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INFORMATION to USERS This Manuscript Has Been Reproduced INFORMATION TO USERS This manuscript has been reproduced from the microfilm master. UMI films the text directly from the original or copy submitted. Thus, some thesis and dissertation copies are in typewriter face, while others may be from arty type of computer printer. Hie quality of this reproduction is dependent upon the quality o f the copy submitted. Broken or indistinct print, colored or poor quality illustrations and photographs, print bleedthrough, substandard margins, and improper alignment can adversely affect reproduction. In the unlikely event that the author did not send UMI 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. Oversize materials (e.g, maps, drawings, charts) are reproduced by sectioning the original, beginning at the upper left-hand comer and continuing from left to right in equal sections with small overlaps. Each original is also photographed in one exposure and is included in reduced form at the bade of the book. Photographs included in the original manuscript have been reproduced xerographically in this copy. Higher quality 6" x 9" black and white photographic prints are available for any photographs or illustrations appearing in this copy for an additional charge. Contact UMI directly to order. A Beil & Howell information Company 300 Nortn Zeetj Road. Ann Arbor. Ml 48106-1346 USA 313/761-4700 800/521-0600 Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. ADMINISTRATIVE BREAKDOWN: CAUSAL ATTRIBUTIONS IN GOVERNMENTAL INVESTIGATIVE COMMISSION REPORTS by Harald Sverdrup Koht submitted to the Faculty of School of Public Affairs of The American University in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy in Public Administration Signatures of the Committee: Chair: Dean Date 1994 The American University Washington, DC 20016 THE UEBICAN UNIVERSITY LIBR1RY Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. UMI Number: 9539450 Copyright 1994 by Koht, Haraid Sverdrup All rights reserved. UMI Microform 9539450 Copyright 1995, by UMI Company. All rights reserved. This microform edition is protected against unauthorized copying under Title 17, United States Code. UMI 300 North Zeeb Road Ann Arbor, MI 48103 Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. © COPYRIGHT by Harald Sverdrup Koht 1994 ALL RIGHTS RESERVED Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. To Grete and Paul Koht Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Dead scandals form good subjects for dissection. —Lord Byron, Don Juan Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. ADMINISTRATIVE BREAKDOWN: CAUSAL ATTRIBUTIONS IN GOVERNMENTAL INVESTIGATIVE COMMISSION REPORTS by Harald Sverdrup Koht ABSTRACT This dissertation compares governmental investigative commission reports about disasters across two national cultures to assess explanations for changes in the evaluation of administrative failures. A review of selected commission reports from Norway and the United States suggests that a pattern of blaming individuals for disasters has over time been replaced by a tendency toward faulting oiganizational systems. A central question is whether this trend is related to changes in the character of the investi­ gated events or to changes in the conceptual framework used by commission members. The research examines three alternative explanations for the adoption of the system view: (1) changes in the professional composition of commissions, (2) the emergence of modem public administration theory, and (3) the dominant political culture at the time. Propositions drawn from general systems theory, cultural theory, and attribution theory are applied to the commission reports. ii Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Data for the dissertation consists of sixty-four commission reports produced by the governments of Norway and the United States. Characteristics of the commissions, their members, and findings are categorized and examined using univariate and bivariate analysis. The analysis of American reports shows that attributing administrative failure to system errors became prominent at the beginning of the twentieth century concurrent with the influence of the Progressive movement in politics as well as the emergence of public administration as a subdiscipline of political science. The maintenance of the system view in commission reports of the modem era is shown to be related to the professional composition of the commissions. The analysis shows that in Norway the trend toward system blame manifested itself much later in this century with a reduction of the influence of lawyers and the inclusion of other professions as investigative commission members from the 1960s and onward. The work of investigative commissions reflects the ambiguities in the administration of complex societies. The current emphasis on system blame weakens elementary principles of personal and political accountability. Instead modern investigative commissions primarily serve as policy evaluators and initiators of system change. in Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. PREFACE Translations from the Norwegian have been made by the author unless indicated otherwise. In translating the names of Norwegian institutions, I have relied on Patrick Chaffey, ed. (1988), Norsk-engelsk administrativ ordbok [Norwegian-English Administrative Glossary] in addition to W.A. Kirkeby (1986), Norsk-engelsk ordbok. Stor ulgave [Norwegian-English Dictionary. Large Edition). In the chapters on Norwegian reports references to the "government" are used interchangeably with the "cabinet" This dissertation has been made possible with the generous administrative and economic support of the following institutions: the Norwegian College of Public Administration and Social Work (NKSH), the Regional Board of Higher Education in Oslo and Akershus (RHOA), the Nansen Fund, and the Norwegian section of the Nordic Public Administration Association. The author wants to thank Tor-Inge Dovland, former rector of NKSH, for his encouragement. Anders Bratholm, Arne Fliflet, and Gerd Hagen are owed thanks for providing information and material on Norwegian investigations. My colleague Lawrence Young has been of great assistance in proof-reading the final copy of the dissertation. iv Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. CONTENTS ABSTRACT...................................................................................................... ii PREFACE........................................................................................................ iv TABLES............................................................................................................. xv FIGURES..........................................................................................................xviii ABBREVIATIONS............................................................................................. xix Chapter 1. INTRODUCTION ....................................................................................... 1 Research Problem ................................................................................. 1 Research D esign................................................................................... 7 Propositions and Hypotheses................................................... 7 Data Set ..................................................................................... 9 Methodology ............................................................................. 10 Previous Studies................................................................................... 12 Summary .............................................................................................. 15 2. EARLY AMERICAN REPORTS 1838-1878 ................................................. 19 Composition and W ork........................................................................ 22 v Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. The Late Jacksonian Era (1838-44)............................................. 22 Civil War and Reconstruction Era (1563-75) ............................ 24 Methodology.......................................................................................... 26 The Late Jacksonian Era (1838-44)............................................. 27 Civil War and Reconstruction (1863-78) .................................. 28 Cause and Circumstance...................................................................... 30 The Late Jacksonian Era (1838-44)............................................. 31 The Civil War and Reconstruction (1863-78) ............................ 33 Civil W a r........................................................................ 33 Reconstruction................................................................ 37 Frontier Turbulence ......................................................
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