I NATL INST. OF STAND 4 TECH

NBSIR 73-185 AlllDt. 7S1171

NIST

publications REFERENCE

Standardization and Measurement

Services in Korea

A Report of a National Bureau of Standards/Agency for International

Development Survey Conducted June 19-30, 1972

A Report of Survey Conducted jointly by the National Bureau of Standards

and the Agency for International Development.

June 19-30, 1972
i
NBSIR 73-185

STANDARDIZATION AND MEASUREMENT

SERVICES IN KOREA

(A Report of a National Bureau of Standards/Agency for International

Development Survey June 19-30, 1972)

Survey Team Director: Dr. Sang Keun Chun, Director, National

Science Museum, Korea

Survey Team Members: Thomas D. Coyle, National Bureau of Standards, USA

Ronald K. Eby, National Bureau of Standards, USA

Raul Estrada, Ecuadorean Institute of Standards, Ecuador

Young Pyo Hong, Central Bureau of Weights and Measures, Korea

Velid Isfendiyar, Turkish Standards Institution, Turkey

Byong Sik Jeon, Bureau of Standards, Korea

H. Steffen Peiser, National Bureau of Standards, USA

M. Fuat Yucesoy, Turkish Standards Institution, Turkey

This survey was conducted as part of the program under the US/NBS Agency

for International Development, PASA TA(CE)5-71

U. S. DEPARTMENT OF COMMERCE, Frederick B. Dent, Secretary

NATIONAL BUREAU OF STANDARDS, Richard W. Roberts, Director

ACKNOWLEDGEMENTS

The encouragement, planning assistance and generous financial

support from the U.S. Agency for International Development, U.S.

Department of State, are gratefully acknowledged. In addition, the

Survey Team sincerely thanks the numerous unnamed government,

industry, and university colleagues who pave freely of their time

and advice to assist the survey.

Explanatory Note

This Report has been available in draft for almost one year

prior to publication. Progress and further planning by the Korean

Government meanwhile has been vigorous so that some remarks in this

Report must be regarded as for the record only. The economic

development of Korea has taken an even more favorable turn than is

described in the Report. The new organization proposed has been

formed but its name is not Office of Industrial Promotion, but

Industrial Advancement Administration. The organizational structure

of this Administration differs in some important details from that

proposed in this Report. These changes are intended as further

improvements on the earlier proposals described in this Report.

i
TABLE OF CONTENTS

Page

I. Introduction 1

A. Objectives of the Survey 1

B. Operating Mode 2 C. Preparation for the Survey 3

D. Korean Survey Team and Staff 4

E. Previous Studies on Korean Standardization,

Control and Measurement Services 6

F. Itinerary of Survey Team in Korea 6

II. Korea, Its Economy and Key Institutions Relevant

to the Survey 10

III. National Institutions for Standards, Measurement,

and Quality Control — The Position of the

Proposed Office of Industrial Technology .... 13

IV. The Problems of Concern to the Korean Survey Team

on a National Capability in Standardization and

Measurement Services , 16

V. Conclusions and Recommendations 19

A. Legal Metrology Service (Weights and Measures

in Retail Trade) . 21

B. Consumer Protection and Maintenance of

Quality of Environment 23

C. Standards Development . 23

D. Fundamental Metrology Service, Including

Calibration of Physical Standards and

Instruments 24

E. Development of Test Methodology for

Products 25

F. Coordination of Accredited Test

Laboratories 25

G. KS Marking , 26

H. Information and Publications Service .... 26

I. Industrial Technical Extension Service ... 27

J. Natural Resource Management 27

K. Assistance in the Exploitation of Inventions

and Innovations . 28

L. Organizing Advisory Councils and Panels . . 28

M. Staff Selection and Management 29

N. Training in Standards and Measures 30

ii
0. Disaster and Failure Avoidance 31

P. Scientific Instrument Design, Construction

and Maintenance 31

Q. Hiring Foreign Expert Advisors 31

R. Overall Planning 32

S. Computer Services and Data Links 32

T. The Principal Technical Resources and

Their management 32

Appendix 1 — Abbreviations Used of Organizational

Elements of the Office of Industrial

Promotion 35

Figure 1 — Proposed Organizational Chart for the

Office of Industrial Promotion .... 37

iii

I. INTRODUCTION

Leaders of every country strive to achieve a higher standard for

their people; better education, sounder health, and an improved

quality of life. In the world community of nations these goals have

hitherto been unattainable in an economy based solely on agriculture

and sale of unprocessed natural resources. Processed agricultural

and manufactured products are also needed which in turn require the

support of standards, calibration, measurement and testing services.

These services have been important features of all highlv industrialized

countries and have accompanied the industrialization process of rapidlv

developing countries. Such activities may be critical elements in

developing economies for control of manufacturing processes, quality

control of products, encouragement of exports, and the transfer of

technology from abroad. The availability and level of these services

in Korea was the concern of this survey.

The National Bureau of Standards and the Agency for International

Development in Washington cooperate in a program of consultation on relevant infrastructure services with three developing countries

designated as target countries. This program was planned as a modest

effort to test on a worldwide basis the effectiveness of NBS

collaboration in the industrialization endeavors of these countries.

It was decided that for best results, this test program should be

confined to a few carefully selected and widely separated areas of the

world in which effectiveness could be evaluated on the basis of

essentially experimental activities. Basic criteria for target

countries were the following:

a. Each target country must be a developing nation currently on

the AID list.

b. Each target country must be willing to invest some of its own resources in the effort.

c. There must be reasonable expectation of internal stability in

each target country.

The developing countries which welcomed this opportunity and are now Included as target countries are Ecuador, Korea, and Turkey.

A. OBJECTIVES OF THE SURVEY

The surveys were to establish a set of practical recommendations

that would promote the implementation and development of useful

standardization and measurement services in the target countries. To

provide a basis for the recommendations, the survey team planned to
2

collect data In a number of critical subject areas. Subjects of major

interest were the following:

a. The extent to which government officials, industry leaders,

and workers were aware of the need for standards and their importance

to an industrializing economy.

b. The present state of utilization of standards in the country

in selected spheres of economic importance.

c. Research and testing facilities available in industry,

government, and the universities.

d. Quality control systems in industry, and procedures adopted

for exports.

e. Facilities available within the industrial complex and other

organizations for calibration of instruments and testing equipment.

f. Institutions, government departments, and other organizations

engaged in the preparation of standards in the country.

g. Special procedures for evaluation and quality control

required to maintain the competitiveness of exported products and raw materials.

h. Laws currently in force affecting standardization and quality

control for import and export of goods.

i. Laws currently in force with regard to weights and measures.

j. Facilities available within the country for training of: (1)

standards personnel, and (2) quality control personnel.

B. OPERATING MODE

The surveys were to be under the direction of an outstanding

leader of the target country interested in standardization and

measurement. He would have the responsibility for selection of

specific survey goals, for the development of a program and for the

guidance of follow-up programs. Each survey was to last about two

weeks in country. Team members were to come from NBS and the other

target countries, The host country would provide other team members

and assure that typical relevant contacts would be made with

government authorities, industry, universities and the public.
3

C. PREPARATION FOR THE SURVEYS

Although less developed countries may differ significantly from

each other in their resources and their individual aspirations with

respect to industrial development, many of the problems they face in

establishing an effective infrastructure of measurement technology and

standardization for production and quality control are similar. As a result standardization experts in most of these countries are eager to

share experiences and learn from each other. This survey was organized with the intention of optimizing the potential benefits of

this exchange.

Accordingly the three developing countries participating in the

program (Ecuador, Turkey, and Korea) were invited to send

representatives to a week-long intensive standardization workshop held

at the National Bureau of Standards in Gaithersburg , Maryland. The

Workshop described in NBS Report 10901 was designed not only to

describe the services provided by NBS to the technical and scientific

community, but also to allow for discussions and presentations of

different institutional and organizational approaches to providing

these services in other countries. The aspects stressed in the

Workshop included:

a. Maintenance of national standards of measurement compatible

with the Systeme International (SI)

b. Field surveillance of weights and measures.

c. Procedures for the development of standards (including

safety, building codes, and consumer protection).

d. Inspection and quality control of production (sampling,

tolerance, control charts).

