AFter reading that piece, and I'm going to make the leap and give it credibility, I tend to agree with Upstater's opinion, that in the culture of Penn State, Joe paterno wasn't really that powerful on a day to day basis, by any means.
But he did have the icon status, that the true dictatorship couldn't ever attain. THe same leadership structure, approached Paterno in 2004, (i think 04), cornered him in his kitchen, and told them that they wanted thim to retire. Paterno said no, and those powerful people that could do whatever they wanted otherwise, walked out with their tails between their legs.
I guarantee that every dictatorship structure (every president and his support structure) prior to Spanier, going back to 1970, had the same relationship with Paterno.
paterno, to me, was clearly the only control mechanism for the actions of the president of PSU, as laid out in the university's own bylaws, by Novak's article. And paterno's control and influence, wasn't part of the books, he only had it because of his icon status with the football program.
AFter reading that article, if You're to take it as accurate, the president of PSU, is one of the most powerful single positions of influence over other people in teh entire country. That position appears to be more influential than the governor of the state, and Spanier, indeed had connections into the federal government.
And there is no method of establishing acccountability for the actions of the person in that seat, especially now that Joe Paterno is dead.