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Propaganda and PersuasionFifth EditionGarth S. JowettUniversity of HoustonVictoria O’DonnellMontana State UniversitySAGELos Angeles, London, New Delhi, Singapore, Washington DC

To Ada and May, who lived through two world wars and who, inanother time and place, took me to the movies.Garth S. JowettI continue to dedicate this book to the memory of my mother,Helen A. O’Donnell, a very special woman.Victoria O’Donnell

FOR INFORMATION:SAGE Publications, Inc.2455 Teller RoadThousand Oaks, California 91320E-mail: order@sagepub.comSAGE Publications Ltd.Copyright 2012 by SAGE Publications, Inc.All rights reserved. No part of this book maybe reproduced or utilized in any form or byany means, electronic or mechanical, includingphotocopying, recording, or by any informationstorage and retrieval system, without permissionin writing from the publisher.1 Oliver’s Yard55 City RoadLondon EC1Y 1SPPrinted in the United States of AmericaUnited KingdomLibrary of Congress Cataloging-in-Publication DataSAGE Publications India Pvt. Ltd.Propaganda and persuasion/edited by Garth S. Jowett,Victoria O'Donnell.—5th ed.B 1/I 1 Mohan Cooperative Industrial AreaMathura Road, New Delhi 110 044IndiaSAGE Publications Asia-Pacific Pte. Ltd.33 Pekin Street #02-01Far East Squarep. cm.Rev. ed. of: Propaganda and persuasion / Garth S. Jowettand Victoria O'Donnell. 4th ed. 2006.Includes bibliographical references and index.ISBN 978-1-4129-7782-1 (pbk.)Singapore 0487631. Propaganda. 2. Persuasion (Psychology)I. O’Donnell, Victoria. II. Jowett, Garth. Propagandaand persuasion.Executive Editor : Diane McDanielHM1231.J68 2012 303.3′75—dc22 2010045885Associate Editor :This book is printed on acid-free paper.Editorial Assistant :Production Editor : Astrid VirdingCopy Editor : Terri Lee PaulsenPermissions Editor :Typesetter : C&M Digitals (P) Ltd.Proofreader : Helen SalmonIndexer : Helen SalmonCover Designer : Helen SalmonMarketing Manager :12 13 14 15 16 10 9 8 7 6 5 4 3 2 1

Brief ContentsPreface to the First EditionxiiiPreface to the Second EditionxviiPreface to the Third EditionxxiPreface to the Fourth EditionxxiiiPreface to the Fifth EditionAcknowledgments1. What Is Propaganda, and How Does ItDiffer From Persuasion?xxvxxix12. Propaganda Through the Ages513. Propaganda Institutionalized974. Propaganda and Persuasion Examined1655. Propaganda and Psychological Warfare2116. How to Analyze Propaganda2897. Propaganda in Action: Four Case Studies3078. How Propaganda Works in Modern Society359References369Author Index000Subject Index000About the Authors395

Detailed ContentsPreface to the First EditionxiiiPreface to the Second EditionxviiPreface to the Third EditionxxiPreface to the Fourth EditionxxiiiPreface to the Fifth EditionAcknowledgments1. What Is Propaganda, and How Does ItDiffer From Persuasion?Propaganda Defined  2Jowett and O’Donnell’s Definition of Propaganda   6Forms of Propaganda   17Subpropaganda/Facilitative Communication  27A Model of Propaganda   29Communication Defined 30Propaganda and Information 31Propaganda and Persuasion   32Persuasion Defined 32Persuasion Is Transactional 33Responses to Persuasion 33Beliefs 35Values 35Attitudes 36Behavior 37Group Norms 37Resonance 38Persuasion Seeks Voluntary Change 38Misleading and Manipulating an Audience 39xxvxxix1

Rhetorical Background and the Ethics of Persuasion   39Rhetoric and Propaganda   43Propaganda as a Form of Communication   44Concealed Purpose 45Concealed Identity 45Control of Information Flow 45The Management of Public Opinion 47The Manipulation of Behavior 48Overview of the Book   492. Propaganda Through the AgesAncient Greece and Alexander the Great   53Alexander the Great 54Imperial Rome  56Propaganda and Religion   58The Rise of Christianity   63The Crusades  65The Reformation and Counter-Reformation   69The Counter-Reformation 74The Emergence of Propaganda   76The American Revolution   79The French Revolution and Napoleon   88Propaganda in the 19th Century:The American Civil War   94513. Propaganda InstitutionalizedThe New Audience   98The Emergence of Mass Society   101The Emergence of the Propaganda Critique   102The New Media   106Print Media 106Movies 110Radio 128U.S. Government Propaganda Agencies 137Radio and TV Marti 142Television 143Advertising: The Ubiquitous Propaganda   151Institutional Propaganda 152Internet Advertising 153The Science of Advertising 153The Role of Advertising 156Propaganda and the Internet: The Power of Rumor   15897

