Today, the world is rarely shocked. But the conservatism of our environment still makes us much more sensitive than e.g. Americans who walk from the extremes of bizarreness to explicit violence like a walk through the park. Magazine covers have always been the ones that threw a hook at prospective readers, hoping they would take the "bait". Sometimes they even tried too hard and were downright shocking.
In the flood of media that flies around us like flies with fresh you-know-what, you have to be really unique to choose reader's attention. And how to get the reader on your side? They proved to be the best recipe so far controversy, violence and clearly beautiful girls (and to some small extent men too). Dummy addresses supported by visual material are a combination that works as magnet. The red alarms of censorship are forgotten, borders are pushed further and further.
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Although maybe licked folds, short skirts, deep necklines that is, clothes that reveal more than they conceal are no longer anything special, but have left deep scars on society, as they rocked the world many girls. A covers they want to be part of art and art has a controversial component- exceed the permissible limit. And while magazine covers aren't the first choice, they definitely are editors here, too, they feel the limits of what is acceptable. Mostly today controversy the circumstances make the headlines, because Photoshop is already so ubiquitous that it shook off the controversy a long time ago.
See the 15 most controversial covers in the gallery