So I go back and fourth about this and I'd like to talk about it without the baggage of the shows shipping wars.
If you don't know what queerbaiting, here is Urban Dictionary's definition:
The most famous examples of queerbaiting are Supernatural, Sherlock, and Rizzoli & Isles.When people in the media (usually television/movies) add homoerotic tension between two characters to attract more liberal and queer viewers with the indication of them not ever getting together for real in the show/book/movie.
A lot of people see chemistry between Emma and Regina (known as SwanQueen). The producers have acknowledged that the chemistry is there but that they're not writing it. But are they? They certainly run hot and cold over the section of fandom, sometimes appeasing them, and sometimes dismissing them.
Personally I think that some queerbaiting has happened in the show, but that then they back down from it. Given that the only character on the show with any same sex attraction on the show never verbally expressed it and was immediately not heard from again they certainly have a representation problem.
Just a reminder: I'm really not interested in debating SwanQueen.