"It is asked whether, in fact, the leader makes propaganda, or whether propaganda makes the leader. There is a widespread impression that a good press agent can puff up a nobody into a great man. The answer is the same as that made to the old query as to whether the newspaper makes public opinion or whether public opinion makes the newspaper. There has to be fertile ground for the leader and the idea to fall on. But the leader also has to have some vital seed to sow. To use another figure, a mutual need has to exist before either can become positively effective. Propaganda is of no use to the politician unless he has something to say which the public, consciously or unconsciously, wants to hear."
Edward L. Bernays