The Workshop was held at the National Bureau of Standards from

April 21 - April 30, 1972. Attending, besides the U.S.

representatives, were:

Ing. Raul Estrada Technical Director of the Instituto

Ecuatoriano de Normalizacion

Mr. Young Pyo Hong Senior Mechanical Engineer

Central Bureau of Weights and Measures

Ministry of Commerce and Industry

Seoul, Korea
4

Mr. Velid Isfendiyar

Mr. Byong Sik Jeon

Mr. Luis Urresta

Mr. M. Fuat Yucesoy

Secretary General

Turkish Standards Institute

Ankara, Turkey

Chief of Specialization Division

Korean Bureau of Standards

Ministry of Commerce and Industry

Seoul, Korea

Engineer, Instituto Ecuatoriano de

Normalizacion

Quito, Ecuador

Senior Mechanical Engineer

Turkish Standards Institute

Ankara, Turkey

Immediately following the Workshop the first survey was conducted

of Ecuador's standardization and measurement services (NBS Report

10881).

D. KOREAN SURVEY TEAM AND STAFF

The entire Korean survey took place under the joint personal

sponsorship of the Hon, Dr. Hyung Sup Choi, Minister of Science and

Technology, and the Hon. Mr. Nak Sun Lee, Minister of Commerce and

Industry. It was under the direction of Dr. Sang Keun Chun, at that

time Director of the National Science Museum.

With the exception of Mr. Isfendiyar and Mr. Urresta, all of the

visitors at the Workshop participated in the Korean survey. The NBS

representatives were:

Dr. Thomas D. Coyle Chief

Inorganic Chemistry Section

Inorganic Materials Division

Institute of Materials Research

Dr. Ronald K, Eby Chief

Polymers Division

Institute of Materials Research

Mr. H. Steffen Peiser Chief

Office of International Relations

The Korean Mission of USAID was represented by Dr. Newman A. Hall, the

Science Advisor, himself expert in standards and measurement science
5

and available as a continuing link between non-Korean Team members and

representatives of the Korean government.

Well before the arrival of the NBS/AID contingent, the Korean

Government laid thorough and detailed plans. They appointed the

following Korean team members , all acknowledged Korean leaders in the

field of standardization and measurement:

Dr. Sang Keun Chun Director General of Survey, Director

National Science Museum

Mr. Byung Kil Lee

Mr. Chong Hak Kim

Mr. In Bok Chung

Director

Korean Bureau of Standards (KBS)

Ministry of Commerce and Industries (MCI)

Director

Bureau of Weights and Measures, BWM, MCI

Director

The First Department

National Industrial Research Institute (NIRI)

MCI

Mr. Buk Sun Lee Director

Office of Overall Planning

Office of Research Coordination

Ministry of Science and Technology (MOST)

Dr. Jae H. Yang Deputy Director

Korea Institute of Science and

Technology (KIST)

General Chun Hwa Lee Director

Fine Instrument Center (FIC)

The importance and urgency attached by the Korean Government to

this Survey is further illustrated by the appointment of the following

support secretariat;

Mr. Byung Sik Chun Chief, Specification Division

KBS, MCI

Mr. Young Pyo Hong Senior Technical Staff

Inspection Division, BWM, MCI

Mr. Hai Sool Chin Senior Staff, Office of Research

Coordination , MOST
6

Mr. Chong Chul Kyung Senior Staff, Office of Research

Coordination, MOST

Mr. Chung Joe Meng Senior Research Staff, NIRI, MCI

Mr. Young Suk Yoon Division Chief, FIC

Mr. Tae Yoon Um Senior Staff, KIST

The Korean team had done extensive preparative work. They had

gathered briefing papers for the NBS/AID contingent, rushed necessary

translations, and held discussion resulting in strongly supported

tentative conclusions.

E. PREVIOUS STUDIES ON KOREAN STANDARDIZATION, QUALITY CONTROL AND

MEASUREMENT SERVICES

Two NBS team members (Eby and Peiser) had taken part in a previous AID-supported study in 1967 (NBS Report 9811). The

recommendations made then and the underlying logic are similar

to the outline of the present survey report. In the intervening

time, apparently neither USAID nor the Republic of Korea was willing

to recommend high priority to implementation. Now, however, both

the Republic of Korea and USAID seem convinced that urgent action

is needed.

Mr. M. C. Probine, Director of the New Zealand Standards

Laboratory, at the invitation of UNESCO, in 1970, carried out "a survey

of the facilities for precision measurements in South East Asia."

Within its field this survey is detailed and penetrating. In the

conclusions relating to Korea, the following remarks are worth quoting

here: "It is therefore suggested that early consideration be given to

setting up a national standardizing laboratory with responsibility for

precision measurement in all fields at the national level ... if

Korea is to achieve its industrial development targets it will need to

be done sooner or later . . ." The present survey report concludes

that the time has now come.

F. THE SURVEY TEAM'S ITINERARY IN KOREA

Sunday, June 18

Peiser, Coyle, Eby and Estrada arrived Seoul, late evening.

Monday, June 19

NBS Team briefed by Dr. Newman Hall, Physical Science Advisor

to US AID Mission in Korea.
7

Team received by Dr. Choi, Hyung Sup, Minister of Science

and Technology

Team received by Mr. Lee, Nak Sun, Minister of Commerce and

Industry

First meeting of entire Korean Survey Team, including NBS

team, their Korean counterparts, and Korean support staff

(secretariat) . Background documents prepared in advance

of NBS team's arrival were presented, itinerary discussed,

and scope of service of the NBS team, as viewed from the

Korean side, was outlined.

Mr. Yucesoy arrived in Seoul, having been delayed en route.

Tuesday, June 20

Visit to Korean Bureau of Standards

Visit to Bureau of Measurement (formerly Bureau of Weights

and Measures)

Visit to Electricity Division of the Communication Research

Institute of the Ministry of Power and Communications.

Wednesday, June 21

Team received by Mr. Michael H. B. Adler, USAID Mission Director

Visit to Korean Institute of Science and Technology (KIST)

Peiser presented talk on NBS Mission and Program Structure

at KIST

Visit to National Industrial Research Institue (NIRI)

Evening: Peiser, Coyle, Eby were dinner guests of Professors

Yu and Noh, Inha University, and Professor Paik, of Kyung

Hee University.

Thursday, June 21

Visit to Fine Instruments Center.

Visit to Kia Industrial Co., Ltd., manufacturers of steel

pipe, bicycles, trucks, etc.

Visit to Hanyung Industrial Co., Ltd., manufacturers of large

power transformers and electric motors.
8

Evening: The NBS team was entertained at a dinner party hosted by

the Vice Minister of Commerce and Industry, Mr. Kim, Yong Hwan,

Friday, June 23

Team spent day at Ministry Building in discussion of details of

report. Preliminary drafting of first section of report.

Saturday, June 24

Day spent at Ministry. Draft of first section of report

dealing with definition of problem areas in Korean standards

and measurement services accepted by team.

Eby departed for U.S.

Sunday, June 25

Peiser continued work on report. Coyle, Estrada, and

Yucesoy departed by car for Kyung-ju and Pusan, accompanied

Mr. J eon, Byongsik.

Monday, June 26

Peiser in Seoul to continue work on report. The remainder of

the NBS team spent the day in Pusan, in the following visits:

Pusan-Kyungnam Industrial Research Institute (Provincial

laboratory with primary responsibilities in export inspection)

Korea Shipbuilding and Engineering Corporation

Pusan Custom House Laboratory

Vinyl Calendering Division, Lucky Chemical Co., Ltd.

