NATIONAL BUREAU OF STANDARDS REPORT

No. 6227

AMERICAN STANDARDS ASSOCIATION, INC.

Ite Functions, History, and Relation to the Department

of Conmerce and to the National Bureau of Standards

by

Hatel S. Snider

Study Paper for the information of

the

National Bureau of Standards Staff

October 1958

U. S. DEPARTMENT OF COMMERCE

NATIONAL BUREAU OF STANDARDS
fi
NATIONAL BUREAU OF STANDARDS REPORT

HBS PROJECT NBS REPORT

30-20-0001 6227

AMERICAN STANDARDS ASSOCIATION, INC.

Its Functions, History, and Relation to the Department

of Commerce and to the National Bureau of Standards

by

Hazel S. Snider

Study Paper for the Information of

the

National Bureau of Standards Staff

October 1958

tMfORTANT NOTICE

NATIONAL BUREAU OF

Intended for use within t to additional evaluation a

listing of this Reporti eltl the Uftice of the Director however, b; the Governm

to reproduce additional c

Approved for public release by the

Director of the National Institute of

Standards and Technology (NIST)

on October 9, 2015.

or progress accounting documents

Is formally published It Is subjected

ling, reproduction, or open-literature rmisslon Is obtained In writing from

C. Such permission it not needed,

iailjr prepared If that agency withes <^p>

U. S. DEPARTMENT OF COMMERCE

NATIONAL BUREAU OF STANDARUS

c 0 n,t g w t s

I. Introduction ......

II. Functions of the ASA

III. History of the ASA . . .

IV. International Cooperation .....

V. Organizational Structure of the ASA ......

VI. Methods of Developing American Standards

VII. Relation of the Department of Commerce and the IffiS to the ASA . . . .

VIII. Present Participation of the HB3 in the ASA . . . .

Page

1

1

2

7

9

10

11

12

APPENDIXES

1. Approval by the Department of Commerce of the Revised Constitution

of the American Engineering Standards Committee

2. Discontinuation of Conanercial Standardisation by the Department of

Commerce and transfer to the i^rican Standards Association

3. Carroll Wilson Report

4. First Report of the Policy Coomitlee on Standards

a. Letter of Transmittal

b. Text of Report

c. Supporting Memorandum

5. Acceptance of Report by thA Department of Commerce

6. Acceptance of Report by the American Standards Association

7. Final Report of the Policy Committee on Standards

8. Withdrawal of the Departmeht of Commerce from the American Standards

Association

9. Attendance by Representatives of the Department of Commerce on the

Standards Council

Page

14

15

16

21

22

23

25

28

31

33

36

37
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AMERICAN STANDARDS ASSOCIATION, INC.

Its Functions, History, and Relation to the Department of

Commerce and the National Bureau of Standards

by Hazel S. Snider

I. Introduction

This study paper has been prepared to acquaint members of the

Bureau staff with the American Standards Association (ASA), which

occupies a central position in domestic standardization and speaks un*- officially for the United States in international standardization.

The ASA is concerned primarily with standards of practice such as codes and specifications as distinguished from the national stand- ards of measurement which are the primary concern of the Bureau.

The United States Government leaves to private Initiative

many standardizing activities that In other countries are conducted

by the government. However, various Federal agencies participate

actively In the technical work of ASA. In the case of the National

Bureau of Standards (NBS) this participation is authorized by the

fourth function stated as follows in the organic act;

"Cooperation with other governmental agencies and with

private organizations In the establishment of standard

practices, incorporated in codes and specifications."

As will be discussed subsequently, ^ny members of the Bureau staff

serve on technical committees of ASA, and a number of them have

been designated by ASA as leaders or members of the United States

delegations to International meetings.

II. Functions of ASA

The ASA is an incorporated body of technical societies, trade

and business associations, professional organizations, and consumers

groups. ASA has been established as the correlating agency through

which standards can be cleared or, if desired, can be developed.

The ASA's only activities relate directly to standardization; stimulating their development and use, providing a framework within which

such development may take place both nationally and Internationally,

and serving as a clearinghouse for Information concerning them.

2

The functions of ASA, as defined In the Constitution of that

Association, are as follows:

1. ''to provide systematic means by which organizations

concerned with standardization work may cooperate in

establishing American Standards, to the end that duplication of work and the promulgation of conflicting standards

may be avoided.

2. 'To stimulate the work of existing committees and other

organizations competent to formulate standards suitable

for approval as American Standards, and to bring about

the establishment of committees or organizations for

this purpose where they do not already exist, but not to

formulate standards.

3. 'To serve as a clearinghouse for information on standardization work in the United States and foreign countries.

4. 'To further the standardization movement as a means of

advancing national economy and to promote a knowledge

of and the use of approved standards.

5. 'To act as the authoritative American channel in international cooperation in standardization work, except in

those fields adequately provided for by existing internet ional organizat ions .

III. History of ASA

ASA has developed over a period of about 40 years to its present

position as the central coordinating organization for standards in

the United States. This development has come about in response to

a need for coordination outside of Government that was not otherwise

being met.

The ASA is an outgrowth of the American Engineering Standards

Committee (AESC ) which was organized in 1918 by a group of 15 business

executives representing the country's leading engineering societies--

American Society of Civil Engineers, American Institute of Mining

Engineers, American Society of Mechanical Engineers, American Institute of Electrical Engineers, and the American Society for Testing

Materials.

The AESC voted to invite the Bureau of Standards, the War

Department, and the Navy Department to accept membership on an equal

basis with the founding societies at a meeting on May 4, 1918. The
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invitations were delivered in person by the chairman of the AESC and were cordially received by the Secretary of Commerce, Secretary of

Wai; and Secretary of the Navy. At a meeting of the AESC on May 17, 1919, representatives of the Bureau of Standards, the Navy

Department, and the War Department were present for the first time.

The first major participation by Government in standards activities

of the AESC was in the developmeht of safety standards.

During World War I the U. S. Government for the first time

gave detailed attention to the prevention of accidents in its own

industrial plants, su<;h as the arsenals and navy yards. Safety

engineers were appointed, and these safety engineers set up an informal organization for cooperation In their own work. The NBS

was called upon by them to assist in formulating a series of safety

standards for application in the Government establishments.

The National Safety Council suggested that similar standards

should be formulated for general use throughout the country. This

suggestion was made as a result of a survey conducted by the Council

which demonstrated the great hodgepodge of rules, regulations and

safe practice recommendations that existed throughout the country as developed by Federal agencies. State regulatory bodies. Insurance

groups, trade associations, technical societies, and other organizations. An interest was shown in this idea by all those concerned

with accident prevention and especially by the various State com- missions concerned with factory inspection and with the general

safety of workers. Realizing the importance of safety codes

prepared upon a national basis, and as a result of demands for

extension of its previous work, the Bureau called a preliminary

conference on this subject at Washington in January 1919 and a second conference in December of the same year. At these conferences

the need for national codes was generally recognized and the best

method for preparing them was given full consideration. It was finally agreed that the scheme of procedure in establishing national

standards which had recently been inaugurated by the AESC would be

the most satisfactory to utilize in the preparation of safety codes.

This brought up the question of whether the AESC was sufficiently

representative to serve in such capacity; and, after a discussion

within the committee and between it and a limited number of representatives of other interests--which discussion continued for three months--

the committee prepared a revision of its constitution that provided

for a broadening of its membership and functions. The Department of

Commerce gave its approval of the revised constitution (See Appendix 1).

All the technical societies, trade associations, professional groups,

private companies, and governmental bodies that were interested in

national standards were invited to join the AESC. Its mission was now to act as the national clearinghouse for standards. Its function

was to simplify the development of standards: to eliminate duplication

and variation of standards; and to weld conflicting standards into a single, generally accepted standard designated as "American Standard."
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The Washington conference, called by the Bureau of Standards

at its second session on December 8, 1919, requested the AESC to

ask the National Bureau of Standards, the International Association

of Industrial Accident Boards and Commissions (lAIABC) , and the

National Safety Council to organize the National Safety Code Committee, later designated as the Safety Code Correlating Committee

(now the Safety Standards Board). The NSCC's first report included

a list of 37 safety codes which were considered of the ihost immediate

Importance, and for which sponsor bodies were recommended.

As a result of the expanded activity in safety and other fields,

the structure of AESC was changed in 1928 from a committee to a fullfledged association. A Board of Directors was created to handle

administration policy and finance. A Standards Council representing

all member organizations was established to supervise the technical

activities. The name was changed to American Standards Association.

In 1933 the Government's economy program necessitated the

curtailment of certain activities theretofore carried on by NBS.

Most of the work which the Bureau had done in the field of simplification, commercial standards, and safety codes had been conducted

in cooperation with ASA, the scope of whose activities had been

enlarged from time to time to cover activities of the type being

carried on by the Bureau.

