Institutions which shape public opinion serve as a second instrument for legitimizing the position of elites.  Through the use of a combination of inducements and threats, educational and religious institutions, together with the mass media and other molders of public opinion, can usually be transformed into instruments of propaganda for the new regime (1966, p.53).

Consensus and coercion are more closely related than those who preach the Janus-headed character of society would have us believe.  Coercive power can often be used to create a new consensus (1966, p.53).