The method of shaping public opinion contained in the photograph of an empty police cruiser accompanied by an article entitled "Citizens Horrified by Thoughtless Cuts in Policy Funding" is the method of word choice.
Pathos
A rhetorical strategy that uses emotion to generate an emotional appeal in the target audience. Through the choice of words that translate sympathy, emotion, anger, or call to action, Pathos seeks the audience's empathy for the situation exposed in a text.
Therefore, the choice of words in the article is used to generate public commotion, such as the use of the word "appalled" that generates emotional appeal and is capable of influencing the readers' opinion.
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