At a Conference on Simplified Practice, Commercial Standards,

and Safety Codes, held at the Department of Commerce in October 1933,

Secretary Roper emphasized the proper relationship which Government

should have to business in giving all the aid possible but not doing

for industry what it can do for itself. It was explained that the

Economy Committee, when examining the budget of NBS, had concluded

that this work was of the sort which industry could carry on by its

own efforts, and it was felt that ASA should be invited to help

carry on this work (See Appendix 2). In 1934 preliminary arrangements were made for the transfer of the work of the Building and

Plumbing Code Committee to the ASA. At that time the Washington

office of the ASA was established at NBS to facilitate the cooperative work of the two organizations.

The Bureau retained a skeleton organization of the Divisions

of Simplified Practice, Trade Standards, Coimnerclal Standards,

Building and Housing, and the Safety Standards Section. These units were slowly rebuilt as the depression passed. Their work was coordinated with ASA.
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In 1942 a contract was signed by ASA with Governioent to develop

War Standards for WPB and OPA. In addition, the ASA was active on behalf of other governmental departments in developing War Standards--e.g., Photographic Exposure Guide, prepared at the request of

the U, S. Army and Navy, which was used on all military ships and

planes photographically equipped..

The Secretary of Commerce, through the Visiting Committee of

NBS, invited representatives of industry to attend a "Conference on Standardization" on January 12, 1945, to consider a report entitled

"Standards in Commerce*-°A Basis for Action" (Appendix 3). This

report was submitted to the Secretary by Carroll L. Wilson, a consultant to the Secretary.

The report pointed out the need for development of performance

standards for consumer goods and the need for a single private

body to serve as a focal point of leadership in standards development. The principal recommendations in the report were as follows:

1. The Department should foster active collaboration by its

agencies with private standardizing activities.

2. The Connnercial Standards and Simplified Practice Divisions

should be transferred from NBS to the Department of

Commerce, and

3. The complete rebuilding of ASA into a new, exclusively

private standards body, capable of dealing effectively

with both industrial and consumer standards.

The Conference endorsed the report. It also noted with approval

the steps taken by ASA to broaden the scope of its work so that it

might deal with standards in any field deserving national recognition. The Conference recommended that the Secretary of Commerce

appoint a Policy Committee of industrial executives to advise with

the President of the ASA regarding steps to effectuate recommendations made at the Conference. The documents pertaining to the

activities of the Policy Committee on Standards are given in

Appendixes 4, 5, 6 and 7.

A Policy Committee, chairmaned by Mr. Charles E. Wilson,

recommended that (1) the Divisions of Simplified Practice and Trade

Standards be transferred *^rom NBS to a more suitable location elsewhere in the Department, and that NBS plan for a continuation of

research in the field of standards and for future development of

needed testing methods; and (2) that the Department withdraw from

the field' of initiating and publishing standards which are voluntarily agreed to by Industry groups as soon as the ASA "implements

itself for such functions."
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Secretary Wallace's letter accepting the report of the Policy

Committee set forth his plans for transferring the two divisions from

NBS to the Department. The functions of the transferred divisions

would be:

1. To sponsor and perform basic research in the economic and

marketing fields for the ASA and other groups and organiza**

tions engaged in formulating voluntary standards or desiring

to initiate standards;

2. Act as sponsor for groups in proposing standards to the

ASA for Issuance as American Standards;

3. Retain the Department's present function of initiating

and proposing to the ASA or to any other groups the

development of voluntary standards where the Department

finds on the basis of economic studies that such standards

would be desirable in the public Interest; and

4. Retain the function of publishing a voluntary standard

developed by a group if that group requests the Department

to publish. Such standards would clearly indicate the

industry or other group or groups on whose behalf the

Department is publishing.

Secretary Wallace further explained that the Department does not

wish to compete with, or to duplicate, the services which private

organizations can provide equally well, but that the Department cannot

properly close the door to industry and other economic groups which

request the direct assistance of the Department in developing and

in publishing voluntary standards on their behalf. "However, to the

extent that the American Standards Association reorganizes its procedures in accordance with the recommendation of your Committee so that it can perform trade standard services to the satisfaction of

all the groups with an interest in standards, the Department is

prepared to encourage the use of the facilities of the ASA for the

initiation, development, and publication of standards."

Secretary Wallace asked the Policy Committee on Standards to

continue to function as an advisory group to him and to the Department. He suggested also that a joint conference committee of the

ASA and the Department be set up to help promote the wider use of

voluntary standards covering the entire field of standards --the

scientific, technical, and testing aspects as well as the economic,

marketing, and trade aspects of the problem.
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Such a joint committee was established consisting of the

following membership: (1) from the Department of Commerce -- Dr. E.

U. Condon, Director; Mr. Philip M. Hauser, Director, Office of Program

Planning; Mr. Harold Young, Solicitor; and a representative from the

Office of Domestic Commerce; (2) from the ASA -- Mr. Howard Coonley,

Chairman, Executive Committee; Mr. H. S. Osborne, Past Chairman,

Standards Council and Member of the Board of Directors; Mr. P. G.

Agnew, Vice President and Secretary; and Mr. Cyril Ainsworth,

Technical Director and Assistant Secretary.

At the first meeting of this committee it was agreed that the

Department of Commerce and the ASA should cooperate in the develop*

ment of a national program which will bring the widest benefits in

the shortest period of time. The ASA was requested to present some concrete proposals as to how the Department could help to further

the program.

A first draft of proposals was prepared dealing with the need

for investigation and research. However, before these proposals were developed in final form, the work of the Joint Committee was interrupted by a change in the administration of the Department

of Commerce. A further complication was the incorporation of ASA

under the laws of the State of New York. This appears to have

been under consideration for some time before it was consummated

in 1948.

As a result of the incorporation, the Department of Commerce

(along with other Government member-bodies) withdrew from active

participation in the administrative affairs of the Association

because at the time question was raised by the solicitors for the various departments concerned, including the Department of Justice, as to the propriety of membership by Government

in private organizations in the absence of specific statutory

authority (Appendix 8).

IV. International Cooperation

The American Standards Association acts as an authoritative

American channel of cooperation in international standardization

matters. It makes available to American industry information on

the standardization work of foreign countries. It promotes a knowledge of American Standards in foreign countries. The ASA

maintains a library of standards of which the foreign standards

comprise those of 43 nations, and maintains exchanges with 39

fellow members in the ISO and also with certain groups such as IRAM in Argentina, UNIT in Uruguay, the Chinese National Bureau

in Taiwan.
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- 8 -

International Standards Association (ISA) - The international

activities of the ASA have involved cooperation with other national

standardizing bodies both directly and through the ISA-*-founded in

1926--which at the beginning of the war comprised the national

standardizing bodies of 22 countries. Through the activities of

the ISA agreement was achieved on a number of important standards

of Interest to American lndustry--e.g. , motion picture film, ball

bearings, etc. The ISA was Inactive during the war.

United National Standards Coordinating Committee (UNSCC) - In

1944 the UNSCC was set up for a period of two years upon the initiative of the United States, Canada, and Great Britain in order "To

promote the maximum possible coordination and unification of

standards necessary for the war effort and the immediate post-war

period." The national standardizing bodies of 15 nations were members

.

At a meeting in New York in October 1943 the UNSCC took the

first step in setting up a permanent international standards

organization to carry forward the work of the UNSCC and the old

ISA. It was felt that in the post-war world, the International

aspects of standards were going to be of far greater importance

than formerly, and that, accordingly, the permanent institution

must be more strongly organized and more amply financed and staffed

than was the old ISA.

International Organization for Standardization (ISO) - The ISO was founded in 1946, an outgrowth of the UNSCC and the ISA. The ISO is one

of the world's clearinghouse for the development and promotion of

international standards. Through ISO the national standardizing

bodies of 40 countries coordinate their standards in the interest

of improving international trade. The technical work of the ISO

is carried on by technical committees made up of a delegation from

each of the member-bodies wishing to take part in the work of the

committee. The United States member of ISO is the ASA which seeks

to establish an American viewpoint for presentation in discussions

where International standards are chosen, established, and approved.

The Managing Director of ASA was elected Vice President of ISO in

June 1958.

The ISO holds consultative status as a non-governmental

organization with the Economic and Social Council of the United

Nations.
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International Electrotechnical Commission (lEC) - The lEC was organized In St. Louis In 1904 and has functioned since that time

as the International standardizing body for the electrical and

related Industries. The lEC affiliated Itself with the ISO In

1947 as a technical division.

United States Interest In the work of the lEC Is represented

by the U. S. National Coomlttee of lEC, which Is an arm of the ASA.

As a result of more than 50 years of work by lEC committees,

many electrotechnical units, quantities, symbols, and terms have

been made uniform throughout many countries of the world. Uniform

test methods and standards of dimensions, properties, performance,

and safety have been developed foo: many kinds of electric equipment.