4. Propaganda and Persuasion ExaminedThe Modern Study of Propaganda and Persuasion   165Propaganda in World War I 166The Aftermath of World War I and the GrowingConcern About Propaganda 167The Social Sciences and the Study of Propaganda 169Research in Propaganda and Persuasion   170The Study of Attitudes 170World War II and Research inCommunication 171The Yale Studies 176Consistency Theories 177Theory of Exposure Learning 179Social Judgment Theory 179Resistance to Persuasion 180McGuire’s Model of Persuasion 180Diffusion of Innovations 181Recent Research on Attitudes 181Research on Persuasion and Behavior 182The Influence of the Media   186Violence and the Media 186Cultivation Studies 188Prosocial Behaviors and Television 189The Agenda-Setting Function of the Media 189Uses and Gratifications Theory 191Uses and Dependency Theory 192The Internet 192Limitations of Effects Research 193Cultural Studies 194Collective Memory Studies 197Summary  208Generalizations About Propaganda andPersuasion Effects  2081655. Propaganda and Psychological WarfareWorld War I and the Fear of Propaganda   216British Propaganda 217German Propaganda 219American Propaganda 222Atrocity Propaganda 225Reaction to World War I Propaganda 227211

The Interwar Years, 1920 to 1939   228The Emergence of Communist Propaganda 229American Isolationism 232Fr. Charles Coughlin, S.J. 234The Institute for Propaganda Analysis 236Hitler and Nazi Propaganda 239World War II   252Post–World War II Conflicts   255The Korean War, 1950 to 1953 257The Vietnam War 263The 1991 Gulf War: Mobilization of World Public Opinion   270Using Metaphor and Imagery in the Gulf War 274The “Nayirah” Incident 277The Aftermath (2005): The Invasion ofAfghanistan and Iraq 278The Cold War, 1945 to 1998   280Public Diplomacy  2876. How to Analyze Propaganda289The Ideology and Purpose of the Propaganda Campaign   291The Context in Which the Propaganda Occurs   292Identification of the Propagandist   293The Structure of the Propaganda Organization   293The Target Audience   295Media Utilization Techniques   296Special Techniques to Maximize Effect   299Predispositions of the Audience: Creating Resonance 299Source Credibility 300Opinion Leaders 300Face-to-Face Contact 301Group Norms 301Reward and Punishment 301Monopoly of the Communication Source 302Visual Symbols of Power 302Language Usage 303Music as Propaganda 304Arousal of Emotions 304Audience Reaction to Various Techniques   305Counterpropaganda  305Effects and Evaluation   306

7. Propaganda in Action: Four Case Studies307Women and War: Work, Housing, and Child Care   308The Context, Ideology, and Purpose of thePropaganda Campaign 310Identification of the Propagandist and theStructure of the Propaganda Organization 312The Target Audience 315Media Utilization Techniques 316Special Techniques to Maximize Effect 316Audience Reaction to Various Techniques 317Effects and Evaluation 318Smoking and Health: Corporate PropagandaVersus Public Safety   318The Ideology and Purpose of the Propaganda Campaign 319The Context in Which the Propaganda Occurs 320Identification of the Propagandist 325The Structure of the Propaganda Organization 326The Target Audience 327Media Utilization Techniques 329Special Techniques to Maximize Effects 331Audience Reaction to Various Techniques 332Counterpropaganda 333Effects and Evaluation 333The Aftermath (2005): The Controversy Continues 336The Battle Continues 339Big Pharma: Marketing Disease and Drugs   340Ideology and Purpose of the Propaganda Campaign 341The Context in Which the Propaganda Occurs:The Medicalization of Society 342Identification of the Propagandist and Structureof the Organizations 343The Target Audience 343Media Utilization Techniques 344Special Techniques to Maximize Effects 344Counterpropaganda 352Effects and Evaluation 353Pundits for Hire: The Pentagon Propaganda Machine   353The Propagandists 354The Audience 355

The Various Techniques Employed 355Counterpropaganda 356The Consequences 3578. How Propaganda Works in Modern SocietyA Model of the Process of Propaganda   359Social-Historical Context 360Cultural Rim 361The Process of Propaganda   363The Institution 363Propaganda Agents 363Media Methods 363The Social Network 365The Public 365Generalizations  366359References369Author Index000Subject Index000About the Authors395