The group visiting Pusan returned to Seoul, arriving early

Tuesday.

Tuesday, June 27

Team spent day at Ministry in discussions of draft report,

particularly on functions and organization of proposed Office

for Industrial Promotion.

Wednesday, June 28

Team spent the morning at US Embassy completing draft report.
9

Draft report presented to Director Chun and Korean team.

Korean team and translators prepared Korean version of report.

Thursday, June 29

NBS team attended briefing on report presented by Dr. Chun to

Ministers Choi and Lee,

Friday, June 30

Visit to Korea University, Seoul, by Peiser and Estrada

Final discussion by Peiser and Coyle with Dr. Chun.

Yucesoy departed Seoul.

Saturday, July 1

Remainder of NBS team departed Seoul.
10

II. KOREA, ITS ECONOMY AND KEY INSTITUTIONS RELEVANT TO THE SURVEY

With a population of about 32 million, three large cities (Seoul,

Pusan, and Inchon) and an area of about 100,000 km (23% is farm land

with rice as principal product) Korea by 1971 had attained a GNP of

about $8 billion or a per capita GNP of $253 per annum. Korea's

imports at about $2.2 billion were double its exports but present trends

show a marked improvement. Almost 50% of the population works in

agriculture. Only a little more than the 15% of the working population

work in mining (chiefly coal and tungsten) and manufacturing (principally

iron and steel, cement, fertilizer, fibers, ships, autos, and electronic

products) . The growth rate of mining and manufacturing averages about

18%, whereas that of agriculture is less than 4% per year. Exports

are growing at about 39%; imports by 25% per year. Korea can boast of

rapidly improving social services, transportation, power, and

communications systems. Integrated steel and petro-chemical

industries are major current projects helping Korea toward selfreliance and sound balanced growth. Korea's development has rightly

been called a miracle. It is no less so when one remembers that Korea

finds itself compelled to devote much national effort on its defense

posture. The determination and character of the Korean people gives

substance to the hope of major economic achievements in the years

ahead. The third Korean five-year plan, 1972-1976, is the blueprint

for this progress. In science and technology the Korea Scientific and

Technological Information Center (KORSTIC) and the Korea Advanced

Institute of Science (KAIS) are given a major place. The plan makes

no mention of, but is flexible enough to allow for, a new Office to be

added which shall tentatively be called Office of Industrial Promotion

(OIP) in this report. It is to function at high governmental level

with a mission to be recommended in this survey report. A concept

similar to OIP had appeared prior to the arrival of the NBS Team and

served as a framework for much of the investigational program carried

out during the survey.

Under an Industrial Standardization Law, Korea presently has a Korean

Bureau of Standards (KBS) within the Ministry of Commerce and Indus trv

(MCI) . This Bureau is responsible for industrial standardization and

the operation of a product quality marking scheme (KS) . KBS is the

national organization adhering to the International Organization for

Standardization (ISO) and the Electro-Technical Commission (IEC). It

is supported by an advisory body, the Council for Industrial

Standardization, and a private Korean Standards Association (KSA)

There are 17 divisional standards committees operating within KBS

supervising the work of many technical committees.

The National Industrial Research Institute (NIRI) (also within

MCI) advises industry, tests products, supervises the export testing

by twenty laboratories specifically designated by product,

incorporates the Masan Procelain Laboratory, and has considerable in-
11

house facilities, especially in chemical analytic techniques. NIRI

also has information and training functions. Its applied industrial

research has been questioned for fear of overlap with KIST. However,

NIRI or a successor Governmental laboratory, should probablv continue

to provide short-term problem-solving type consultation which is very

useful but of little interest to KIST. NIRI has had for the past five

years a sistership relationship with the US/NBS. However, this formal

relationship has had little effect on actual technical contact,

despite high level attention from the annual MCI-US Department of

Commerce ministerial meetings.

The administration of the Weights and Measures Law is presently

the responsibility of the Bureau of Weights and Measures (BWM)

It also is under MCI and has a large new building in an advanced stage

of construction at the Yongdeungpo Export Industrial Estate.

Unfortunately, further expansion at this site is no longer possible.

The Korea Institute of Science and Technology (KIST) is an independent applied research, contract-oriented, not-for-profit

laboratory with outstanding facilities and staff. It houses the

physical standards donated to the POK by the late President Lyndon B.

Johnson. These standards are of the same type as those provided to

the States (of the U.S.A.) for the regulation of weights and measures

in retail markets. Of the three KIST specialists trained by NBS in

the use of these standards, only one is currentlv still employed by

KIST.

The Fine Instrument Center (FIC) , another independent institution

not incorporated within a government department, exists under an agreement with the UN and may in the future be constituted as another

not-for-profit private organization. FIC is also a laboratory of

excellence. It maintains, repairs, tests, and calibrates instruments;

advises and certifies manufacturers; promotes the Korean instrument

industry; operates successful technical training courses; offers

extensive calibration services; and disseminates technical and market

research information. No future plan for Korean measurement services

should fail to use and build upon these facilities within KIST and

FIC.

Korea has other government agencies not previously mentioned

concerned with standardization Including:

1. Livestock Experiment Station

2. Agricultural Material Inspection Station

3. Provincial Sanitary Testing Laboratories

4. Electrical Communication Research Institute
12

5. Radio Research Institute

6. Radiation Research Institute for Agriculture

7. Radiological Research Institute

8. Atomic Research Institute

In addition, there are many other government and private agencies

not listed here which conduct testing and inspection of goods and

products for use under various specific laws. Examples are:

1. Vehicle Inspection Station under the Vehicle Transportation Law

2. Ships and Vessels Inspection under the Ships and Vessels Safety

Management Law

3. Korea Lubricating Oil Testing and Inspection Station

Export goods inspection agencies designated by the government are

the following government organizations:

1. National Industrial Research Institute (NIRI)

(Export Goods Inspection Dept.)

2. Kyungbuk Provincial Industrial Research Institute

3. Kyungnam Provincial Industrial Research Institute

4. Chungnam Provincial Industrial Research Institute

5. Chungpuk Provincial Industrial Research Institute

6. National Inspection Station for Agricultural Products

7. National Inspection Station for Fishery Products

8. National Seoul Silk Inspection Station

9. Animal Quarantine Station

10. Forest Experiment Station

11. National Institute of Health

12. Technical Research Laboratory, Office of National

Tax
13

The following are examples of private organizations with

important standardization programs:

1. Korea Textile Testing and Inspection Station

2. Daehan Cloth Testing and Inspection Station

3. Daehan Knit Goods Testing and Inspection Station

4. Daehan Chemical Products Testing and Inspection Station

5. Daehan Mineral Products Testing and Inspection Station

6. Art and Craft Products Testing Station

7. Korea Hair Products Testing and Inspection Station

Several provincial laboratories show signs of being capable of

receiving wider centrally coordinated responsibilities.

A largely untapped resource of standardization and measurement

services lies in the numerous technical universities and colleges of

Korea.

During the survey it was not possible to study each of the above

listed institutions, so no appraisal of their operations or effectiveness is intended in this report.

III. NATIONAL INSTITUTIONS FOR STANDARDS, MEASUREMENT, AND QUALITY

CONTROL — THE POSITION OF THE PROPOSED OFFICE OF

INDUSTRIAL PROMOTION

All industrialized nations have a national capability in

standards, measurements, and quality control. The nations that have

advanced most rapidly usually possess large and sophisticated services

in these areas. Structure, size, and scope of such institutions vary

greatly and the relationships and responsibilities for supporting and

controlling these institutions may take diverse forms. In general,

however, they fall into one of the following broad categories.

1. One or more governmental institutions responsible to a minister and financed from the state budget. This category is found

in countries with centrally planned economies and in some other

countries, e.g., Ireland, Mexico, Soviet Union, Burma, Ceylon, Greece,

Iran, Japan and Ecuador.