Inter- American Cooperation - The Inter -American Department of

ASA was formed late In 1942, the primary objective of which was close collaboration with the standardizing bodies In other American

Republics

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V. Organizational Structure of ASA

The ASA's ultimate authority stems from member-bodies. There

are two other types of membershlps--Honorary Members and Sustaining

Members, as provided for In the By-Laws. The principal organs of

the organization are the Board of Directors and the Standards

Council. The Board of Directors handles the general policy, administrative, and financial affairs of the ASA. Its members are elected upon nomination by selected member-bodies. The Standards

Council, made up of representatives from each of the member-bodies,

has jurisdiction over procedures In the development of standards

and their approval. Serving in an advisory capacity to the

Standards Council are the Standard Boards, which on behalf of the

Standards Council approve the Initiation of projects, their scopes

and sponsors, approve the personnel of sectional committees, and

make recommendations on approval of standards to the Board of

Review. The latter Is a group of six members of the Council

elected annually to act on behalf of the Council on approval of

standards. The standards boards also supervise the work of the

various sectional committees In their fields. It Is In these

sectional committees, where all groups Interested are represented,

that most of the technical work of the Association Is handled.

Many of the committees concerned with the development of definite

standards operate under the procedure of the ASA, but they are usually sponsored by one or more ASA member-bodies or other national

organizations

.

" 10

VI o Methods of Developing American Standards

An American Standard is one of national application approved by

the American Standards Association as having been accepted by all

groups and organizations substantially concerned with its scope and

provision, and is one which has a national standing.

As a matter of convenience in record keeping and to make

American Standards easily referenced by those who use them, each

standard approved by the ASA is assigned an ASA number. These are Identification numbers only. When the ASA finds that a standard

prepared by a committee under the sponsorship of the ASTM, for

example, has been accepted by consensus of national groups of

producers, users, and general interests that are concerned, that

ASTM standard is granted approval as an "American Standard," It

then receives an ASA number in addition to its ASTM number.

All American Standards are voluntarily arrived at by common

consent and are available for voluntary use. They are subject to

regular review, as a result of which they may be reaffirmed, revised,

or withdrawn. Practically all types of standards of practice of

national importance may be approved as American Standards, such as

(1) definitx-'ns , terminology, symbols, and abbreviations; (2) standards for materials, performance characteristics, procedure, and

methods of rating; (3) methods of testing and analysis; (4) standards of size, weight, volume, and rating; and (5) standards

incorporated in codes such as those relating to safety, health,

and building construction,

American Standards come into existence through four basic

methods-- (1) Sectional Committee Method, (2) Existing Standards

Method, (3) General Acceptance Method, and (4) Proprietary Method,

Sectional Committee Method - The membership of sectional com- mittees must be representative of all national groups and organizations substantially concerned with the scope of the standard project . The administration of a sectional committee is usually in the hands

of one or more organizations known as sponsors. When a sectional

committee has formulated a standard and the sponsor believes that

consensus is obtained and considers the standard technically sound,

the draft is submitted to the appropriate Standards Board for action.

It either recommends that the Board of Review approve the standard

as an American Standard, or it may return the standard to the sponsor

indicating objections. When the Board of Review is satisfied that

a consensus exists and that all other ASA rules and requirements are

met, the standard is approved as an American Standard and published.

- 11 .

Existing Standards Method - An existing standard of any organization may be submitted to ASA for approval as an American Standard

(1) if the standard is national in scope and recognition, (2) if it

has been accepted by those substantially concerned with its scope

and provisions, and (3) if the standard does not conflict with other

standards in its field.

General Acceptance Method - This method is suitable for comparatively simple projects that do not require prolonged technical

discussions. Standards are discussed and agreed upon only at a General Conference. Groups not represented at the conference, but

substantially concerned with the scope and provisions of the standard

proposed, can give their comments and vote in writing.

Proprietary Method - This method is applicable only in those cases for the revisions of standards which have been approved by the

ASA. Any responsible body having a position of pre-eminent importance in the field of the standard may be designated as a sponsor

for the development of revisions of the standard within its

organization, such revisions to be submitted to the Association

for approval.

VII, Relation of the Department of Commerce and the NBS to ASA

The policy of the Department of Commerce has been to work with

other organizations toward the building up of a recognized national

centralizing and coordinating agency for industrial standards.

Active membership of the Department of Commerce in the ASA

dates from 1918, when the Department accepted an invitation to

join the AESC with the standing of founder, until July 30, 1948,

when the ASA was incorporated (Appendix 8). Prior to the incorporation, representatives of the Department served on the Standards

Council, Board of Directors, and the Correlating Committees (now

Standards Boards), with voting privileges. At the time the

Department withdrew as a member-body of ASA, the chairman of the

Standards Council was a representative of the Department of Commerce.

In 1952 Secretary Sawyer accepted the invitation from ASA for

members of the Department to attend meetings of the Standards

Council with the privilege of the floor (Appendixes 9a and 9b).

The ASA provides a technical Advisory Committee whose function

is to advise the Director of the Bureau in specific technical areas. This Advisory Committee was appointed as a result of a recommendation

made by the Ad Hoc Committee (Kelly Committee) for the Evaluation of

the Functions and Operations of the Bureau in their report of

October 1953.

12 -

Another important relation arises through the Department's

work on Commercial Standards, and, to a less extent, on Simplified

Practices. In the first of these, the Department lends Its aid

to Individual industries In developing Commercial Standards for use In marketing their commodities. Simplified Practices have for

their objective the elimination of unnecessary variety and the

concentration of production on the most Important Items.

Upon completion of one of these voluntary standards of practice

the Division of Commodity Standards suggests to the proponent

group that they consider the further possible step of submitting

their standard to the ASA for approval as an American Standard.

VIII. Present Participation of the NBS In ASA

Although Bureau employees may not serve in an administrative

capacity with voting privileges, the Bureau Is represented on approximately seven of the Standards Boards>>Acoustlcal , Construction, Consumer Goods, Electrical, Materials and Testing, Nuclear,

and Safety. A bureau staff member is one of the Department's

two representatives on the Standard® Council.

Bureau staff members serve on the technical committees of ASA

as Independent technical experts, thus giving the committees the

benefit of their specialized knowledge and experience. In a number of cases where there has been an acute need of research In

the work of technical committees, special funds have been raised

by Industry to support research work at the Bureau on these

specialized problems. Bureau staff members serve on approximately

115 main technical committees of ASA, with a total committee

membership of approximately 275. The Bureau holds the chairmanship of ten of the main committees and the secretaryship of

eight.

Many Bureau staff members serve as ASA delegates to International meetings. Five such delegates attended the 1958 General

Meeting of the lEC which was held in Sweden In July.
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Among the ISO technical committee meetings which Bureau

employees, as ASA delegates, have attended during the past several

months are the following: plastics, textiles, rubber, photography, cinematography, screw threads, sieves, acoustics, small tools, and’

copper and copper alloys. *

The Bureau is sole sponsor for seven ASA projects and is co- sponsor for six others. A sponsor assumes the administrative

responsibility for the entire organization and work of the project.

In the technical deliberations of the sectional committee formulating the standard, the sponsor has no greater voice than any

of the other participating organizations. Sponsorships are assigned in recognition of leadership and competence in the

particular fields involved.
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AFPEHDIX 1

- 14 -

October 29, 1919

Dear Sir;

1. The representatives of the Department of Conmerce on the

Engineering Standards Coomittee, Messrs <> S. W. Stratton, E. B. Rosa

and 6. K. Burgess, have considered the revised Constitution and have

informed me that it meets with their approval

2. I, therefore, take pleasure in informing you that the

Department of Commerce formally approves the proposed revision of the

Constitution submitted with your letter of August 30, 1919.

3. I take this opportunity to express the most hearty desire of

the Department Commerce to aid in all possible ways the objects of the

iunerlcan Engineering Standards Committee, and I can assure you of the

cordial support of Doctor Stratton and the scientific and technical

staff of the Bureau of Standards In furthering the work of the

Committee for which I predict a most useful service to the country.

Tours very truly.

William C. Redfield

Secretary of Commerce

Profe C. A. Adams, Chairman

American Engineering Standards Coronittee

29 West 39th Street

New York, New fork

15

APPENDIX 2

Mr. Howard Coonley

President » American Standards Association

Mew York, New York

My dear Mr. Coonley:

The Bureau of Standards is discontinuing most of the work which it

has been carrying on in the field of simplification, commercial standards,

safety codes, and building bodes. This step, undertaken in the belief

that these functions should be in the hands of industry and consumer

groups, is being carried out as a part of the government economy program.

I am pleased that we shall be able to count on the American Standards

Association to carry on the essentials of this work, which, as a result of our discussions, I now understand the Association will be prepared to do.

Its experience and standing as the national clearing house for industrial

standardization, and the cooperative methods which it has developed

during the past 15 years fit it for the Increased responsibilities and

the enlarged program entailed. It is thus possible to conserve the

results of these pioneering services to industry which the Bureau of

standards has developed during the last 12 years, and to further the

national economy by carrying these services forward.

