When journalists are silenced by fear, the public interest suffers

Foto: Marija Erdelji

Sexual harassment in newsrooms in Slovenia, Croatia, Serbia, and Bosnia and Herzegovina has been hidden for years behind professional silence, uncertain contracts, and power hierarchies. Although laws formally prohibit discrimination and violence, practice shows that protection for female journalists and media workers is often lacking. Can the Rulebook on the Prevention of Sexual Harassment become a turning point in the culture of silence?

Female journalists report sexual and other forms of harassment against women, but they are also invisible victims of this same violence, according to a regional survey conducted in August and September this year in Slovenia, Croatia, Serbia, and Bosnia and Herzegovina as part of the project "Women in the Media: Ending workplace harassment in the media industry in Slovenia, Croatia, Serbia, and Bosnia and Herzegovina."

The preliminary and final results of the research, based on hundreds of surveys, in-depth interviews, and comparative analyses, point to the systemic nature of sexual and gender-based violence in the media sector. Every second female journalist has experienced some form of sexual harassment, most of whom have never reported it, institutions and editorial offices rarely respond, and the consequences – professional, psychological and social – are borne by the individuals themselves.

The systemic problem identified by the research, which manifests itself in widespread discrimination against female media workers as well as in the absence of adequate protection for them, requires a swift and effective response – the definition of clear rules that would oblige newsrooms to have zero tolerance for discrimination against women in the media.

The Rulebook that we will develop as part of this project will consist of several segments – from defining the concept of harassment and its causes, through comparative legal practice in the field of preventing harassment in the workplace, to international standards in this area.

The Rulebook on the prevention of harassment in newsrooms is currently being drafted

The Rulebook will contain clear instructions for identifying harassment in the workplace, guidelines on which types of harassment should be reported to which competent authorities, and recommendations for preventing harassment, particularly sexual harassment.

By the end of December, a regional expert group will be formed to work on the Rules, bringing together experts from all four countries. The coordinator of the regional expert group is Veljko Milić, a lawyer from Novi Sad.

More than two-thirds of respondents said they did not report sexual harassment to anyone for fear of losing their job or retaliation. Lawyer Veljko Milić says this is not surprising, as even in newsrooms where such a document formally exists, the culture is not such that it would be used at all – it lies in a folder and no one acts in accordance with it. 

"The Rulebook will define what constitutes sexual harassment within the newsroom and how it manifests itself, so that victims can more easily recognize it. The Rulebook will be designed to be applicable in all four countries – Slovenia, Croatia, Serbia, and Bosnia and Herzegovina. If necessary, we will adapt it to the legal system of each country," said Milić.

The Rulebook on the Prevention of Sexual Harassment of Female Journalists and Media Workers is intended for public broadcasting services and private media in Slovenia, Croatia, Serbia, and Bosnia and Herzegovina.

To ensure the participatory development of the Rulebook, it is the work group's task to jointly develop clear guidelines and procedures for preventing, reporting, and sanctioning sexual harassment in the workplace in the media. This includes:

• Mechanisms for reporting sexual harassment that are available and ensure the safety and confidentiality of victims of violence;
• Response strategies that define the steps to be taken after a complaint is filed, ensuring that complaints are resolved in a timely and fair manner;
• Preventive actions, such as training, awareness campaigns, and clear policies on acceptable behavior;
• Accountability frameworks to sanction perpetrators and protect victims from retaliation.

Numbers that break myths

One of the most alarming findings of the research is the fact that every second female respondent has experienced one or more forms of sexual harassment. This percentage is the same in all four countries, which indicates the regional nature of the problem.

The most common forms of harassment include unwanted comments about appearance, body, and sexuality; sexist and stereotypical remarks about women's professional skills; inappropriate touching, kissing, and "jokes" at work parties; sending sexually explicit messages and photos; psychological harassment and retaliation after rejection; serious threats, attempted rape, and rape.

More than half of the cases come from colleagues in newsrooms, and a third from superiors – revealing the hierarchical dimension of violence and its connection to power relations.

