At approximately the same time that Lippmann and Lasswell were examining public opinion and propaganda, Edward Bernays (1891-1995) was examining public relations, propaganda, and public
opinion. Bernays (1928) defines propaganda as, a consistent, enduring effort to create or shape events to influence the relations of a public to an enterprise, idea, or group
(p. 25). Contrary to other propaganda theorists, Bernays recognizes that propaganda can be either beneficial or harmful to the public. It can help individuals decide what to think about or
alter the opinions of individuals, but this may actually be beneficial to society’s functioni ng as a whole. Bernays states, We are governed, our minds are molded, our tastes
formed, our ideas suggested, largely by men we have never heard of... Vast numbers of human beings must cooperate in this manner if they are to live together as a smoothly functioning
society
(p. 9).
Based on these ideas that the public opinion can be modified, and that such shaping is a necessary part of society, Bernays pursued his work in the field of public relations. Public relations is the attempt, by information, persuasion, and adjustment, to engineer public support for an activity, cause, movement, or institution
(Bernays, 1955, p. 3). In The
Engineering of Consent, Bernays (1955) lays out the framework for understanding the public and developing a public relations campaign. Bernays (1955) claims that the key to a successful public
relations campaign is adjustment of the campaign to the attitudes of various groups in society, gathering information to effectively express an idea, and finally, utilizing persuasion to
influence the public opinion in the intended direction.
Bernays’ theories represent a step forward for mass communication theory. They move away from more typical presentations of hit-or-miss propaganda,
and move toward a deeper
understanding of the public, and the necessity of attention-generating propaganda in influencing public opinion (Bernays, 1955, p.22). Bernays (1955) himself made a statement regarding his
phrase, the engineering of consent.
He said, Engineering implies planning. And it is careful planning more than anything else that distinguishes modern public
relations from old-time hit or miss publicity and propaganda
(Bernays, 1955, p.22). Furthermore, Bernays’ theories also represent a different view of the formation of public opinion. In
opposition to Lippmann, who views the public as being easily manipulated, Bernays cautions against this. He claims, The public is not an amorphous mass which can be molded at will or dictated to
(Bernays, 1928, p. 66). Instead,
Bernays (1928) offers the idea that in attempting to influence the public, a business must …study what terms the partnership can be made amicable and mutually beneficial. It must
explain itself, its aims, its objectives, to the public in terms which the public can understand and is willing to accept
(p. 66).
Bernays elaborates on these ideas in Public Relations (1952). Rather than merely attempting to manipulate the public through propaganda, Bernays presents public relations as a tool that can be
used to combine the ideas of the public and the persuader. “The objective-minded public relations man helps his client adjust to the contemporary situation, or helps the public adjust to it”
(Bernays, 1952, p. 9). Bernays view of the public is softer than that of Lippmann, as he recognizes the power of society, but still also claims that manipulation of the public is possible.
Bernays (1952) writes of the benefits of public relations, To citizens in general, public relations is important because it helps them to understand the society of which we are all
a part, to know and evaluate the viewpoint of others, to exert leadership in modifying conditions that affects us, to evaluate efforts being made by others, and to persuade or suggest courses
of action
(p. 10). Under this framework, while manipulation of the public is still possible, it is not in such blatant ignorance of the public opinion. Theorists such as Lippmann and Ellul
tended to disagree with this point.
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