I can assure you that the full cooperation of the Bureau of

Standards will at all times be available both in carrying through the

transfer with a minimum of disruptiou of the work, and also in provid*^

ing through the Bureau's facilities at least a part of the research

work necessary in connection with standardization projects.

Sincerely yours.

July 10, 1933 Daniel C. Roper

Secretary of Commerce
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16 APPENDIX 3

(EXHIBIT A

)

Report presented by Carroll L. Wilson to the Secretary of Commerce, ond approved in principle by the

Conference on Standardization January 12

Standards development has been active in this country since the start of the

century. Most of the work has been carried on under private initiative, throu^

the efforts of several hundred business organizations and a much larger number

of individual concerns. Many government agencies have also contributed, notably

the Department of Agriculture, the Food and Drug Administration, and the National

Bureau of Standards. The focal clearing house of private activity has boon the

Amoricon Standards Association (of which the Department . of Ccnimerco has long been

a member). This body had its beginning in the first World War, which indeed gave

a great lift to the whole movement, both hero and abroad, Tho commercial work of

the NBS likewise got Its real start at that time.

Today tho United States leads tho standards world, thanks to tho widespread

interest and Inltlatlvo applied by Its citizens in this field during tho past

generation. In the basic arts of moasuroment tho NBS appears to have achieved

almost unlqtue stature, But in tho application of standards to commerco, the

actual achievements of both NBS and ASA seem to have fallen short of their opportu

nltlos. Such shortcomings had no very serious consequences while tho coraraorclal

stondards doalt with by these two organizations wore confined largely to ”lndustrlfil

goods," But if standards are to be extended as aids to the ultimate consumer, a far more effect Ivo performance will bo essential.

Current discussion of the standards movement and its future goes on in an atmosphere of intense controversy. As long as standardization was confined

chiefly to industrial goods, the rivalry and contention appears to have boon about

what might normally be expected in any field of technical progress. But recent

developments, in particular the work of tho Office of Price Administration, have

heavily emphasized tho likelihood that standards may come to bo applied oxtenolvol;>-

to consumer goods. This prospect has whetted the edge of old rivalries and injected new elements of controversy, bringing the subject almost to an explosive

state. Under these conditions people interested in standards tend to fall into

opposing oonps. For example, many contend vigorously that only tho government

through tho NBS can deal effectively with the consumer goods problem; others are Just as insistent that tho ASA is incomparably tho better vehicle for leadership.

The first propose that the Department withdraw from membership in tho ASA; the

second counter (in effect) with a proposed Congressional Charter for tho ASA.

This sort of porsonalizod dontroversy confuses the real issues and obscures tho

constructive possibilltlos; it is emphatically rejected as a basis for this analysis.

The truly significant questions are those; How real and how extensive is tho

need for more active standards development? What kind of standards will bo most

in demand? How can tho NBS and tho Department contribute most effectively? What

have other govomoont agencies to offer? What specific contribution con a private clearing house such as the ASA be expected to make?

It is probable that tho next two decades will bring a strong growth in con- sumers' demand for facts on the performance of things they buy. From this demand

will ocme tho need for many porfomanco standards. To develop this and other now

V

consumer aids effectively, and to exploit the Industrial goods area still un- touched, will call for more intensive, more skillful cultivation of the vhole

standards field than has heretofore been applied. Only if the need vero pre- dominately for compulBory standards would there be a clear case for govommont

to assume active leadership. But the groat majority of standards in prospect

Involve no questions of health, personal safety, or protection of property. Accordingly, compulsory standards can legitimately play only a secondary part.

Therefore, the public should look primarily to business rather than government,

to evolve the performance data it will want. Likewise, standards development

should follow the voluntary agreement process as its main channel. For this

work the Department and the NBS (and also other govomnicnt agencies) con provide

facts,- measurements, an^ technical assistoncoj those will bo their best contributions.

The opportunities for moro effective collaboration between the Department

and private organizations are truly substantial. Light is shed on this by a glipso at the processes of establishing a now standard- -promotion or education^

formulation, review, advance acceptance, ^compliance. Consider a performance

standard for some consumer 'Item; for example, the durability of shoos solos, or the accuracy of on alarm clock. Before thoro can bo such a standard there must

be an effective demand for performance data. Somebody has to sell tho idea.

Here tho mall order houses have already taken tho load, because the facte help

them sell goods. This practice will surely spread to other merchandising fields.

It is not too clear that tho Department can make any substantial contribution to

this promotional work. There will be opportunities for consumer organizations to

do plonoorlng, and for spreading knowledge about standards through tho public

school systora.

The actual devolopmont of a specific standard rests on negotiation, to which

tho Dopartmont can contribute but little of Intrinsic valuo. But. this stage

also, calls for facts, research on testing methods, market analysis; hero tho

Department and tho NBS have much to offer, Tho public acceptance of any standard

will depend heavily on the rigor of the tests that it moots for adequacy and

equity. If a *’court of review" (such as tho ASA Standards Coimcil) is required,

it should bo Judged by ltd own acts; tho direct participation of any govornnontal

agency hero could distract attention from tho actvial quality of tho "court’s"

porfomonco and, conversely, could embarrass tho govornnont. Finally thoro are the advance acceptance and compliance etagos. To tho extent that those latter

i.iay bo nocooeary in any given case, thoro is definite opportunity for tho Department to contribute a point of registry, as well as statistics and other facts.

In short, oven such a brief review of tho standardizing process suggests amplo

opportunltloe for collaboration.

One potent source of tho current controveisy is inherent in the prevailing

standards concepts. These are unsuitablo for application to most cousumor goods.

The most Inportont are minimum standards, grade labeling, over-all specifications

or "design" standards, and the "trade stondardo" fostorod by tho NBS, Of these

tho first throe either ignore tho competitive process or trend to hamper its

operation. ,Tho "minimum standards" concept seeks to establish a definite levol

of quality below which competition is In effect to bo treated as lllogltimate.

This concept le satisfactory whore questions of health, safety, or property protection ore Involved; but there is no satisfactory basis for dotorralning ouch a level whore those criteria ax*o missing^ as is tho case for most consumer goods.

18

Indeed, rigorous Interproters of prevailing anti -trust philosophy vould rightly

frown on this practice. The grade labeling approach is on effort to almpllfy

quality and performance information; but if applied to any but the simplest type

of product (such as canned vegetables?), it is inevitably misleading. The

complete standard of design and worlsinanship (implicit in earlier proposals of

the British Standards Institution?) is a grossly Inpractical attempt to predetermine the complex matrix of qualities that make for general desirability.

Finally, the KBS "trade standard" with its labeling provision is weak, in that

it is not specif Ically designed to give the consumer adequate buying information.

A typo of performance standard designed explicitly to Implement the com- petitive process is proposed for consideration. The following example, deliberately overs Impllf led for the sake of clarity, will Illustrate both how such

a standard ml^t be establlshod and how it could bo used as a tool in compotltion

Assume that a satisfactory tost on mon*s business shirts has been dovisod,

equivalent to actual laundry wear. Assume that performance under this

test Is expressible in simple terms easily grasped by the consumer-

number of trips to tho (standard) laundry. Let a sample check bo taken

of the avorogo porfomanco of all such shirts sold. Say this average

wear oomos out at 40 s,tandard trips. Let this average be adopted as tho

”?5 amparativo standard," to bo used at will as a target in competitive

selling;

"Our Prt^iilum Brand shirt gives you 80 trips, yet it sells for only 50

cents more than typical prices for standard Uo-trip shirts." "Our Truvaluo shirt gives you only JO trips; but you pay only half tho usual prlc<

for the 40-trlp standard article." '?4r. Main Street.' Your town in clean.

Why pay for laundry wear you don't need? Compare our finely tailored fon

fit shirt. Yet it costs no more than ordinary shirts that only give you

5 more unnoedod launderings . " "Try Gentle's Patent Laundry. Kind 'treatment converts your 40-trlp 'standard to an 80-trlp deluxe." "Fink's Finos

Forty-Moots every standard test-Sots tho standard for valuol'

There's plenty of room for selling ingenuity when a standard is used in this manner. Leave it primarily up to the individual seller hlmsolf to decide whether

or not to stress the woor performance factor; but give the standard wide independent circulation (through tho schools, etc) among consumers, to spixr demand for

uuch information. Take new sample checks at intervals —say every five years--and

raise or lower the (overogo) standard accordingly. Ropoat tho process, developing

new "Comparative Standards" for other qualities, such as shrinkage, whenever a sub

atantlal pontentlnl demand is uncovered.

This proposal has yet to bo submitted to tho experts. It is not offered as o universal panacea; but it would moot many needs that are missed by the standards

concepts now prevailing- ^and it would work with competitive merchandising, not

ago Inst it.