Preface to the First EditionThis book grew out of the discovery that both authors were interested inthe study of propaganda; however, we come to this interest from theperspectives of different academic disciplines: Professor Jowett from that ofcommunication history and Professor O’Donnell from persuasion and rhetoric. To any discerning reader, this will make the primary authorship of theindividual chapters obvious, but to keep the record straight, ProfessorJowett wrote Chapters 2, 3, and 5; Professor O’Donnell wrote Chapters 1,4, and 6. Chapters 7 and 8 are the result of the joint exchange of ideas. Wewere both intrigued with how poorly propaganda had fared in recentyears as part of general communication studies, and further informal investigations revealed that few students were being given the opportunity orencouragement to examine this subject in a systematic manner. When wequestioned our colleagues, we were assured that propaganda as a topicwithin the communication curriculum still held great interest but thatbecause the subject was so vast in scope, it was difficult to cover it in anything but the most cursory way. This problem was compounded by the lackof suitable classroom materials designed to allow a systematic treatment,without forcing the student to consult a wide array of disparate sources.This book was written with a view to solving some of these problems bypresenting an overview of the history of propaganda, as well as a review ofthe social scientific research on its effects and an examination of its applications. We have tried to restrict the narrative so that it will serve as a guideto further reading on specific issues rather than be encyclopedic in scope.In the past 70 years, many hundreds of books have dealt with variousaspects of propaganda; an almost equal number of books and journal articles have dealt with persuasion. Very often, those two subjects have come tobe regarded as synonymous. With the growth in the study of persuasion inthe last two decades, propaganda has received scant attention as a subject inits own right within the spectrum of communication studies. With thexiii

xiv——Propaganda and Persuasionadvent of a whole range of new communication technologies and the imminent promise of a myriad of channels for disseminating information, theopportunities for increased propaganda activities are obvious. For this reason, we believe that the time has come to revive the study of propaganda asa separate topic and of great significance at this point in time. This book isoffered as a modest treatment of a very old subject, and we trust that thereader will be sympathetic to the fact that we could include neither a detailedhistory of propaganda nor a lengthy review of all the research ever done toevaluate its effectiveness in specific campaigns. Our aim was to provide thereader with a challenge to become involved in the fascinating world of propaganda in the hope that it would stimulate further research discussion. Weboth owe an intellectual debt to T. H. Qualter (1962), whose excellent slimvolume Propaganda and Psychological Warfare was all that was availablefor a long time and whose recent detailed monograph, Opinion Control inDemocracies (1985), is a landmark study but unfortunately was onlyreceived after this volume had been sent to the printer. Other than Qualterand the important work by David L. Altheide and John M. Johnson,Bureaucratic Propaganda (1980); the three-volume compilation of important articles by Harold D. Lasswell, Daniel Lerner, and Hans Speier,Propaganda and Communication in World History (1979); and Richard A.Nelson’s detailed bibliography on the subject, A Chronology and Glossaryof Propaganda in the United States (1996). There have been very few systematic examinations of propaganda in recent years, and it is the intentionthat this book fill some of the gaps in the current literature.What may appear to the reader to be a relatively short book is, in fact,the result of several years of reviewing a vast literature, which unfortunatelyis reflected only in a minor way in the bibliography. We chose to present inthis book both a digest of important and classic ideas on the subject and ouroriginal ideas. It has been our goal to produce a work that will enable students of modern-day propaganda to recognize, analyze, and evaluate propaganda in their midst while giving them an appreciation of its history anddevelopment. Although respectful of the work of Jacques Ellul, we could notincorporate many of his ideas within the text of the book. We aimed toclarify and distinguish propaganda as a form of communication but foundthat we could not do so with Ellul’s view of the pervasiveness of propaganda. Also, advertising, though presented as the most prevalent form ofpropaganda in the United States, does not receive extensive treatment. Wethought that advertising as propaganda is such a complex and extensivesubject that it required an entire series of studies in itself and that such atreatment was beyond the scope of this book.