2. One or more private autonomous organizations taking the form

of a foundation or association. Some of the older national

standardizing bodies have this type of structure and operate without
14

any official support or control as in the Federal Republic of Germany,

Switzerland, Turkey, but in most cases a government subsidy provides a significant part of their revenue. In Argentina such subvention is

quite indirect. It is operative through a levy on development loans

to industry payable direct to the Institute for Industrial Technology.

Government Influence over some such operations appears to be growing

but stops short of participating in their management.

3. One or more jointly managed institutions, also autonomous, in

which both government and private interests participate. Management

is shared to a degree depending on the country's industrial

development and of relative government interest, as in India and the

U.S. This category has been adopted by a number of developing countries

and there have been instances of changing over from the first type

(government controlled) to this form (New Zealand and Pakistan)

Regardless of the organization structure involved, the common objectives of relevant national bodies can be described as follows:

1. To prepare standards and promote their general adoption at

the national level with the cooperation of all the interests concerned

for the purpose of improving that country's industry and agriculture,

and facilitating its domestic and foreign trade. The interests would

include organizations, Industry, government departments, trade, and

technical associations, etc., whose activities may or will be affected

by the establishment of a standard;

2. To make continual checks to ensure that the national

standards formulated under objective (1) are abreast of the latest

scientific and technical developments; and to amend, revise, or withdraw them so as to maintain them at the state-of-the-art;

3. To promote standardization as a technical activity and an integral yet distinct function of management (this includes the

promotion of company standardization, quality control, simplification,

and allied techniques in industry and commerce)

4. To serve as the national channel for exchange of information

and for cooperation in the coordination of standardization work with

other countries, including work at the regional and the international

levels;

5. To serve as the national center of and clearinghouse for all

information on subjects in the field of standardization.

In addition to the preceding, the national body may also be

delegated:

6. To function as a metrology center and repository of

fundamental physical standards;
15

7. To undertake tests for Industry and issue certificates of

compliance with standards;

8. To implement national standards through administering a national certification marks program or the inspection of goods.

9. To act as technical focal point for the governmental

management of natural resources, the environment, communication etc.

10. Technological advice and consultation, and development of new

technology.

Resources and responsibilities for standards, measurement, and

quality control do not necessarily have to be assigned to a single

organization in each country. In fact, numerous alternatives for

splitting and allocating these functions have been selected and

implemented in nations at varying stages of development. Numerous

authorities have concluded that in a developing country it is

advisable to create a single institution incorporating responsibility

for quality control, standardization, and metrology because of limited

economic resources and a scarcity of experts. This opinion is shared

by the authorities of the USSR*. Most industrialized nations, on the

other hand, establish independent organizations in each field. The

U.S., for example, with literally hundreds of standardizing

organizations, appears to have reached a consensus that centralization

of this effort is impractical. However, in recent years this

consensus has shown a trend toward great coordination of effort and

the general acceptance of the necessity of Federal support. In the

U.S., the responsibility for weights and measures regulation is a function of state and local rather than central government, although

the Federal establishment maintains the basic standards of measurement

and provides technical assistance to weights and measures officials.

This rather complex system derives not only from the checks and

balances inherent in the American system of government, but in the

historical, slowly evolving relationship between industry and

government. The U.S. team members believe that such a system would

not provide optimum short-term benefits to the Korean economy. Survey

team representatives from U.S., Ecuador, and Turkey are in agreement

on the desirability of an intermediate level of centralization.

In a following section the problems connected with

standardization and measurement services in Korea are summarized. The

conclusion is inescapable that Korean Industrialization and commerce,

its technology, science, and the entire economic growth are being

*V, M. Ograyzkov's recent relevant article is translated from

Izmeritel'naya Tekhnika No. 4, pp. 16-21, April 1970. (A copy

of this article is available from the Plenum Publishing Corporation,

227 West 17th Street, New York, New York 10011, for $15.00).
16

handicapped by the absence of a central responsibility and some relevant

facilities for such services. The Korean Government has already

reached that conclusion and placed strong ministerial support on careful planning and vigorous action leading to the establishment of an effective Office of Industrial Promotion.

IV. THE PROBLEMS OF CONCERN TO THE KOREAN SURVEY TEAM ON A NATIONAL

CAPABILITY IN STANDARDIZATION AND MEASUREMENT SERVICES

Individual Korean scientists perform as equals with the world's

most distinguished. Korean workmen have been readily trained to be

unexcelled in skill and concentration span. The Korean economy has

sustained for many years an unexcelled growth rate. Yet the magnitude

of the Korean balance of payments gap, the difficulties preventing

wider acceptance in world markets of Korean products, and other

symptoms have caused the Government of Korea to examine the

opportunities for the next big push forward for Korean

industrialization and economic progress. In Korea today, in the eyes

of its forward-looking Government, the greatest need in the promotion

of technological development is standardization in conjunction with

metrology to bring control of quality and quantity to industry and

commerce. The first and perhaps foremost task facing the Survey is to

answer the direct question: what does Korea need for optimum systems

of standardization and measurement techniques in support of Korea's

ambitious industrial goals? What indeed are the problems?

Prior to the NBS/AID team members' arrival, most of the problem

areas had, in fact, been identified by the Korean study team. The

entire survey team now confirms and articulates the following

principal problems:

1. Korea lacks a central focal point for standardization

directly based on current technology and measurement science. The

need for such a central responsible agency has been judged to be

a cardinal feature of the industrial structure of virtually all

highly developed nations, and is fully explained in another section

of this report.

2. Industry and the public in Korea seem not widely aware, and

certainly do not widely advocate standardization and quality control

procedures. Only a few enlightened industrialists see the assurance

and the savings, which typically far outweigh costs and troubles.

3. Korea lacks a central system of surveillance of the "markets"

at which the public buys by weight, length, volume, or number. The

measurement and calibration procedures on which such surveillance must

be based are not clearly seen to be under control for the protection

of the public with a basic right to equity in the market place.
17

4. A central responsibility needs to be fixed for ensuring a national capability to make the diverse measurements and suitable

calibrations for production and quality control in industry. There is

presently no effective national authority by whose competence

compatibility of products can be assured for exports, imports, and

internal trade.

5. Korea needs more standards to be written based on wider

consensus of buyers, sellers, Government interests, and technical

guidance on available test methodology. Flexibility in providing

incentives for participation in standards writing is needed. Old

standards need also to be revised by effective consensus. The Korean

Bureau of Standards does not presently work in close support of all

branches of Korean Government in all areas where there is a need for

standards. The team was particularlv struck by a need for safety

standards to be promoted by the Ministry of Health and Social Affairs.

6. The excellently conceived KS marking scheme lacks adequatelv

wide recognition by the public and even by the Government in its

purchasing policies. Hence the system lacks visible incentives to the

manufacturer. Further, the manufacturer lacks advice on quality

control of his own raw material and on production controls for

reducing wastage through inspection rejection and returns. Most of

all, the system fails to provide for follow-up testing with control

from a central authority, probably desirable even though the testing

programs might be distributed among many accredited laboratories.

Policies on limited guarantees and warranties need to be widely

discussed and, eventually, regulated,

7. In Korea today many units of measure are in use. Many are taken from ancient systems. Others arise from close ties with

friendly nations that are also still striving toward a wider use of a single internationally recognized system of metric units. The current

situation leads to confusion , misconception, error, fraud, and

unnecessary proliferation of products, types, and spares.

8. A critical need for expansion exists for product test

laboratory facilities in the service of industry. Metrology in such

facilities must be controlled through calibration or equivalent

services.

9. The development of effective workable standards depends on selected methods of test. Experimentation and research in test

methodologies are essential, and are presently not provided by the

Korean Bureau of Standards.

10. National responsibilities in standardization and measurement

science made a strong governmental involvement inevitable. However,

current staff salary and benefits policy makes it virtually impossible

to recruit and hold in government services key staff members who
18

represent real scientific or technological expertise, who combine true

devotion to the public need with absolute integrity and impartiality.

