The Dynamics of Alberta Newstart an Analysis of a Complex Social Organization
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THE DYNAMICS OF ALBERTA NEWSTART AN ANALYSIS OF A COMPLEX SOCIAL ORGANIZATION by Gordon J. Rancier Thesis presented to the School of Graduate Studies, University of Ottawa as partial fulfillment of the requirements for the degree Doctor of Philosophy \>B'Ba0. L.WIAR*5 j> Ottawa, Ontario, 1972 Rancier, Ottawa 1972. UMI Number: DC53524 INFORMATION TO USERS The quality of this reproduction is dependent upon the quality of the copy submitted. Broken or indistinct print, colored or poor quality illustrations and photographs, print bleed-through, substandard margins, and improper alignment can adversely affect reproduction. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if unauthorized copyright material had to be removed, a note will indicate the deletion. UMI UMI Microform DC53524 Copyright 2011 by ProQuest LLC All rights reserved. This microform edition is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 ACKNOWLEDGEMENTS This thesis was prepared under the supervision of Robert O'Reilly, Ph.D., of the Faculty of Education of the University of Ottawa. The writer appreciates his assistance, guidance and encouragement as well that of Sister Mary Mulcahy, Ph.D., and Harry Pullen, D.Ed. In addition he acknowledges constructive criticism from other professors and graduate students. The writer is indebted to Alberta NewStart Inc. for permission to do the study, and to Mr. J. W. Shields and his staff for providing basic information and other assistance. He is also indebted to the Department of Regional Economic Expansion, Ottawa, particularly Dr. G. T. Page for his providing of information, and Mr- J. P. Mitchell of the Department of Education, Edmonton for similar assistance. Finally, the writer wishes to acknowledge the contribution of his wife and family, whose interest and encouragement were a continuous source of inspiration. CURRICULUM STUDIORUM Gordon J. Rancier was born May 23, 1928, in Killam, Alberta. He received his Bachelor of Education Degree in Industrial Arts from the University of Alberta in 1954. He received the Master of Education Degree from the same University in 1962. The title of his thesis was "Case Studies of High School Drop-outs in the Acadia School Division". TABLE OF CONTENTS Chapter Page INTRODUCTION viii I THE CANADA NEWSTART PROGRAM , 1 1. Historical Background 1 2. Rationale 2 3. Objectives 3 4. Organizational Structure 4 5. Implementation 8 6. Alberta NewStart 9 II ORGANIZATIONAL ANALYSIS 10 1. Models of Organizational Analysis 12 2. Bakke's Framework of Bonds of Organization 15 3. The Bonds of Organization 17 III DESIGN OF THE STUDY 20 1. Statement of the Problem 20 2. Research Procedure and Collection of Data 23 3. Assumptions 25 4. Delimitations 26 5. Limitations 26 IV LEGITIMATION 29 1. The Issue 29 2. Early Objectives of Alberta NewStart Inc. 33 3. The Nature of Legitimation 39 4. The Function Performed or Objective of Legitimation 42 5. Instruments Utilized in Legitimation 42 6. Helper Processes Utilized in Legitimation 71 7. Homeostatic Processes Utilized in Legitimation 106 8. Bonds of Organization 121 9. Conflict Between Activities 122 10. Implications for Further Research 124 11. Effectiveness, Ineffectiveness and Inefficiency 127 12. Summary 133 V EVALUATION OF PROJECTS 136 1. The Issue 137 2. The Nature of Evaluation of Projects 139 3. The Function Performed or Objective of Evaluation of Projects 140 4. Instruments Used in Evaluation of Projects 142 5. Helper Processes Utilized in Evaluation of Projects 143 Chapter Page V 6. Homeostatic Activities in Evaluation of Projects 149 7. Bonds of Organization 152 8. Conflict 153 9. Implications for Further Research 154 10. Effectiveness, Ineffectiveness and Inefficiency 158 11. Summary 160 VI SUMMARY AND CONCLUSIONS 162 1. Summary Observations 175 2. Conclusion 176 ANNOTATED BIBLIOGRAPHY 178 SUPPLEMENTARY BIBLIOGRAPHY 180 APPENDIX 1. The History of the Canada NewStart Program 185 2. Bakke's Symptoms of Organizational Effectiveness/ Ineffectiveness and Inefficiency in Carrying out the Activity T 201 3. Bakke' s Framework of Bonds of Organization 205 4. The Lac La Biche Native Sit-in 207 5. An Abstract of An Application of Community Typology to Social Science Research 222 6. Alberta Vocational Centre, Ft. McMurray, and the Future -or- The Ft. McMurray Polytechnical Institute -or- The Tar Sands Community College in 2,000 A.D. A 25 Year Projection 225 7. Evaluation of Staff Training Session 235 8. Perceptions of the Impact of Alberta NewStart Inc. on the Kikino Metis Colony 260 9. Samples of Symbols 289 10. Correspondence - Page/Shields 292 11. Performance Appraisal Report 303 12. Alberta NewStart Evaluation 311 APPENDIX Page 13. Framework of Criteria for Evaluating the Operation of the Problem-Solving Process (E. Wight Bakke) 332 14. Abstracts of Reports 339 15. Aumack - An Abstract of Proposals to Research Directors for Evaluation 367 16. An Abstract of the Academic Program in Alberta NewStart Inc 370 17. ABSTRACT OF The Dynamics of Alberta NewStart Inc. - An Analysis of a Complex Social Organization 374 LIST OF TABLES Table Page I "Whites" and "Natives" Employed Full-Time on Randomly Selected Dates by Alberta NewStart 1968-71 58 II Alberta NewStart - Inventory at Cost, December 31, 1970... 