Preface to the First Edition——xvWriting a book should always be a learning experience, and the booktaught us that we all have a great deal to learn about the role and practiceof propaganda in our everyday society. We have also learned that in ordernot to fear propaganda, we must first understand it.—Garth S. JowettHouston, Texas—Victoria O’DonnellDenton, Texas

Preface to the Second EditionIn the 6 years since the first edition of this book appeared, we have beengratified by the increased interest in the field of propaganda studies.Although it would be premature to declare that the study of propaganda isnow an accepted part of all communication studies or political science programs, nevertheless, indications are that more and more such courses areappearing. As time separates the study of propaganda from the politicalideologies that hovered over academe in the Cold War period, there is a clearrevival of interest in the important role of propaganda in many aspects ofmodern life, not necessarily related to international intrigue and militarycampaigns.The publication of the first edition of this book proved to be an importantdevelopment in both our academic careers. We presented joint workshopson teaching propaganda studies as part of the communication curriculumfor the Speech Communication Association, which were well attended byenthusiastic participants and from whom we learned as much as we taught.Several things were made very clear in these workshops, as well as from correspondence with others: First, it is very difficult to get anyone to agree onan exact definition of propaganda, although the definition offered in thisbook is now (thankfully) widely cited; second, it is a formidable task to getinstructors and students to view propaganda as a “neutral” technique,which only in its specific application becomes either “positive” or “negative”; and third, this subject is guaranteed to raise emotions in the classroomno matter how it is taught. Also, we have discovered that, in the classroom,only with a determined effort can discussions of propaganda be removedfrom an association with war (and even more specifically, Nazi propagandaactivities). This is a testament to the especially negative connotation the termpropaganda has acquired in our society and to the persistent and somewhattroublesome strength of Nazi mythology and imagery (this last fact is a topicthat requires its own full-length treatment). It is one of our stated intentionsthat the approach outlined in this book, which provides a wider and morexvii

xviii——Propaganda and Persuasionsystematic examination of propaganda throughout history and in the modern world, will help enlarge the dimension of the propaganda discoursebeyond these limiting subjects.In the past 6 years, although the number of books dealing with propagandain a systematic manner has not been as large as we would like to have seen,several publications deserve special mention. Ted Smith III edited a splendidcollection of original essays, Propaganda: A Pluralistic Perspective (1989),that contributes to opening the discussion of what encompasses the discourseof propagandistic activities. A recent book by Anthony Pratkanis and ElliotAronson, Age of Propaganda: The Everyday Use and Abuse of Persuasion(2001), is admirable in its sociopsychological examination of many aspects ofpropaganda in contemporary society. Also, the work of J. Michael Sproule ina series of articles on the history of propaganda analysis in the United Stateshas significantly reshaped our understanding of this topic.Several books that have contributed to the reevaluation of propagandaare Maureen Honey, Creating Rosie the Riveter: Class, Gender, andPropaganda During World War II (1984); Richard W. Steele, Propaganda inan Open Society: The Roosevelt Administration and the Media, 1933–1941(1985); Benjamin Ginsberg, The Captive Public: How Mass OpinionPromotes State Power (1986); Shearon Lowery and Melvin DeFleur, Milestones in Mass Communication Research (1988); Philip G. Zimbardo andMichael Leippe, The Psychology of Attitude Change and Social Influence(1991); and Holly Cowan Shulman, The Voice of America: Propaganda andDemocracy, 1941–1945 (1990). These and other specialized studies are collectively helping give shape to the role and dimensions of propaganda inAmerican society.We have welcomed the opportunity to write a second edition of this book,as much for the chance to enlarge on certain topics as to try to keep up withcurrent events. The few years since the first edition have been witness toseveral important historical events that have contributed to the appreciationof propaganda in modern society. Perhaps the decade will be best remembered for the sudden demise of communism in Eastern Europe.The first edition was written during a period when the USSR was still “theEvil Empire” described by Ronald Reagan. It was a strange experience in thisedition to have to rewrite all the descriptions of Soviet propaganda activitiesin the past tense. Even as this book is going to press, we still do not knowwhat types of propaganda may emerge from the region. (Today’s newspapers,January 3, 1992, are full of stories about the dismantling and replacement ofthe previous Soviet propaganda symbols, such as the giant statues of Leninand Marx.) The fact is that we just have no clear idea of what type of propaganda will now dominate the international scene. We can only be sure that

Preface to the Second Edition——xixthe battle for the “hearts and minds” of the world’s population will continueand that the decade of the ’90s might see the emergence of an internationalpolarization more along economic than political lines.The differences between the “have” and “have-not” nations will becomemore obvious, and this will generate its own type of propaganda battle. Thisbook has been greatly enlarged in certain areas. Much historical materialwas added, including a case study of the Crusades, the demagoguery ofHuey Long and Father Charles Coughlin, and the specific propagandaactivities of the Korean and Vietnam conflicts. The Persian Gulf

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