There is a strong case for a single private body to serve as a focal point of

leadership in standards development, for both industrial and consumer goods. Its

logical functions would be; To promoto actively the use of standards; to assist li
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the- Qctucl CtCvelopnont Indivl.'f.u"! etr.ndnrde through voluntcry cgrooiucnt by preducora, ricrchants, ond uoort); to nolntaln on c high plono itc ovn rules of equity

and cdoquccy r.o rlgoroua toots of oil otendards issued in its none. It vould cnl

upon both govornnent and prlvcto oourcoe for nld in developing” tooto and for norket Infomr.tlon. To tho extent that ndvnnce cccept.oncos end perfomance checko

•.night be required, It could enlist govemnent collaboration. To carry out these

general functions, a single agency dealing with all types of standards problens

(including elnpllflod practices) should bo feasible.

To provide effective leadership, such a standards agency vould itself have

ncet certain ninlnum roquirenonts. It vould have to be completely above suspiclo

of undue financial control by special interests. Its top managenont should reflec

equitably the points of view of producers, merchants, and cona'amers; but it ehoulc

be free of all official entanglements with other organizations, free to act as a single -purpose body. It should be led, particularly in the next few years, by an

able, enterprise builder devoting ell or a large share of his attention to its development. Its staff should Include men competent not alone In engineering, but

in negotiations, In market anclysla, and In promotion. Its procoduros should facilitate the most direct contact with the best technical 8kllls--including merchai

dlaing--availablo throughout tho country.- Furthermore, these procedures should

combine equity with realistic speed, speed in tune with tho actual pace of industrial progress.

Tho future development of commercial and industrial standards will probably

placo a heqvlly increased burden on tho technical facilities of the NBS. Steps

should be taken to strengthen tho Bureau accordingly. In particular, more direct

and more adequate legislative authorization should bo provided for work to be done

without charge by the NBS, on request from tax-exempt private organizations JudS^d

to be operating in tho broad public interest . While tho present survey has not

been focussed on tho Bureau’s work related to Federal procurement, there Is ovldenco that a thorough study of this function might point to substantial improvement. It has been suggested that tho Bureau's basic scientific work suffers poronnlally from lack of funds. If further study should support this claim, stops shou'

be taken to apprise buBincss and tho eclontific professions of tho facts; for the!'

is the primary responsibility for informing tho Congress on soirviceG required from

the Bureau. Finally, the Commercial Standards and Slmpllflod Practice Divisions

should bo removed from tho Bureau ns soon as it may bo feasible. Their work, boin

primarily involved in questions of business Judgment, is out of placo in this otho.L

wise exclusively scientific and technical body.

These cornmorclal activities of the NBS should bo transferred, either to tho

Office of tho Secretary or to tho Bureau of Foreign and Domestic Commerce. But

the move should bo made only when a foaslblo adnlnlstratlve plan can bo devised

and put into operation. Tho work of the Commercial Standards and Slnpliflod

Practice Divisions should be continued. The demand for commercial standardizing

activity in tho Dopertmont is quite likely to increase in any event, oven thougii

establishment of the new private standards body whould call for a change in tho

nature of this work. It is rcasonoblo to proceed on the assumption that tho Depart

ment‘s oxporloncod and competent personnel will prove capable of adapting thenselves to such evolution in the character of thoir work as circunstancos may rolilro.

If and when tho transfer of tho Connorclal Standards and Simplified Practice

Divisions frean tho NBS is mndo, it should not bo nocossnry thoroafter merely to

itoreotypo tho Doportnont’s coronorclal standards work in toms of existing routine.
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On tho contrary, If an approcch along tho general Inos rocennendod in this report

la adopted, It ahould bo poealblo to. proceed almost immediately vith experiments

looking to natorial inprovenont in tho art of standardization. Those night include study of tho available means for detecting need for consumer goods standard

sampling as a tool In formulating standards of simplified practices for consumer

goods, tho active use of advance acceptances as a device to speed the effective

adoption of new standards, sthe possible use of periodic performance surveys as an aid to standards progress, and the development of more effective procedures for

reaching voluntary agreements on standards In process. Also, if the recommended

new type of performance standard discussed In this report should pass tho tost of

advanco criticism by exports, it would bo highly desirable to select same promisl;

Items and dovolop tho ontlro procedure ori an experimental basis. In short, there

should bo plenty of valuable now work ahead for tho Department’s ccramerclal standards group. However, this work should eventually be concentrated on oxperimonta

development and service. Private organizations, including the proposed now standards body, should bo lod to accept full responsibility for promoting new standards. They should carry on such promotion in tholr own namo, without leaning

unduly on tho public good will attached to tho reputation of any government ngenc.

To conclude, tho outlook calls for more effect ivo leadership in future standards dovolopmont than has previously oxistod. Tho new emphasis Is likely to bo on porformanco Information and rolatod standards, for constnner goods. To contribute most offoctlvoly, tho Dopartmont should foster active collaboration by Its

agencies, tho, MBS, and (probably) tho BF&DC, with private standardizing actlvltlof

In particular there is need for rebuilding the American Standards Association, in

order to provide- an effective spearhead of leadership

The MBS needs stronger loglslativo authorization for contributing Its measure

raont skills to the anticipated now dovolopmonts. As a corollary. Its scientific

work and Its procurement tt/sting for the Federal Government might well be oubjoett

to review, with real prospect of enhancing tholr effect Ivonoso. Tho commoroial

activities of tho KBS should bo transferred olsowhoro in tho Dopartmont, and con- tinued. There will be limodiato opportunities for pioneering experiments by the

group transferred, looking to basic Improvement In tho whole standardizing art,

applied particularly to consunor goods. In particular. It is suggested that a radically different typo of comparative porformanco standard for consumer goods

night, bo dovelopod, for oystonatlc use as a device to sharpen tho edge of oompotitlvo merchandising.

Tho koy rocommondation is tho comploto rebuilding of tho American Standards

Association into a new, exclusively private standards body, capable of dealing effectively with both Industrial and consunor goods, Tho Secretory of Comnorco can legitimately lend his good offices to this venture, by reason of tho Dopertnent’s

long continued momborohip In tho Association, and more Important, because of his

broad responsibility for promoting coEmorco, However, adoption of these rocem- mendations would have far-ro< chlng effects on future operations of tho National

Bureau of Standards, Ifonco ^hls report should first bo submitted to tho Bureau’s

Visiting Cocmlttoo for* 'their conslderation. Tho Secretary night suggest that thlt

Committee Jolxi him in preparations for calling a conference of business exocutlvoe

and other loadoro Interested In the future development of standards In tho United

States.
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21

APPENDIX 4

First

REPORT

on

THE POLICY COMMITTEE ON STANDARDS

by

Charles E. Wilson, Chairman

Reproduction from INDUSTRIAL STANDARDIZATION

by permission of the American Standards Association, Inc.
'9

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22

June 6, 1945 Mr. Cano Dunn,

Chairman of the Visiting Committee of the National Bureau of Standards

Dear Mr. Dunn:

In behalf of the Policy Committee on Standards, herewith is si^irnttrd the report of that committee. The report is accompanied by Exhibit A and

Exhibit B, Supporting Memorandum. Exhibit A is Carroll Wilson's report of December 3, 1943, revised as of September- 15, 1944 * Exhibit B is a short treatise on the present situation of standardization nctiiilies in this country as they now exist and the problem in connection with those activities as understood by this Committee.

The report itself is confined to the problem assigned, and as such states

its own case. In arriving at the conclusions contained therein, a number of representatives from numerous branches of industry were consulted and in general,

accord was reached. These contacts and resultant discussions disclosed a number of fiwtors which, while not of a nature to be included in the report, should be understood and considered. A review of some of these is given in this submittal

letter. From a study of the report, with its accompanying exhibits, it becomes ap- parent that no unified standards procedure exists and even after this situation

is corrected by the standardizing bodies, a neiv procedure will require new

techniques, broadened scopes and activities on the part of all. Cooperation

between all must be accomplished.

Perhaps the greatest problem ivill be for ASA to accommodate its new

burdens in an independent, single- purpose body, free of financial domination by any one interest, and its management reflecting adequately and equitably the interests and experience of producers, distributors and also the con- suming public. This broadening of ASA interests in consumers goods will doubtless require an increase in the work of merchandisers and perhaps of educational institutions, in the top policy levels of its advisory council or board.

The ASA must arrange for more expeditiously clearing and approving

standards through its Standards Council, broadened or streamlined through

perhaps a board of judicially minded authorities. When a desire for a standard has been established, the ASA should pro- mote the development of consumers goods standards and must foster intelli- gent use thereof by the public, with the collaboration of educational bodies,

through active participation in AS.4. Other questions which are apparently new and unanswered today are these: What kinds of Consumer Standards are needed? Should they be the “minimum standard" or the “commercial standard" or both? In such standards is “par” the level to be reached or to be beaten?

Again, does this protection of the public require a more comprehensive

formal acceptance for a standards adoption, or some form of laboratory

testing standard and labeling?

