I think the problem is that something can start out under the radar as bullying...and then it moves to looking more like conflict if the victim stands up for self or responds at all (even if unproductive at standing up) and the the authorities only see two people going at it equally at the point where they see a problem.

If you have someone cowering in the corner...victim...fighting back ....conflict...irritable and lashing out at others over being bullied, they then are labeled bullies themselves.

...reading is pleasure, not just something teachers make you do in school.~B. Cleary