I'd say he's both. He's entirely complicit in all of this. He's looking after his own needs which means pleasing the majority of the owners. He's a bad person just like the 32 corrupt owners.
I believe all owners sign an agreement that they are not to speak ill of each other or the NFL and that Kraft would be looking at a major costly suit if he went nuclear on them
That being said I think Kraft laid down and played dead - the first time out of a reasonable hope that just giving up some "blood" to the other jealous owners in the form of draft picks would end DeflateGate with hopefully all charges against Brady dropped
At this point, given how corrupt we've seen the NFL to be, I believe he can and should be doing more as we speak
As to who is behind it - while I like to put the onus on the owners, who don't want the spotlight, it's really Goodell in my mind. The owners don't want to waste time running the league - they've got their hands full with their teams. While there's no question that a handful of owners jealous of the Patriots success wanted to hamstring the Pats to open the door for their supposed Super Bowl run, and Goodell complied to curry favor, Goodell is the one that can and should have stopped this charade long ago
Quite frankly he's stupid, incompetent, crazy, and dangerous to the game of football
I think of him as the Kim Jong-Un of sports comissioners
It's humilating to have him representing this sport - and even more humiliating to see how many stupid NFL fans there are that believe Goodell even when he gets caught in lie after lie
For our purposes we should focus attention on the corrupt owners in order to get rid of Goodell. They do NOT want people focusing on their role in this.