These are some of the problems to be worked out, and to do so will probably require a continuing flexibility of procedure between all parts of in- dustry affected by standards. Their solution will require experience and the thorough understanding of all. Time also will be required, and only through

unified action can any plan succeed.

Respectfully submitted.

Chairman

POLICY COMMITTEE ON STANDARDS

illlllllttlllillillllllllllllllllllillllllllllllllll^ INDUSTRIAL STANDARDIZATION

23

On January 12, 1945, the Secretary of Commerce of the United States, through the Visiting Committee of the National Bureau of Standards, invited representative leaders of industry to attend a “Conference on Standardization.” The Industrial representatives attending this conference are listed in a box on page 146. The conference was initiated because of the ever-increasing importance

which it was felt industrial and consumer goods standards will have in our

national economy and in recognition of the necessity for orderly procedure

in their expanding development and for clarification of the relative roles which should be played by Government and industry in standardization activties in the postwar era. The Secretary requested the con- ference to consider a report submitted to him December 3, 1943, revised September 15, 1944, by Carroll L. Wilson, Consultant to the Secretary

of Commerce, entitled. Standards in Commerce—A Basis for Action.

A copy of this report (Exhibit A)

Is attached.

The conference endorsed the re- port and expressed the opinion that the top management of industry

should give attention to the rapid

growth of standards and, provide for

its orderly development.

The Conference also noted with

approval the steps taken by the American Standards Association to broaden the scope of its work so that

it may deal with any standards or

standardization project whether in the field of engineering, consumer

goods, or in any other field deserving

national recognition.

The Conference recommended,

however, that in the field of con- sumer goods, as in any other fields, each standard approved by the American Standards Association must rep- resent the work of those groups

which are affected by such a standard, and that no effort must be made

to impose standards on them.

The Conference further recom- mended that the Secretary of Commerce appoint a Policy Committee of

industrial executives to advise with Mr. Henry B. Bryans, President of

the American Standards Association,

in regard to these recommendations

and the steps to be taken to effectuate them.

Accordingly, Wayne C. Taylor,

Under Secretary of Commerce, ap- pointed the following committee:

Charles E. Wilson, President, General

Electric Company, Chairman

Fkeuerick M. Feiker, Dean of Engineering, George Washington University

Clarence Francis, Chairman of the Board, General Foods Company

Ephraim Freedman, R. H. Macy & Co., Inc. Frank B. Jewett, President, National Academy of Science William B. Warner, President, McCall

Corporation

Arthur D. Whiteside, President, Dun &

Bradstreet, Inc. R. E. Zimmerman, Vice President, U. S. Steel Corporation.

This Policy Committee reports

herewith to the Secretary of Commerce, through the Visiting Committee, as follows: The Committee believes that stand- ards will have an ever-increasing

importance. They will play an ex- panding role in the fields of engineering and manufactured goods to the commercial field and to many

other new fields. Thus, they will ultimately affect the production and

sale of all goods. With this belief,

it becomes evident that provision must be made for the orderly devel- opment of all standards. The Committee believes that stand- ards activities which involve negotiation, opinion, judgment, or compromise, should be developed

through individual and joint efforts of technical, manufacturing, merchandising and consumer groups. The Committee also believes that these efforts will need to be coordi- nated and promoted through a dis- interested private agency organized

to function in the broad public interest. It appears that this function can most logically be fulfilled by the American Standards Association.

The Committee further believes:

that the scope of the American Standards Association should be broadened

so that it can handle any standards

or standardization project which de- serves national recognition, whether

for rawL materials, intermediate

goods, production goods, consumer

goods, or for safety or for engineering or for commercial transactions;

that the American Standards Associat i o n should he modified and

strengthened so that it can manage

this suggested broad program effec- tively; that the Association must make sure it includes in its activities

ail groups entitled to a voice in the adoption of standards as well as those competent to advise on con- sumer reactions; and that the American Standards Association maintain

itself as a truly independent asso- ciation privately financed, accomplishing its standards clearance and

standards promotion voluntarily,

with the full participation of all interests including those of the con- sumer. The Committee takes in good faith the assurances of the management of

the American Standards Association

that it will prepare itself to accept

these and any other further steps that may be required in fulfilling the re- sponsibilities of the nation’s stand- ards clearing house. Accordingly the Committee 'believes that the American Standards Association deserves sympathetic support of its aims, and

the continuing, active cooperation in

its work, of all interested agencies,

both public and private.

The broadened policy of the American Standards Association; the

recognition by industry that retail

July, 1945
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customers are entitled to adequate

information about the product they

buy; the development both by the National Bureau of Standards and by

private agencies of definite labora- tory and service testing—all these

will make it possible eventually to supply the desired information to consumers in standardized definitions,

terms, designations, and specifica- tions of consumers’ standards. Such

a result will strengthen and enhance

merchandising techniques, and stimulate competition in product improvement. Normally the standardizing functions of the Department of Commerce should center mainly in the National Bureau of Standards and

any work in this field by other agencies or divisions of the Department

should .be complementary to and

- 24 -

closely coordinated with the work of

the National Bureau of Standards.

The- true functions of the National

Bureau of Standards in connection

with standardization should be those

of basic research, furnishing of facts, measurements, and technical as- sistance in the development of adeuate testing methods. The National ureau of Standards should freely

lend its assistance to all responsible

citizens and groups ei^aged in stand- ards development. Whenever such

cooperation involves public interest groups, as the American Standards

Association (or certain of its member

bodies), the Bureau’s assistance may

Well be materially enhanced through

personal membership and active participation by Bureau personnel, as individuals, in the work of these groups.

The Committee recommends that the National Bureau of Standards

plan for a continuation of research

in the field of standards, and for fu- ture development of needed new

testing methods and that this be properly financed through Federal funds. The Bureau’s facilities should be ex- tended when and as necessary so that the Bureau may most effectively aid

standardization projects.

The Committee recommerds that the Division of Simplified Practices and the Division of Trade Standards, now a budgetary part of the National Bureau of Standards, be transferred from the Bureau of Standards to a more suitable status elsewhere in the Department of Commerce. The work

of these groups should continue, but on the levels of research and tech- nical consultation. Their research ^should include: studies of the eco- nomics that might result for consumers from performance and oj>er- ational standards; the determination,

of consumers’ reactions to per- formance standards used in merchandising; surveys to determine the need

for standards in consumer and commercial fields. Assistance should be

freely given to groups seeking help

in formulating sta idards, but the de- artment should bs free of .responsiility for the results. Under this new functional assignment, the Nations Bureau of Standards would be equipped to furnish

physical data for standards, while

the Department v ould be prepared

to supplement such material with

economic and marketing information.

In both these phases of standirds

work the facilities of the National Bureau of Standards (or the Department) would be directed to basic research for facts needed by any

responsible groups engaged in for- mulating standards or desiring to

initiate standards. (Among such

groups would be included the co- operating groups of American Standards Association.) Furthermore, Bureau and Departmental personnel

would be charged with giving tech- nical counsel, and would be encour- aged to participate directly 'in stand- ardizing activities of various public

interest bodies. The Department

would abstain from promoting new

standards on its own initiative and

would avoid any attempt itself to compete as a national clearing

house. These recommendations are based on two assumptions:

• First—that interested private

groups are best qualified to initiate

Edward N. Allen, President, National Retail Dry Goods Assn

S. Bruce Black, President, Liberty Mutual Insurance Co.

Frank Braucher, Presidant, Periodical Publishers Assn of America

J. M. Brentlinger, representing the Vice President in charge of Research & Davelopment, E. 1. duPont de Nemours & Co, Inc. Lyman J. Briggs, Director, National Bureau of Standards H. W. Brightman, Executive Merchandising Director, Meier & Frank Henry 6. Bryans, President, American Standards Assn: Executive Vice President, Philadelphia Electric Co. H. A. Bullis, President, General Mills, Inc. A. C. Chameroy, Sears-Roebuck & Co., representing R. E. Wood, Chmn of Board

Willard Chevalier, Asst to the President, McGraw-Hill Publishing Co, Inc. Clarence L Collens, Chairman of the Board, The Reliance Electric & Engg Co. H. M. Crane, Technical Asst, General Motors Co. Gano Dunn, Chairman of Visiting Committee, President, the J. G. White Engg Co. Wallace Falvey, Executive Vice President, Massachusetts Bonding & Insurance Co.

Frederick M. Feiker, Dean, School of Engineering, Geo. Washington University Clarence Francis, Chairman of the Board, General Foods Corp.

Ephraim Freedman, R. H. Macy & Co, representing Jack I. Straus, President Tom M. Girdler, Chmn of Bd, Republic Steel Corp, Cons. Vultee Aircraft Corp.

C. F. Hansen, Director of Research and Planning, W. T. Grant Co.

Frank B. Jewett, President, National Academy of Sciences Charles B. Jolliffe, Chief Engr Radio Corp of America

Virgil Jordon, President, National Industrial Conference Board, Inc. K. T. Keller, President, Chrysler Corp.