Research in Serbia points to additional risks: death threats, physical attacks, organized smear campaigns, and institutional indifference. Journalists working for independent and critical media outlets are particularly at risk. Attacks have escalated following political and social turmoil, including the events in Novi Sad in 2024.

The newsroom as a place of risk – normalisation of violence and silence as a survival strategy

Contrary to the common belief that female journalists are most vulnerable in the field or on social media, research shows that newsrooms are often the main site of harassment. The sexualization of appearance and the underestimation of competence create a work environment in which violence is normalized.

One of the respondents said: "There are hundreds of cases like mine in our media scene. Ask around in the public media. You wouldn't believe what our female colleagues have to go through."

Many female journalists do not recognize certain behaviors as sexual harassment – even though they personally experience them as unpleasant or humiliating. This normalization of violence is the result of a long-standing culture of sexism, as well as a lack of education and clear internal policies.

There are many reasons why the vast majority of female media workers did not report harassment to anyone: fear of losing their jobs in an uncertain and underpaid sector; fear of retaliation and professional stigmatization; distrust of newsrooms, unions, and institutions; belief that "nothing will happen." 

"I didn't know how to act so that I wouldn't become a problem," one of the journalists stated in the survey.

Legal framework in the region: laws exist, but there is no protection

On paper, countries in the region have a relatively solid regulatory framework when it comes to prohibiting discrimination and sexual harassment. Slovenia, Croatia, Serbia, and Bosnia and Herzegovina have formally aligned part of their legislation with international standards – from the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW) to the Istanbul Convention and relevant European Union directives.

However, the experiences of female journalists and media workers show that there is a deep gap between regulations and reality.

Slovenia

Slovenia has the most well-developed regulatory framework in the region, with clearer procedures and greater institutional recognition of protection mechanisms. Sexual harassment is recognized both in labor legislation and in the broader framework of protection against discrimination. However, research shows that even in Slovenian newsrooms there is a "culture of silence" about sexual harassment, especially when the perpetrators are in positions of power.

Croatia

The Croatian legislative framework recognizes sexual harassment through the Labor Act and the Gender Equality Act, whereby employers are required to implement preventive measures and protective procedures. Formally, employees have the right to protection and to contact the competent authorities.

However, research shows that mechanisms in the media are not very visible, and reporting carries a high professional risk. Female journalists who are employed on a part-time or fixed-term basis are particularly vulnerable, as in practice they have no one to turn to without fear of losing their jobs.

Serbia

In Serbia, the prohibition of discrimination and sexual harassment is defined in the Law on the Prohibition of Discrimination, the Law on Gender Equality, and the Law on Labor. Sexual harassment is recognized as a specific form of discrimination, and employers are obliged to ensure a working environment free from violence and harassment.

However, these regulations are rarely applied in practice in the media sector. Newsrooms often do not have internal documents – and if they do, they are not used. Institutions respond slowly, reports are relativized, and the burden of proof almost always falls on the victim. A particular problem is the interpretation of threats and harassment in the digital space, which prosecutors often dismiss as "not concrete enough."

Bosnia and Herzegovina

Bosnia and Herzegovina has a complex legal system with laws at the state, entity, and cantonal levels. Prohibitions against discrimination and sexual harassment formally exist, but the fragmentation of the system makes enforcement difficult. In the media, responsibility is often spread across different levels of management, and clear procedures are almost non-existent. Female journalists are often unsure who to turn to or which institution is responsible, which further discourages them from reporting.

Bureaucratic obstacles and threats to the public interest

Common to all countries in the region is that laws are based on the assumption that employers will act conscientiously and that institutions will respond effectively. In reality, however, the media sector is characterized by uncertain working relationships, power hierarchies, and strong pressure on individuals not to "overreact."

The research shows that most media outlets do not have effective preventive measures against sexual harassment. Even where formal documents exist, employees are often not familiar with them, nor is it common practice to apply them.

In Serbia, it is particularly worrying that 84% of respondents have experienced gender discrimination, while only 5% reported the case to the labor inspectorate. Of the small number of cases reported, three-quarters had no outcome. Disciplinary proceedings were initiated in only a few cases, and judicial proceedings are the exception.

Female journalists face minimization of violence, blame shifting, and bureaucratic obstacles. "Don't get so upset. Most of these people weren't serious," one of the journalists was told in court.

