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Bullying is very hard to define, but no one is saying it should be made into a criminal offence, just that companies should be held liable if they do not have adequate processes to deal with it. If someone comes up to you in the street and starts insulting you - someone has to make a judgment to if a complaint is made - is it threatening behaviour or a breach of the peace, or is just "words"... all this stuff is subjective.
Employers do have a duty of care to protect people who work for them.
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"Do not tell lies, and do not do what you hate,
for all things are plain in the sight of Heaven. For nothing
hidden will not become manifest, and nothing covered will remain
without being uncovered."
The Gospel of Thomas
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