Korea lacks a national pay scale for highlv qualified scientists and

engineers that could attract them into temporary government posts

without tenure rights. Such scales in some countries are effectively

structured to fit technical excellence irrespective of administrative

level.

11. Small and medium size industrial units under entrepreneurial

management cannot afford to hire professional scientists and

technologists. Similarly, they cannot afford to provide and equip

modern laboratories for their short-term technical problem

identification and solving, as opposed to the wider, longer-range

research and development work offered by KIST.

12. Industry and Government have difficulties in obtaining access

to a centralized standards information service with news and analvsis

on what other countries and international organizations have published

and on what novel useful results are emerging. The technologists lack

access to critically evaluated standard reference data based on a worldwide analysis of world literature.

13. In standards and measurement science, Korea seems to be

inadequately in touch with regional and international programs through

effective participation in such activities. (The team considers that

the cost of selective involvement is small compared with benefits

from learning through association.)

14. Korea appears to have no central technical service aimed at

minimizing the risks of disasters occurring and at analysis of

actual failures of major machinery or structures.

15. Korea lacks a widespread wish for and encouragement of

vigorous inter-institutional collaboration at professional levels

below top management. In a modern diversified Indus triallv developed

society, such collaboration is believed to be essential. In

particular, ties between universities, industry, and government

laboratories in Korea today are not as strong as is desirable.

16. Korean standards and measurement science activities lack

coordinated training functions.

17. Metrology and standardization services are subject to many

problems common to all countries. The Government realizes that

predetermined answers to all common problems cannot be provided.

Perhaps the most subtle of these problems is how to respond to the

need in metrology to provide necessary redundancy. Whereas in most

other operations overlap must be avoided, in metrology some overlap is

essential. Yet no such overlap should be tolerated in governmental
19

regulatory functions or responsibilities for the operation of systems

such as those of national metrological units, of accreditation of test

laboratories, extension services, etc.

18, Another common problem is that of effecting a gradual change

in the character of the metrological system. In this evolution, the

system passes from one based on a rigid hierarchy of physical standards

vertically linked by calibration of instruments, to one based partly

on calibration and partly on other approaches. These include roundrobin testing, standard reference materials, and measurements at the

highest achievable precision by several laboratories of the same properties on samples of the same material.

19. No list of common problems in metrology could be complete

without mentioning the exponential rise of costs with level of

measurement precision. Very roughly, it takes ten times the cost to

halve the uncertainties. No country requires across-the-board

metrology of highest accuracy for its technology. The U.S.A. and

other highly industrialized countries can no longer afford the cost

escalation at the highest attainable accuracy. Enormous savings are

achieved by examining the real needs at the factory bench and aiming

to deliver that and only a little more. Surely the benefit to cost

ratio must be analyzed for each and every measurement service. The

problem is to provide for such a metrology service in terms of current

real needs of industry.

V. CONCLUSIONS AND RECOMMENDATIONS

The NBS/AID Korean Survey Team has presented its main conclusions

and recommendations on standards and measurement services in the

Republic of Korea to the Ministers of Commerce and Industry (MCI) and

of Science and Technology (MOST) who were the patrons of the Survey.

These conclusions and recommendations were also discussed at greater

length with senior staff of these ministries. The text of the draft

report was translated into Korean. The essence of the favored

solutions of the problems outlined above is contained in the

description of the following 20 basic functions which in the Team's

opinion should be exercised in standardization and measurement

services in response to existing and growing needs of Korea.

A. Legal Metrology Service (Weights and Measures

in Retail Trade)

B. Consumer Protection and Maintenance of Quality

of Environment

C. Standards Development

D. Fundamental Metrology Service, including Calibration

of Physical Standards and Instruments
20

E. Development of Test Methodology for Products

F. Coordination of Accredited Test Laboratories

G. KS Marking

H. Information and Publications Service

I. Industrial Technical Extension Service

J. Natural Resource Management

K. Assistance in the Exploitation of Inventions and Innovations

L, Organizing of Advisory Councils and Panels

M. Staff Selection and Management

N, Training in Standards and Measures

0, Disaster and Failure Avoidance

P. Scientific Instrument Design, Construction, and

Maintenance

Q. Hiring Foreign Expert Advisors

R. Overall Planning

S. Computer Services and Data Links

T, The Principal Technical Resources and Their Management

The national administrative and technical focal point for

exercising most if not necessarily all of these service functions

could be the new Office of Industrial Promotion OIP whose tentative

organizational structure is shown in Figure 1 (for abbreviations, see

the appendix) . Of the three OIP Departments headed by Associate

Directors that for Patents is not here described. The Team was neither really competent in this important field nor was there time to

investigate the relevant Korean activities and current laws.

The assumption has, however, been made that this Department will

provide services not only in patents and patent information, but also

for registered models, trade marks and all kinds of industrial

technical property.

The second Department would be under the Associate Director for

Industrial Services. It is concerned with diverse functions. OIP
21

staff can interact directly with industry giving technical advice

from the Bureau of Extension. Working in a collaborative manner

seeking consensus suits the Bureau of Standards. Work in the

regulatory mode for compliance with laws and regulations is left

to the Bureau of Inspection. The most appropriate image of these

three Bureaus make some clear delineation of functions between

them essential.

The third Department, under the Associate Director for Technical

Services, provides the in-house technical and laboratory skills. Three

Bureaus differentiated by disciplines are suggested; they could

equally be called institutes and would be largely staffed by

specialists in close touch with academic science, world wide

technology and engineering, and could be at call for small Korean

industrial units usually through intermediaries in the Bureaus of

Extension, Standards or Inspection.

The NBS/AID team believes that almost the entire OIP should be in one central location near to other major centers for science and

technology to promote interaction between specialists. Proximity

to the Korean Science and Technology Information Center (KORSTIC)

could also be a consideration. Industrial representatives would

then receive information of prime interest to them on foreign

and international standards near to the KORSTIC organization where

other technological information is centered.

The 20 service functions and the corresponding responsibilities

within the proposed organizational structure of OIP are listed

separately. Estimates of staff building and budget requirements

were given in the verbal report. All these recommendations are tentative, and should be considered to be the best judgment of the

Survey Team based on only its short study of the situation. A

great deal of planning should precede implementation. In addition,

a careful scheme of priorities and sequences will be needed for that

implementation. The stress should always be first on the recognition

of a real need based on trade and industry goals. Second should come the establishment or strengthening of the service function

to meet the need. The full use of existing Korean facilities is

essential. With technically well qualified, well motivated young,

well compensated staff, vigorous technical services can be given

to Korea.

A. Legal Metrology Service (Weights and Measures in Retail Trade)

(This first function is described in a little greater detail than

others because it serves as an illustrative example. Even for

this function a great deal more detailed planning is needed.)

1. Mission : The aim of this service is to ensure that quantity

descriptions in the shops and markets, as well as in the
22

exchange of materials involving commercial companies are clearly and accurately represented in terms of legal units

of measure. Almost all quantity descriptions are in terms

of number count, mass (weight), length, or volume units.

Representations of these units of measure shall be maintained in relation to the internationally defined units

to an accuracy in excess of the most precise legally

required measurements.

Organizational Structure: In the proposed Bureau of Inspection

(BOI) there could be a Division of Weights and Measures (DWM)

with the central responsibility for execution of the above

mission. The technical support for the execution of this

mission rests on the Bureau of Physical Technology (BPT)

(Division of Fundamental Technology (DFT) ; Mass, Length and

Time Section). The more routine maintenance of measuring

units and instrumentation should be carried out within the

Fundamental Units Section of the DWM in BOI. For the system

of legal metrology to be under control, arrangements must be

made for periodic comparisons of Korean physical standards

with other national and international standards; similarly

city and provincial master standards must be linked in a system of Korean national standards. Part of this function

can be contracted to KIST which is well equipped for this

purpose. The duplication of such facilities within Korea

or the re-housing of the existing laboratory elsewhere would

be unjustifiably wasteful. The Team believes that this is

just one example of how Korean services should be built up

from existing facilities which should be used in mutual

support rather than replaced by OIP. The technical services

which are now available outside OIP and which for various

reasons cannot be incorporated in OIP should be used by

subcontract controlled through a system of accreditation of

outside laboratories, which might be organized by the Division

of Quality Control (DQC) in a Section of Accreditation (see

F below)

Seoul, Pusan, and the provinces would each need a small

Branch Laboratory under (supervision of) DWM for the comparison

of field standards with the provincial master standards. The

Branch Laboratories would have similar equipment already

available in most provincial laboratories.