Discrimination and violence against women journalists are not just a matter of labor rights or gender equality—they directly threaten democracy and citizens' right to information. When women journalists are silenced by fear, the public interest suffers.

Why is the Rulebook necessary

The structure and content of this document will be a regulation on the prevention of sexual harassment and gender-based violence in media organizations, adapted for use in Slovenia, Croatia, Serbia, and Bosnia and Herzegovina.

The Rulebook will be developed as a practical instrument for public and private media, with clear mechanisms for reporting, investigation, protection, sanctions, and support for victims. It will be transferable and require minimal adjustments to be aligned with the legislation of each country, if necessary.

The Rulebook will enable a common standard of quality response in countries across the region, the exchange of good practices, training and support between trade unions and journalists' associations, and the improvement of practices in public broadcasting media, which are often comparable.

The principles on which the Rulebook will be based include: the right to dignity and safety (zero tolerance for sexual harassment), confidentiality and anonymity (priority given to the safety of the victim and limited sharing of information), speed and transparency (clear deadlines and procedures for investigation and decision-making), and sanctions for possible retaliatory measures.

Public broadcasting media – system test

The Rulebook on the prevention of sexual harassment should first be implemented in the public broadcasting media. Funded by public money and legally obliged to serve the public interest, they should set standards for the entire media sector.

In practice, however, the same patterns of silence and relativization are often present in public broadcasting media as in commercial, private media – and are sometimes exacerbated by reliance on the slowness of the system and internal hierarchies. 

Although they already have certain regulations, codes, and procedures in place, they are rarely enforced. Complaints are resolved informally, through "discussions," without a written record, without protection for victims, and without consequences for perpetrators.

If the Rulebook is consistently applied in the public broadcasting media, it could become a model that will also spread to private and local media.

As institutions with the highest visibility, public broadcasting media also have a special responsibility to the public. Through their behavior, they send a message about what is socially acceptable. Silence about violence in their own newsrooms undermines public trust just as much as censorship or political pressure.

Therefore, the Rulebook in the public broadcasting media is not just an internal mechanism for protecting employees – it is a test of whether the organization truly believes in the principles it publicly advocates.

Safe newsrooms are a prerequisite for an informed society

In a region where female journalists have become used to being their own union, legal service, and psychological support, the purpose of the Rulebook on the Prevention of Sexual Harassment in the Media is to clearly emphasize what is unacceptable, who is responsible, and what happens when boundaries are crossed.

For years, female journalists have been taught to remain silent, to tolerate, to understand "context," "temperament," and "jokes." To separate the professional from the personal, even when their bodies, dignity, and safety become the subject of collective disregard. To continue reporting on violence against others, while normalising the violence they themselves experience as an integral part of journalism.

The Rulebook shifts the responsibility from individuals to institutions. From journalists who wonder if they will lose their jobs to editors who must explain why they did not respond. From the question "why didn't you report it" to the question "why didn't you protect them."

Its power lies not only in the proceedings, but also in the message: that journalism cannot be a critical public voice if it tolerates violence in its own newsrooms. That media freedom cannot exist if there is no safety for those who work in the media.

It is therefore important that the Rulebook does not remain an internal document for a few newsrooms, but becomes a regional standard. That their adoption is linked to public tenders, donor funds, and public trust. That trade unions, journalists' associations, and the academic community recognize them as a minimum and not a maximum.

And finally, the public must understand its role. Because audiences who trust the media but ignore violence against female journalists are participating in the same system of silence. Safe newsrooms are not an internal matter for the media – they are a prerequisite for an informed society.

The Rulebook will not stop all forms of violence. But it can do something equally important: it can make it clear that violence is no longer invisible, that it is not a private matter, and that it is not part of the journalistic profession. And in societies that have been accustomed to silence for too long, that is the beginning of change.

Branka Dragović, Trade Union of Culture, Art and Media "Nezavisnost"

This text was prepared as part of the project "Ending workplace harassment in the media industry in Slovenia, Croatia, Serbia and Bosnia and Herzegovina - Women in the Media," with the financial support of the European Union.