Jules Lebarttia, Jr., Sr Industrial Fellow. Mellon Institute of Industrial Research,

University of Pennsylvania G. M. Lebhar, Editor, Chain Store Age

G. C. MacDonald, Director of Bureau of Standards, Montgomery Ward & Co.

D. N. Mauger, Executive Asst, The Babcock & Wilcox Co.

H. M. McCormack, Asst General Mgr of Sales, American Can Co.

E. V. Murphree, Vice President, Standard Oil Development Co.

Arthur E. Pew, Jr., Vice President, Sun Oil Co. C. F. Rassweller, Vice President, Research & Development, Johni-Manville Corp.

Stanley B. Reier, President, J. Walter Thompson Co. A. W. Robertson, Chairman of the Board, V/estinghouie Electric Corp.

Clyde L Rogers, National Industrial Conference Board Warner Seely, Secy The Warner & Swasey Co, representing Charles Stilwell, Pres. N. A. Shepard, Chemical Director, American Cyanamid Co.

E. O. .Shreve, Vice President (Sales), General Electric Co. representing Eric A.

Johnston, President, U. S. Chamber of Commerce

Earle Smith, Chief Metallurgist, Republic Steel Corp. George H. Taber, Jr., President, Sinclair Refining Co. Wayne C. Taylor, Under Secretary of Commerce

John M. Van Horson, Young & Rubicam Co.

William B. Warner, President, McCall Corp.

Ralph J. Watkins, Representing A. D. Whiteside, President, Dun & Bradstreet, Inc. John W. Wahek, Jr., Crossett, Watzek & Gates

Oliver G. Willits, Vice Pres, Campbell Soup Co, Representing A. C. Dorrance, Pres. Charles E. Wilson, President, General Electric Co.

Carroll L. Wilson, N atlonal Patent Planning Commission

H. F. White, Representing Robert West, President, Esmond Mills R. E. Zimmerman, Vice President & Member of Executive Committee, U. S. Steel Corp.

' I Industrial Standardization

25

and formulate voluntary standards; Second—that the American Stand- ards Association can and will in due

time develop adequate capacity,

“know-how”, and status for jjerforming the necessary functions of nation- wide clearance and promotional

leadership, and

In conclusion, the Committee be- lieves that the a|)j)roach recom- mended—calling for a functional

division of effort between the Department (including the National Bureau

of Standards) and interested private groups- (including the American

Standards Association) and for active cooperation among all parties con- cerned—offers great |)romise as a means of guiding the progressive

adaptation of standards to the needs

of the nation’s commerce during the decades immediately ahead.

Charles E. Wilson, Chairman

Exhibit B: SUPPORTING MEMORANDUM

It is a fact, not generally recognized, that standards constitute one of the most important subjects of mutual ir that standards are becoming a subje

relations between industry, distributors and the public.

It was, therefore, natural that the

first resolution ado|>ted by the Conference of Fifty Industrial Executives,

which met on January 12, 1945, at the University Club in New York, at the request of the Secretary of Commerce, should read: “That, in the opinion of the Conference, the rapid growth of standards activities, their extension

into new fields, and the bearing of standards upon production and

sale all make it important for top

management to give attention to this matter and to provide for its orderly development.”

Standards, both product standards

and standard methods of test, are re- ferred to in Government purchase in- vitations, in Trade Practice Rules

promulgated by the Federal Trade

Commission, in regulations issued by

the Food and Drug Administration,

in safety orders of the Bureau of Mines, in many health or safety law's or ordinances of states and municipalities, and in regulations and

orders issued thereunder, and by

many other governmental agencies.

Federal, State and local. In many forms of regulations, due

to lack of clearly stated terms havest to business and government, and

of equally important interest in the

ing a meaning prevalently accepted

in the trade, the enforcing agency is compelled to adopt his own version

of the intent of regulations and give

published broadcast of such meaning.

Often such terms are capable of nu- merous interpretations and in some

cases contradictions are serious in results and contrary to intent. Will a piece of meat pa.ss inspection under the health laws? Providing an answer requires the use of a standard by the Government agency

responsible for inspection. Is a |)ack- age of merchandise falsely labeled?

Is an advertisement true or false? Is a business custom a fair or unfair

trade practice? There can be no answer to such questions without the use of a standard—formal or in- formal, adequate or inadequate.

Including Federal, State and municipal agencies, there are literally

hundreds of administrative agencies

which must use standards, develop

them, often from the ground up—too often without the constructive co- operation of business. Thousands of such standards have been formulated

by governmental administrative agencies and written into regulations with

which the affected industry and trade and its customers must comply.

Provided an industry or trade has developed standards in written,

clearly understandable and usable form, nearly all agencies, private or governmental, naturally adopt and

use standards develo|)ed by industry,

which are already accejded by, and

known to the public.

As an illustration of this fact, some

seventy codes, each approved as “American Standards” are now in

lice through legislative acts of states as the backbone of regulations for

the protection of workmen, each df them develojied coo|)eratively, by all parties of interest and under industrial sponsorship and the guidance

of the American Standards A.ssociation.Similarly, standards for the pre- vention of industrial diseases, fire prevention standards developed by

the National Fire Protection Association, the Boiler Code, developed

by the American Society of Mechanical Engineers, and the standard

methods of test developed by the American Society for Testing Materials, and many others, are “American Standards” and are used in regulatory activities of many states and municipalities, and referred to

in various Federal, State and municipal regulations, including building

codes. Inasmuch as the development of standards for food and drugs is as- signed by Federal Statute to the Food and Drug Administration and

July, 1945

tlie Department of Agriculture, and

since the development of specifica- tions and standards for purchases by

Federal Government departments is assigned by Statute to the Federal

Specifications Board, standards de- veloped for food and drugs and

specifications for Federal purchases

have never been presented to American Standards Association for ap- proval as American Standards.

Similarly, standards play a rapidly

increasing role in private business

transactions, being used in purchase

specifications for materials or equipment to be used in industrial processes or in commercial operations, or being used by distributors, especially retailers, in the purchase of merchandise for resale to their ulti- mate consumer customers. To an in- creasing extent, not yet widespread,

the ojnsuming public ij becoming

aware of the meaning of standards

for consumer goods — especially aware of labels or other forms of

certification that a product meets some standard. Postwar Outlook

World War II, like World War I, has given a great impetus to standardization. During and immediately

after World War I, all major in- dustrial nations, except Great Britain which already had one, found it necessary to establish national stand- ardizing bodies. There are unmistakable signs that similar acceleration

and intensification is now occurring

and that it is likely to continue at an even greater pace during the period of reconversion and readjustment and thereafter. The many changes that have been

cau.sed by conversion of industry to war production that will be caused

by reconversion to peacetime pro- duction have created a need for many

new standards and for changes in existing standards in order to fit them

to new conditions, if they are adequately to meet and help solve

difficulties in production or in commercial transactions—if parts are to

fit, if defects in workmanship or

matiMjals are to be avoided, if de- livery dates are to be met, if misunderstandings between manufacturer and purchaser are to be

eliminated and if purchasers are to be adequately assisted in selecting

and obtaining without delay the proper product for particular needs. The fields in which standardization is most highly developed are

those relating to production equipment, materials or processes, to-

- 26 - gether with those relating to protection against fire, accident and

other hazards, both involving en- gineering standards. The resultant advantages are well known; the economics of mass pro- duction and distribution, better control of product quality, broadening

of sources of supply and expansion

of markets, lessening of customer

complaints. But the standardization movement

is spreading to other ]3roduct fields —notably into the field of consumer

goods—both “soft” goods, like textiles, and “hard” goods, such as household equipment.

The right of the retailer and the

right of his customer to adequate in- formation regarding the products

they buy should be and is now

widely recognized by industrial ex- ecutives. Retail customers continue

to press for information regarding

the performance characteristics and

serviceability of merchandise. Laboratory and service testing is becoming more general, together with more

objective methods of test. This trend

leads to use of standard definitions,

standard terms for describing products, and other standards for con- sumer goods. Thus used, these

constitute a somewhat new and in- creasingly important merchandising

process or technique, and stimulate

competition in improvement of products, their performance or serviceability. In view of these significant trends,

it is important that there shall be

adequate organization and other provisions for the development of all types of standards which deserve

national recognition. Beside the national technical and professional so- cieties and the trade associations which are active in the field of originating or initiating the development of standards, there are two

organizations, each of which occupy

positions of unique importance,

namely, the National Bureau of Standards and the American Standards Association.

At present, in most respects, each

performs functions quite different from those performed by the other. To a limited extent, they 'perform

similar functions, thus competing

with each other or duplicating each

other’s work.

It is quite desirable that duplication of function should be removed

and that the work of each should be

strengthened, with much gain from

the points of view of both Govern- ment and business.