As the field function is mostly one of prevention of fraud,

it could possibly be given to specialists in the police force,

who would give warnings and, if necessary, prosecute. The

police might also share with the branch offices small certification fees which would, however need to be collected centrally

so that no exchange of money has to take place for that

purpose in the field.
23

There would have to be a Section of Scales and Instruments

under DWM. The basic technical support would again come from

DFM for calibrations and from the Division of Derived Metrology

(DDM) for type approval. The city, provincial, and field

functions would be undertaken by the same organizations which

fulfill the physical standards functions.

Weights and scales for loads in excess of say 100 kg need

exceptional central facilities. This service should be handled

by a Section for Large Weights maintained in DDM of BPT. Strain

gauge and proving ring methods of test should be developed and

authorized, where adequate, to save wherever possible the

expensive movement of large loads. Part of this work could

be subcontracted to KISI by the Accredited Laboratory

procedure.

B . Consumer Protection and Maintenance of the Quality of the Environment

Mission ; The aim is to protect the public against false or misleading advertising; incorrect, insufficient, or confusing

labelling on packages; purchases of grossly inadequate quality

of products; and unsuspected hazards or contaminations.

2, Organizational Structure; In BOI an initially small Division

of Consumer Protection (DCP) should be concerned with package

labelling, environmental quality, and the measurement of

quality and safety of consumer products. Techniques and

benefits from consumer surveys will be studied. Technical

support would again be sought from the Department of the

Associate Director for Technical Services.

C. Standards Development

1. Mission ; The aim is to serve Korean industry, agriculture,

forestry, public health, commerce, and internal and external

trade by promulgating standards, codes, and typical specifications. The standards and codes are based on consensus of

experts representing manufacturers, purchasers, independent

technical authorities, and the public. Manufacturers must

be given the opportunity to assess the advantages of participating and using standardization. It will enable them

better to control raw materials and production processes;

limit types and sizes in production; simplify the provision of

spares; reduce waste and save costs on customer complaints.

Above all, standardization and quality control are essential

for successful trading in world markets.
24

2. Organizational Structure ; The existing Korean Bureau of

Standards (BOS) can be readily adapted to the greater

responsibilities contemplated. It is here suggested that

it should have four Divisions on Industrial and Agricultural

Standards (DIAS) , Building Codes (DBC) , Safety Standards (DSS),

and Information and Publications (DIF) . The first three

Divisions will provide administration for a complex standards

committee structure; seek advice on selection of standards;

prepare first drafts; circulatef discuss , and revise drafts;

obtain consensus and obtain approval of the Minister of

Commerce and Industry, plus the Minister of any other Ministry

directly interested in the standard concerned; and promulgate

the standard.

The mechanism for developing standards should be based

on a system of standing committees constituted by subject with

up to 10 members representing all interest elements and serving

for about three-year terms. Meetings of each committee should

take place at least twice a year. Travel expenses should be

offered by OIP but no fees except that they might be considered

for private individuals representing consumer interests. All

detailed drafting and discussions on individual standards,

codes, and specifications should be done in working groups

under authority of the above committees. Meetings should take

place as judged necessary by the chairmen of the working groups

who are appointed by the parent committee. Travel expenses,

and limited fees for private individual members of working

groups should be given by OIP as for the parent committees.

All draft standards, codes, and specifications must be

approved by parent committees, Division Chiefs, and Bureau

Chiefs before submission to the Ministers concerned. The

BOS is thus seen as serving any executive agency that needs

to promulgate standards, although the enforcement of any

mandatory standards would only be the function of OIP when

the Ministry of Commerce and Industry is involved. Even in

such cases it would be BOI rather than BOS that would be

required to fulfill such a regulatory function.

D. Fundamental Metrology Service Including Calibration of Physical

Standards and Instruments

1. Mission : To provide the scientific activities underlying the

measurement system, the aim is to give Korea a nationally

recognized and internationally compatible representation of

every significant and legal unit of measure used in science,

technology, industry, and commerce (excluding monetary units).

This representation may be in the form of a physical standard

or group of intercomparable standards; it may be in the form

of measuring instruments calibrated against each other and
25

compared with some standard reference material; or it may be

in the form of critically evaluated and internationally

recognized bench mark data contacted by an experiment. These

representations need not necessarily be the embodiment of

their internationally recognized definitions nor all be

located at OIP or even at an accredited test laboratory. However, it is expected that OIP be the national focus of knowledge, reference and judgment on all fundamental questions of

metrology in Korea for base and derived units of measure. It

is also expected that the majority of basic measurement standards

would be accessible at the laboratories of OIP.

2. Organizational Structure : It is proposed that the fundamental

metrological responsibility be mainly concentrated in the

Division of Derived Metrology (DDM) in the Bureau of Physical

Technology (BOPT) . Some aspects might be delegated to

laboratories accredited for this purpose. For example, radiation

dosimetry might be delegated to the Atomic Energy Laboratory in

the Office of Atomic Energy.

E. Development of Test Methodology for Products

1. Mission : The aim is to assure and enhance the validity and

reliability of product testing methods and the system for their use 9 and to provide the basis for new methods of test supporting

the development of proposed, new or improved standards as their

needs become apparent. Test methodology considerations involve

activities of a research nature. Relevant parameters have to

be identified, and valid and reproducible experimental techniques

for their measurement developed. Results of such activity must

be consolidated into precise statements of test procedures.

Finally, there is an "extension" aspect in which it is

necessary through devices such as training, laboratory comparisons, standard reference materials (SRM 1 s) , etc. , to transfer

the test methodology to the point of use and ensure its

effectiveness "in the field".

2. Organizational Structure : Development of test methodology may

be requested by the BOS, BOI or BOE on a partly internally

reimbursable basis from most of the Divisions under the

Associate Director for Technical Services, wherever there exists

appropriate technical expertise.

F. Coordination of Accredited Test Laboratories

1, Mission : Under this function it is the aim to organize, maintain

and administer a voluntary laboratory approval registration

scheme for test laboratories of excellence throughout Korea and

to make use of their services for the benefit of OIP. Applications
26

would be expected from firms, universities, and eovernmental

as well as private institutions having special laboratory

facilities and willing to undertake calibration or testing.

Accreditation is given if a) adequate knowledge of a particular

field for which accreditation is sought is demonstrated,

b) appropriate equipment is available, c) premises are suitable, d) staff is thoroughly competent and of integrity,

e) relevant prior experience has been reported.

2. Organizational Structure ; This service could be organized by

by a Section of Accreditation in the Division of Quality

Control (DQC) in BOI. To execute this OIP function effectively

is a challenge in administration of technical resources. To

verify and maintain the excellence of the accredited

laboratories DQC must make use of the in-house technical

judgment in OIP. In assigning tasks to laboratories the

services of the accredited laboratories are supplementary and

competitive to other services within OIP. As Korean industry

grows, more and more of the routine testing will be done by

accredited test laboratories, while more and more of the non- routine critical tests can be best done within OIP.

G. KS Marking

1. Mission : The aim is to enable a manufacturer to gain public

recognition of the sustained high quality of his products.

The pre-existing system to be administered by OIP must receive

wider public recognition ultimately based on valid independent

quality checks or warranties. Governmental purchasing of KS

products where available needs to be made the rule. Recognition

of the assurance provided by the KS symbol will follow.