65 III Alberta NewStart - 1970 Consolidated 66 IV Real or Implied Content of the Organizational Charter of Alberta NewStart 1967-70 76 V Item Analysis of Core Staff Meeting Minutes 82 VI Item Analysis of Board of Directors Meeting Minutes 83 VII Steps in Legitimation of Alberta NewStart 86 VIII Integration of Activity Systems as Perceived in Analyzing the Issues "Legitimation" and "Evaluation of Projects" In Alberta NewStart and Symptoms of Effectiveness/In effectiveness and Inefficiency as Perceived in Analyzing the Issues "Legitimation" and "Evaluation of Projects" in Alberta NewStart 165 LIST OF FIGURES Figure Page 1. Location of Alberta NewStart 41 2. Organization Structure of Alberta NewStart - Lac La Biche Office 44 3. Organization Structure of Alberta NewStart - Lac La Biche Training Centre 45 4a. Organization Structure of Alberta NewStart - Fort McMurray Adult Vocational Centre 46 4b. Organization Structure of Alberta NewStart - Fort McMurray Adult Vocational Centre 47 4c. Organization Structure of Alberta NewStart - Fort McMurray Adult Vocational Centre 48 5. Organization Structure of Alberta NewStart - Kikino Mobile Centre 49 6. Organization Structure of Alberta NewStart - Janvier Mobile Centre 50 7. Organization Structure of Alberta NewStart - Fort Chipewyan Mobile Centre 51 8. Alberta NewStart Work Flow Chart 79 INTRODUCTION The purpose of this study was to analyze and describe the dynamics of Alberta NewStart as a complex formal social organization. Using Bakke's concept of the social organization as the theoretical framework for the study, the writer selected the critical issues of 1) legitimation, and 2) evaluation of projects, to trace activities these issues present within the organizational behaviour of Alberta NewStart in order to determine the Bonds of Organization. A systematic study was made based on the variables suggested in Bakke's model. Legitimation was chosen as important because NewStart Corpora tions have had to move into backward areas of provinces, establish them selves both physically and technically, become highly visible and recog nized by potential clients, carry out an action research program and be prepared to dissolve after a short life span. Evaluation of projects was chosen as an important issue because Alberta NewStart, in its action research program, had to justify its existence and perpetuation on findings from various projects and com ponents . The study of both of these issues brings into better focus not only the organizational behaviour of this unique quasi non-governmental organization but also some of the major findings with respect to an organization that, at first appearance, seems to have been able to bring about behavioural change in a sector of Canada's disadvantaged INTRODUCTION ix population. Evaluation of projects brings out some of these findings. The procedure used was an analysis of relevant documentary evidence from Alberta NewStart supplemented by interviews with selected officers, board members, client/trainees, and involved provincial/fed eral government officials. Alberta NewStart is a complex social organization designed to carry on action research with disadvantaged people, most of whom are Indian and Metis residing in the rural northeast part of Alberta. Its operation budget has been approximately one million dollars per year. The headquarters is at Lac La Biche, Alberta and experimental training facilities are centred in Lac La Biche, Fort McMurray, Kikino, Janvier, and Fort Chipewyan. This study examined this organization closely to describe it and determine which of the five activity bonds identified by Bakke are essential to the functioning of a complex organization such as Alberta NewStart. The five bonds are: 1. Identification Bonds 2. Perpetuation Bonds 3. Work-flow Bonds 4. Control Bonds 5. Homeostatic Bonds By following the critical issues of legitimation and evaluation of projects through the Identification, Perpetuation, Work-flow, Con trol, and Homeostatic Activities it was possible to determine symptoms of organizational effectiveness/ineffectiveness and inefficiency according to the Bakke