonable and suitable measures to protect the rights of the individual.[18] States, such as the United Kingdom, are required to undertake positive obligations to “ensure the equal rights of men and women” to enjoy and realise the civil, political, economic, social and cultural rights.[19] The ECHR contain positive obligations that oblige states to protect those within their state.[20] The ‘equality duty’ was developed, in regard to the ECHR, by the Equality Act 2010.[21] This duty refers to the equality of opportunity and can be applied, in sporting contexts, as the chance to participate and not be excluded. By applying human rights frameworks to determine the scope of protection of intersex and transgender female athletes, one is able to examine the legitimacy and legality of eligibility regulations.[22]
Social history
Transgender and intersex people have often faced discrimination (both direct and indirect) due to the fact that their bodies do not conform to people’s binary expectations about sex and gender.[23] Historically, in sporting contexts, female athletes were made to undergo unnecessary medical examinations over fears that males would masquerade as females in order to gain a competitive advantage.[24] In the early 1960s, female athletes underwent sex testing where they stood before a committee of experts, in what became known as the ‘nude parade’.[25] Such examinations sparked resentment by female athletes due to the test’s intrusive nature and have since been removed by sporting federations.
In 2004, the IOC introduced the Stockholm Consensus, which allowed transgender (male to female, transitioning after puberty) athletes to compete at the Olympics. Sex reassignment surgery or hormonal therapy was made mandatory in order to ‘minimise gender-related advantages in sport competitions.[26] More recently, in 2015, the IOC ruled that suppression of blood testosterone levels through the use of hormones and/or other medication would be required for transgender women.[27] Developments such as these do not indicate an overall increase in the acceptance of gender variance in the world of sport; rather, there has been ongoing resistance to inclusive gender policies in mainstream sport organizations.[28] It is argued that this resistance is based on anxieties about the instability of the male/female gender binary.[29]
Legal history
The ECHR established positive obligations on States to protect the fundamental rights of individual human beings[30]. For example, in accordance with Article 14, States must secure non-discrimination. Such convention rights are now directly enforceable, as the HRA incorporated the ECHR into UK law.[31]
Recently, in 2016, The House of Commons Women and Equality Committee recommended that the government work with Sport England to help highlight that the instances where exclusion of intersex and transgender athletes can be justified are extremely rare.[32] This indicates that the government needs to actively provide support as such policies make transgender athletes more vulnerable to direct and indirect discrimination.

Despite not falling within the UK jurisdiction, the outcome of the case of Chand v AFI and IAAF[33] was significant as it explained how regulatory rules should be in place to promote fair competition and the protection of women in sport. But more importantly, it outlined that to avoid discrimination, if not eligible for female events, the athlete must be eligible to compete in male events. This judgment was significant as it outlined a means to actively avoid discrimination, giving transgender athletes the choice and the right to compete. As a result, it prevents transgender athletes having their right to compete taken away from them due to their sex, which essentially is discrimination.[34]
This post is a literature review, supporting the research question of whether the sport exception in UK anti-discrimination legislation is in violation with the Human Rights Act. I completed my law dissertation on this subject matter, attaining a first class honours on this module and winning the CPS Award for Best Overall Dissertation at Leeds Law School 2022.