2 . Organizational Structure: A Division of KS Mark (DKSM) in BOE

would be given the responsibility of organizing an effective

KS marking system drawing upon the technical expertise both

within OIP and through the system of accredited test

laboratories.

H. Information and Publications Service

1. Mission : The aims are to provide information services, including

collection and maintenance of world standards literature, in

support of the operations of OIP; to publish Korean standards;

to disseminate to industry, other agencies, and the public,

technical information on standards, test methods, codes,

specifications, and relevant experimental results; to provide

general information services to promote public and industrial

acceptance of improved standardization practices; to promulgate

consumer information on product testing; and to provide other
27

national, regional, and international standards organizations

with news of Korean standards and standardization procedures.

The Korean manufacturer who competes in world markets should

have his voice heard in the framing of standards to which his

products have to conform.

2. Organizational Structure : A Division of Information and

Publications (DIP) within BOS is given all of this mission

responsibility. It may help to publish a monthly news bulletin with English abstracts for no-cost exchange with

other national standards journals.

I. Industrial Technical Extension Service

1. Mission ; The aim is to make available to Korean industrial

companies on request the technical knowledge and competences

represented in OIP. Modern industry is in need of technology

transfer and problem solving resources made up of expert

representation in many technical specialties. Such a balanced

team of scientists and technologists can be provided by the

largest multi-national firms and the Government in Korea, not by

individual Korean firms. The availability to locally based

industry of this type of knowhow could greatly improve the

Korean manufacturing capabilities and thereby favorably

influence the balance of payments. Longer range applied

research might be referred to KIST, but OIP should assist in

making firms aware of the potential benefits of such research

and help to state the applied research problem for the teams

at KIST. Other examples of persuasive interaction between

OIP and industry concern wider adoption of metric units, more

extensive manufacture to Korean standards and the KS mark

assuring quality, and wider support of OIP's general mission

through other laboratories which apply for accreditation by

OIP.

2. Organizational Structure : A Bureau of Extension (BOE) under

the Associate Director for Industrial Services could accomplish

the above Mission. It could have four divisions of which the

following three are not otherwise covered in systems

described before. They are:

a. Division of Consultation (DC)

b. Division of Metrication (DM)

c. Division of Systems Analysis (DSA)

J, Natural Resource Management

1. Mission : It is aimed to explore, survey, develop, exploit,
28

conserve and administer Korean natural resources to public

benefit.

2. Organizational Structure; This very important mission would

be the principal concern of a Bureau of Natural Resource

Technology (BONRT) divided into six divisions as follows:

Division of Geological Survey (DCS)

Division of Ore Dressing and Extraction Metallurgy (DODEM)

Division of Mineralogy and Mining (DMM)

Division of Water and Oceanography (DWO)

Division of Fossil Fuel (DFF)

Division of Air Quality (DAQ)

K. Assistance in the Exploitation of Inventions and Innovations

1. Mis sion : To disseminate throughout Korean industry the spirit

and practice of seeking technical inventions and innovations

including those concerned with measurement of product quality.

Industry will need advice also On exploitation of such

Inventions and innovations in order to increase profits to

industry.

2. Organizational Structure : This function can be fulfilled by

the members of BOE, in collaboration with universities and

other educational institutions.

L. Organizing of Advisory Councils and Panels

1. Mission : The aim is to furnish annual independent advice to

the Minister of Commerce and Industry and other appropriate

Cabinet Members on the effectiveness and qualitv of OIP's staff,

work and services. Visible praise and criticism, new programs,

and major budget changes are often more readily noticed from

outside than when they are given from within the organization

concerned. Inasmuch as the members of the councils will be

leaders of industry, universities, chambers of commerce,

independent and other governmental institutions, these

council sessions will help to disseminate widely the work and

results of OIP programs.

2. Organizational Structure : Approximately twelve top leaders

of industry, universities, government, and private Institutions

might be appointed by the Minister of Commerce and Industry to

a five-year term of office on a Council on Industrial Technology.
29

This Council shall meet at OIP premises no less than two days

per year and submit an annual report to the Minister of

Commerce and Industry for discretionary publication to the

Korean public.

Six of the above Council members might be the Chairmen

of the following eight-men bodies (corresponding to the

Bureaus of OIP)

a. Inspection Council

b. Standards Council

c. Extension Council

d. Council on Physical Technology

e. Council on Chemical Techno logv

f. Council on Natural Resources

The specialized Councils shall report annually to the

Director of OIP and the Council on Industrial Technologv upon

the work of the Bureaus. Those reports might in part be based

on four-men Advisory Panels whose duty it would be to report

annually to the Bureau Chiefs and the above Councils on the

work of OIP Divisions. Membership of the Bureau Councils shall

include elected Chairmen of all the Advisory Panels of the

relevant Divisions of the Bureaus. Appointment is by the

Director of OIP with due regard for relevant competence in

the fields covered by the Divisions. No Panel or Council shall

be without at least one representative of universities and one from independent laboratories such as KIST, KAIS, or FIC.

Secretarial facilities shall be given to the Councils

from the Programming and Planning Branch (PP) of OIP.

Staff Selection and Management

1. Mission : OIP should be staffed only with well-motivated,

hard-working, devoted individuals of unimpeachable integrity

who are either acknowledged experts or bave considerable professional growth potential. This aim can only be satisfactorily achieved through close recruitment contact with

leading universities in Korea and abroad. The careful

selection of the top leaders is one of the keys to industrial growth of Korea. To secure and maintain such technical

staff in a governmental organization has been judged impossible. However, without such staff OIP will surely fail.
30

With new laws, if necessary, incentives for recruiting and

holding OIP technical personnel must be sought. Suitable

mechanisms might include:

a. a bonus for coming on duty, such as family

transportation costs from abroad

b. special housing facilities

c. prizes and awards based on performance

d. encouragement of concurrently paid adjunct professorship duties at nearby universities, perhaps subsidized by OIP to provide relevant courses which will

benefit the universities and students, as future em- ployees to industry

e. opportunities on merit to all (including women) for

advancement

f . special retirement benefits that would increase with

length of service

g. promise of in-service training including assignments

abroad

It should always be remembered that a technical agency

can never be better than its technical staff. The best

buildings, the best instruments are worthless without the

skill and devotion of the personnel that operate them.

2. Organizational Structure : A strong Personnel Section in the

General Affairs Branch (GA) of OIP is needed to recruit and

develop staff,

N . Training in Standards and Measures

1. Mission: The aim is to give every OIP staff member an opportunity for growth in skills and knowledge and to bring

new competences to OIP even from abroad. In addition, OIP

facilities should, as far as practical, be put at the disposal

of neighboring universities that might seek such interaction.

Conversely, the universities might by contract provide part

of the technician and professional refresher courses for OIP

staff and nominees from industry. OIP staff would need

instruction in effective methods of disseminating throughout

industry an awareness of standards, measurement and quality

control. However, training to benefit other than OIP staff

is not considered under this OIP function.
31

2. Organizational Structure : A Staff Training Section in GA.

0. Disaster and Failure Avoidance

1. Mission : The aim is to protect life and property and to

improve quality and safety of structures, bridges, roads,

railroads, power plants, fuel storage facilities, components

and industrial products. This is achieved through technical

analysis of the underlying physical causes of failure in

service of structures, components, etc. Information and

other technical services are provided for the effective

application of the results of these analyses to the

development of standards, codes, specifications, test methods,

and procedures, as well as to the prediction, detection, and

avoidance of incipient failure.

2. Organizational Structure : A Division of Disaster and Failure

Avoidance (DDFA) is to be set up in BOPT. The technical

facilities of this Division will be heavily engaged in

support activity for BOI, BOS and BOE.

