What does it mean to not initiate sex?

Hi, so this will be a long story.

I met this person about two months ago, and the first night we went out we had sex. The next few frequent times after that we had sex when we were together.

The last time we had sex together I said, "I love you." I meant it in a "I really like you" tone but in hindsight I see why I shouldn't have said that.

I'm told sex isn't being withheld and we do kiss and hug when we can. But I get told no when things progress.

I'm a transgender female and he's a transgender male. I'm a little further along than him in transition.

We're not actually in a relationship right now and he's someone else too. I'm fine with that. He does hint at wanting a relationship. His last relationship ended bad, that's why he wants to take things slow.

I think he might be trying to choose someone. I don't feel wanted though, like I'm unattractive or something. I try so hard to please him in bed and I'm polite. I don't like the way our dynamics are changing. Help. :(