[1] Part 15, 195(2) Equality Act 2010 c.15
[2] ‘Frequently Asked Questions about Transgender People’ (National Center for Transgender Equality, 9 July 2016) <www.transequality.org/issues/resources/frequently-asked-questions-about-transgender-people> accessed 27 Nov. 21
[3] Erzincem, ‘Sports Scientist on BBC: Yes, Trans Athletes have Advantages over Women.’ (Xennial Times, 30 August 2021) <www.xennialtimes.net/sports-scientist-on-bbc-yes-trans-athletes-have-advantages-over-women/> accessed 30 November 2021
[4] Bethany Alice Jones, Jon Arcelus, Walter Pierre Bouman and Emma Haycraft ‘Sport and Transgender People: A Systematic Review of the Literature Relating to Sport Participation and Competitive Sport Policies’ (Sports Med, 2017) 47(4): 701-716
[5] Michael Beloff, ‘Editorial’ [2016] I.S.R. 1, 1-2
[6] IOC Framework on fairness, inclusion and non-discrimination on the basis of gender and sex variations (2)(3)
[7] Part 2, Chapter 2, s13-19 Equality Act 2010 c. 15
[8] Part 15, 195(2) Equality Act 2010 c.15
[9] ibid
[10] International Policy Review 2021(SCEG Project for Review and Redraft of Guidance for Transgender Inclusion in Domestic Sport 2020, Carbmill Consulting) Transgender Guidelines (d) 4 <www.equalityinsport.org/docs/300921/Transgender%20International%20Policy%20Review%202021.pdf> accessed 11 Dec. 21
[11] IOC News, ‘IOC approves consensus with regard to athletes who have changed sex’ (International Olympic Committee, 17 May 2004) <www.olympics.com/ioc/news/ioc-approves-consensus-with-regard-to-athletes-who-have-changed-sex/> accessed 1 Dec. 21
[12] Michael Beloff, ‘Editorial’ [2016] I.S.R. 1, 1-2
[13] Samuel Warren and Louis Brandeis, “The Right to Privacy” (1890) 4 Harvard Law Review 193
[14] Von Hannover v Germany App Nos 40660/08 and 60641/08 (ECHR, 7 February 2012) at [95]
[15] ‘Article 8: Respect for your private and family life’ (Equality and Human Rights Commission, 24 June 2021) <www.equalityhumanrights.com/en/human-rights-act/article-8-respect-your-private-and-family-life> accessed 1 December 2021
[16] The Human Rights Act 1998, Article 14
[17] Equality Act 2010, s19
[18] López-Ostra v Spain (Application no.16798/90)
[19] Chui Ling Goh and Bjorn Hessert, ‘The intersection of gender fluidity and sports’ ISLR [2021] 2, 25
[20] Andrew Clapham, ‘Non-state actors’ (International Human Rights Law, 3rd edn, 2018)
[21] Part 11, Chapter 1, s149 Equality Act 2010
[22] Chui Ling Goh and Bjorn Hessert, ‘The intersection of gender fluidity and sports’ ISLR [2021] 2, 25
[23] Sykes, H., ‘Transsexual and transgender policies in sport’ Women in Sport & Physical Activity Journal (2006) 15(1), p.3.
[24] Louis J. Elsas, Arne Ljungqvist, Malcolm A. Ferguson-Smith, Joe Leigh Simpson, Myron Genel, Alison S. Carlson, Elizabeth Ferris, Albert de la Chapelle and Anke A. Ehrhardt, ‘Gender verification of female athletes’ [2000] Vol.2, No.4; 1
[25] Ritchie R, Reynard J, Lewis T. Intersex and the Olympic Games. J R Soc Med 2008;101(8):395-399
[26] IOC News, ‘IOC approves consensus with regard to athletes who have changed sex’ (International Olympic Committee, 17 May 2004) <www.olympics.com/ioc/news/ioc-approves-consensus-with-regard-to-athletes-who-have-changed-sex/> accessed 1 December 2021
[27] UK Sports Council Equality Group, ‘Guidance for Transgender Inclusion in Domestic Sport 2021’ <www.equalityinsport.org/docs/300921/Guidance%20for%20Transgender%20Inclusion%20in%20Domestic%20Sport%202021.pdf> accessed 1 December 2021
[28] Sykes, H., ‘Transsexual and transgender policies in sport’ Women in Sport & Physical Activity Journal (2006) 15(1), p.3.
[29] ibid
[30] Austria v Italy (Pfunders Case) (1961) 4 YB 116, 138
[31] Human Rights Law Concentrate: Law Revision and Study Guide (4th edn) 22
[32] Michael Beloff, ‘Editorial’ [2016] I.S.R. 1, 1-2
[33] CAS 2014/A/3759 Chand v AFI and IAAF
[34] The Human Rights Act 1998, Article 14