P . Scientific Instrument Design, Construction and Maintenance

1. Mission : To provide a national focal point for technical

know-how on instrument construction, calibration, operation,

and maintenance. Awareness of the world state of the art

and the competitiveness of alternative instrumental measurement systems in needed to advise industry, for example, on

the wise choice of imported instruments.

2. Organizational Structure : This function will be fulfilled

by the Division of Derived Metrology (DDM) in BOPT; and

wide use should be made of accredited test laboratories such

as FIC through the services provided within DOC

Q. Hiring Foreign Expert Advisors

1. Mission : The aim is to give OIP the benefit of high level

administrative and technical assistance from experts abroad,

who should be accompanied by Korean counternart officials to

interpret Korean industrial practices and be prepared to

acquire knowledge, skills and experience from the visiting

experts.

2. Organizational Structure : This function will be best fulfilled

by the specialist division concerned but the foreign experts

will in general be assigned to the Offices of the Director,

Deputy Directors, or Bureau Chiefs. GA will make appropriate

arrangements.
32

R. Overall Planning

1. Mission ; To advise the OIP Director on all programs and

budget planning encompassing all OIP systems, functions,

services, and facilities. They must be evaluated in terms

of national priority goals and needs of Korean economic and

industrial growth. Programs must make the technical

standards and measuring facilities of OIP available to all

other government agencies at their request.

2. Organizational Structure : The Program and Planning Branch

(PP) is to serve the above function.

S . Computer Services and Data Links

1. Mission : The aim is to make available, to all OIP work

and services the benefits of computer useage for scientific,

administration, and record functions, and to provide access

to technological data bases from all over the world by

satellite, cost sharing, and other mechanisms. The aim is

also to advise Korean industry on applications of and

opportunities in computer science and technology such as on the manufauture of possible electronic auxiliary devices

for computers. The competences of KIST should be called

upon to the maximum extent practical.

2. Organizational Structure : This function involves DDM

in BOPT and DSA in BOE.

T. The Principal Technical Resources and Their Management

The above summary of the primary technical functions and

services as seen by the Survey Team barely mentions the technical expert services needed for implementation. These

specialized services are arranged by discipline within the

technical Bureaus and are expected to interact with each other

and with all groups in the Bureaus concerned with direct

industrial services.

For example, the Division for Analytical Chemistry (DAC)

of the Bureau of Chemical Technology (BOCT) provides chemical

analytical services whether it is to establish the safety of

a food for DS, or to establish the compositional standard

test of a concrete for DBC, or to advise a pharmaceutical

company on routine quality control of some raw material

(purchased from a variety of sources) through the intermediary

services of DC.
33

This cooperative and interactive management is the key to

the economical effective supply of specialized services, for any

modern and progressive industrializing society. In a country like

Korea where the practice of vertical line management is common,

it becomes necessary to make a considerable effort to practive

communication between operating groups without referring always

to a common superior high in the administrative scale. Clearly

the organization of one OIP serving all of Korea makes such

interaction easier. However, the ministries responsible for

power supply, for example, will not want a standards setting

procedure for, say, electrical generator equipment without

having a strong voice in the formative phases and a veto over adoption procedures. The consensus principle must apply.

Equally important are the relationships within OIP. Operations

within DS must be able to discuss problems within DSS staff con- cerned without routing an inquiry up and down the line to and

from the Associate Director level. To begin with^OIP will find

it very important to have one of its own units designated to

effect these cooperative relationships both internally and with

groups external to OIP. DSA could be so designated.
34
35

Appendix 1

Abbreviations Used of Organizational Elements

of the Office of Industrial Promotion

BOCT Bureau of Chemical Technology

BONRT Bureau of Natural Resource Technology

BOI Bureau of Inspection

BOS Bureau of Standards

BOPT Bureau of Physical Technology

DAC Division for Analytical Chemistry

DAQ Division of Air Quality

DBC Division of Building Codes

DBT Division of Building Technology

DC Division of Consultation

DCP Division of Consumer Protection

DCPC Division of Chemical Process Control

DCPV Division of Chemical Product Verification

DDFA Division of Disaster and Failure Avoidance

DDM Division of Derived Metrology

DFF Division of Fossil Fuel

DFM Division of Fundamental Metrology

DCS Division of Geological Survey

DIAS Division of Industrial and Agricultural Standards

DIP Division of Information and Publications

DKSM Division of KS Mark
36

DM Division of Metrication

DMM Division of Mineralogy and Mining

DODEM Division of Ore Dressing and Extraction Metallurgy

DQC Division of Quality Control

DS Division of Safety

DSA Division of Systems Analysis

DSS Division of Safety Standards

DWO Division of Water and Oceanoeranhv

DWM Division of Weights and Measures

GA General Affairs

LC Legal Counsel

OIP Office of Industrial Promotion

PP Programming and Planning
5

ruct -; 1 i 1

|

U if

is 5

i

S

37

fllllli III iiI II

mi

J Jj

1 mmh \

J

i rf 11 i lis

!

ra jffll j si in."-- :

jj UU1\

j

•Construction

-Sanitary

.Electrical

Oneral

Specifications

iRoads

&

Bridget

UliIII]

c

o

•H u o

3 S

4J O

CJ J-i 3U

4J rH

CO rl

rH M

CO 4-1 C W

O 3

•H TJ

ti c

CTJ H

N

•rH IW s

°

CJD 01 H U O -H

> O

•H

4J 0) co x:

4-1 4-1 G

CU M-l H O

•H
form NBS-114A '1-7D

U.S. DEPT. OF COMM.

BIBLIOGRAPHIC DATA

SHEET

1. PUBLICATION OR REPORT NO. 2. Gov t Accession No.

3. Recipient's Accession No.

4. TITLE AND SUBTITLE

A Report on a Survey in Korea on Standardization and Measu

ment Services in Support of Industrialization Goals of

Korea. June 19 - 30, 1972

5. Publication Date

i e6, Performing Organization Code

7. AUTHOR(S)

H. Steffen Peiser, Thomas D. Coyle, and Ronald K. Eby

8. Performing Organization

9. PERFORMING ORGANIZATION NAME AND ADDRESS

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

10. Project/Task/Work Unit No. 1560370

11. Contract/Grant No. TA(CE)5-71

12. Sponsoring Organization Name and Address

Agency for International Development

Department of State

Washington, D. C. 20523

13. Type of Report & Period

Coveted , TT)C, „ NBS Report

June 19 - 30, 1972

14. Sponsoring Agency Code

15. SUPPLEMENTARY NOTES

16. ABSTRACT (A 20G--;/ord or less factual summary of most significant information. If document includes a significant

bibliography or literature survey, mention it here.) The survey of standardization and measurement services for developing industries

in Korea has been carried out by NBS with funding by AID, participation by representatives of Ecuador and Turkey, and under the guidance of the Korean Ministers for Commerce

and Industry, and for Science and Technology. The Korean Director of the Survey was backed by six Korean Survey Team members and seven senior staff. The Survey Team spent

two weeks in Korea where it inspected representative laboratories and plants, and had

discussions with leaders of Government, the USAID Mission, principal universities and

industry. The Report describes the preparation for the Survey, a summary of the economy

of the country notes on Korean science and technology, and relevant Korean institutions

and laws. Nineteen problems were identified as of concern to national capability for

standardization and measurement services. A summary description is given of the various

existing and needed functions that Korean government should provide. The idea is en- dorsed to create a single agency to address all these functions.

17. KEY WORDS (Alphabetical order, separated by semicolons)

AID; assistance; economics; LDC's (less developed countries); measurement services;

standardization; survey; Korea

18. AVAILABILITY STATEMENT 19. SECURITY CLASS

(THIS REPORT)

21. NO. OF PAGES

§ UNLIMITED.

UNCLASSIFIED

38

I~1 FOR OFFICIAL DISTRIBUTION. DO NOT RELEASE

TO NT1S.

20. SECURITY CLASS

(THIS PAGE)

UNCLASSIFIED

22. Price

USCOMM-DC 66244-P71