HN user
In an ideal world, every place would be equally safe, but that LGBT suicide happens is evidence that we don't live in that world. A GSA or similar program is important because it is the one place that is guaranteed to be safe. And, if you're gay and you don't want to participate, you aren't required.
The line between "fun and games" and "damaging" is very grey and differs widely from administrator to administrator. I know a lot of people (and I'm sure there are a lot of teachers/administrators) who harbor the "harden up and get over it" viewpoint.
Legislating out bullying, while a productive first step, will not make it go away. It's the conflation of factors that tell young kids that "gay = wrong/weak/unmanly"--parents, media, peers, etc. Of course it should be our mission to make schools a safe place for kids, but that's only a part of the solution. Many kids live in homophobic home environments, engage in extracurriculars (namely, sports) that are typically more homophobic, or have role models that reinforce homophobia (some religions are this way).
In order to cultivate safe spaces, schools do need:
-to call out bigotry wherever it is (zero tolerance policies that are actually enforced)
-to give teachers and administrators sensitivity training
-counseling, resources, and positive role models
-specifically designated LGBT safe spaces
And keep in mind that things have gotten a lot better for LGBT kids in school. Just ten years ago a lot of this stuff was simply shrugged off and pinned on kids who "couldn't handle" a "normal" amount of bullying.