Fear of confronting bullies is driven from the top
As the architects and guardians of anti-bullying policies and procedures, HR staff are very often exploited, as can be seen in the results of the Personnel Today/Andrea Adams Trust survey.
But, regrettably, I have also found there to be autocratic minorities within HR departments, whose prime central motivation is not to think together about the complexity of the issues surrounding workplace bullying, but to impose their will on the majority.