National Bureau of Standards

The National Bureau of Standards

has been, is. and was intended to be

a great scientific institution—

great research laboratory in the field of measurement. It is the official custodian of the standards of meas- urement of the United States of America. It is this nation’s prime agency

in the field of the science of measurement. in tlie field of research and

method o£ test, research in the field of physical and chemical constants,

all of which arc so essential to the de.velopment of technical industries. In these respects, the National

Bureau of Standards is truly unicpie

and truly a great scientific research

institution. The Division of Trade Standards

of the NBS assists industrial and

other interested groups in the de- velopment of commercial standards. Likewise the Division of Sim|3lifi,ed

Practice of tlie Bureau assists in- dustry in the elimination of unnecessary types, sizes, and varieties of manufactured products.

While a number of standards from

each Division have become American

Standards through the nation’s clear- ing house, it is a|)parent that there

is here a duplication of work.

American Standards Association

The ASA was organized to serve

as the national clearing house for standards. At the ])resent time it is a federation of twenty-one jirofes- sional and technical organizations,

fifty-five trade associations, s^ven de- partments and three other 'agencies of the Federal Government. It works

on the principle that each “American

Standard” must represent a con- sensus of the groups concerned with

it. Depending on the standard under

consideration, these include producer, consumer and general interest. Over

eight hundred standards have been

approved, of which approximately

30% originated with the American

Society for Testing Materials. Over

five hundred national organizations

have been cooperating in its activities and over three thou.sand men and women are serving on its committees.

Over fifty Federal Bureaus are co- operating in the work of the ASA.

Most of its work is carried out through balanced all-party-at-interest

committees, each of which, somewhat

similar to a legislature, is made up

of representatives appointed by the organizations interested in the particular subject under consideration.

Industrial Standardization
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The public interest requires more

effective standardization facilities than have so far been provided by

either or both semi-private agencies

and Government.

Strengthening the Bureau of Standards One of the chief bottlenecks in the development of national stand- ards is the lark of adequate test methods for determining the characteristics of products. This is especially true in the case of consumer

goods. The development of methods

of test requires a great deal of physical and chemical research. The, NBS has been a chief source

of basic research on methods of test and other types of scientific data needed in standardization activities. While its work has been invaluable

and deeply appreciated, the Bureau’s work in this field needs to be broadened and strengthened, and its re- sources for this type of work need to be increased. The Field for American Standards

Association

For that class of standardization

activity which requires knowledge of customer requirements, manufacturing process, trade terms, and, there- fore involves judgment and opinion

and which involves progressive

change, the best job can and should

be done by semi-private agencies.

The ASA should continue as the clearing house for national standards, limiting its Activities exclusively to clearing house and pro- motional functions. The Association

should not be the initiating source

for standards formation; for physi-

- 27 -

cal research; testing or laboratory

work as such. The member and co- operating bodies should be those through whom all such work must be

initiated and performed.

Although the initiation of stand- ards is not a function of ASA, any

interested group may propose that a standard should be developed and

can sponsor a proposed standard or

seek a sponsor. If, after investigation, the ASA finds that there is sufficient support for the development

of the standard, a properly balanced,

all-paity-at-interest committee can be

appointed and the project carried to conclusion. In some cases a conference, supplemented by correspondence, may suffice. Provision is also made for submission to ASA of exist- ing standards for approval as “American Standards,”

If, however, there is lack of ade- quate support for the project or the industry or trade concerned actively opposes the development of a stand- ard for which consumers or dis- tributors recognize a need, a pre- liminary or temporary standard may

be prepared, with the benefit of

basic research data obtainable from

any source, including that of any

Department of Commerce Divisions

or its agencies established to furnish

such data. With a national clearing of stand- ards activities functionally, the American Standards Association can

readily and definitely improve these added consumer goods activities. Realizing the broadened scope that would thus lie before the Association,

and realizing that the Association has

not in the past lived up to these broadened activities, the Committee

is glad to be informed by Mr. Henry

B. Bryans, President of the ASA,

that through its Board and its Standards Council, active work has been

and is being done to meet the needs

of the postwar period and particularly to permit it to, function most

effectively in all standards fields in- cluding that of consumer goods. Mr. Bryans advises further that: Activity of ASA in the field of Consumer Goods is under the supervision of the Advisory Committee on

Ultimate Consumer Goods and sometimes jointly with some other Committee. An amendment to the Constitution of ASA designed to remove any doubt as to whether ASA may

serve in the field of consumer goods

has been confirmed by ASA MemberBodies and approved on May 24,

1945;

The ASA is making an intensive

study of means of improving its or- ganization and methods in order best

to serve the mutual interests of busi- ness and the consuming public in the

field of standards for consumer

goods;

Interlocked with these problems is that of securing a broadening of the membership by enlisting both more

associations as Member-Bodies and

companies. To all these the Board

of Directors of ASA is giving careful

study.

While carrying on these studies, the Association is endeavoring to maintain and to improve upon the methods and traditions developed

during its twenty-six years of ex- perience;

In particular, it maintains the principle that all groups substantially concerned with a standard have

an inherent right to a part in its development; and that no standards

will be approved; without a clearly

demonstrated consensus of the in- terested groups.

It likewise conducts its affairs so

that there will be universal confidence in its integrity and so that every group, irrespective of size or

influence, can have confidence that

it will have opportunity for “its day

in court”;

It has attained and maintained it- self in a position to deal adequately

with the international aspects of any

standards undertaking;

It also maintains a comprehensive

and up-to-date library and information service; and publishes a mogthly

magazine covering broadly and

thoroughly the field of standards. '

Conclusion

A digest of this supporting memorandum clearly demonstrates to this Committee that it is to the forwardlooking self-interest of business that

its executives should make adequate

provision for the handling of stand- ardization problems, first, within

their own companies, and second,

within their trade associations, and

thirdly, within the professional and

technical societies. It is equally to their interest that they should,

through their companies, and trade

associations, adequately support, both

with effort and funds, not only the standardization work of the national,

professional, technical and trade as- sociations in which they have or should have a part, but also, through

affiliation, activity and the supply of adequate finances, support the work

of the federation of these bodies

the American Standards Association.

Tuly, 1945
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APPENDIX 5

A New

Opportunity

For Free

Enterprise

Exehan^a of letteri befweon Wallace, Wilson, and Bryans places

greater responsibility on industry and ASA for standards development

HlE study by the U. S. Depart*

ment of Commerce of the rela- tive roles of Industry and gov- ernment In standardization cdme to a olimax this month In a three-way

correspondence between Henry A. Wallace, Secretary of

^ Commerce;

Charles E. Wilson, chairman of the Policy Committee on Standards;

and Henry B. Bryans, president of

the American Standards Association. In his letter accepting the report of

the Policy Committee on Standards,

Secretary Wallace reverses the war- time trend and proposes to return to private enterprise the Important function of determining industrial and consumer standards. Mr Wallace’s letter to Charles E. Wilson, president of the Qeneral

Electric Company- and chairman of

the Policy Committee on Standards

appointed by the Secretary of Commerce in January 1945^, characterizes the negotiation and publication

Mr Charles E. Wilson, Chairman ' February 28, 1946

Policy Committee on Standards

New York, New York ' Dear Mr Wilson:

This is with reference to the report of your Policy Committee on Standards which was made

last June, and the supplementary report submitted on December 22, 1945, after further hearings on

the oHginal report. I am very sorry not to have been able to write ypu sooner on this motter, but

I wished to have a careful study made of these reports in relation to the proposed reorganization of

the Department.

of standards through private - initia- tive and on a wholly voluntary basis as “eminently desirable’’. In

the letter (published in full below),

he reviews his plan to reorganize the National Bureau of Standards, and

states that to the extent that the work

of the American Standards Association is strengthened in accordance

with the recommendations of the Policy Committee “so that it can per- form trade standard services to the

satisfaction of all the groups with an

interest in standards, the Department

is prepared to encourage the use of

the facilities of the American Standards Association for the initiation, de- velopment arid publication of standairds ’. He expresses the hope that American industry will support and

take advantage of the facilities of

‘The first report of this committee and a

description of the events that led to its ap- ointment are published in Industriai. TANDARDizATiON, July 1945, pp 144-149.

U.

the American Standards Association. In the three-way corresportdcnce

between the Department, the Policy

Committee, and the ASA, tha Policy.

Committee has given assurance that industry will mwe possible the nec- essary extensions of the facilities of

the ASA to enable It to render all desired services (see report of Pdlicy

Committee, jp 69) ; and the ASA

has informed Secretary Wallace and

the Policy Committee of its accept- ance of the responsibility (letter re- produced in full on p 68).

Plans are already under way to expand the ASA financial structure

as well as to broaden the incidence

of support and participation in the ASA. (On page 71, Howard Coonley, chairman of the ASA Executive

Committee, describes some of the implications of the new policy and the

steps being taken to expand the ASA

in order to put the new policies into

effect.)

S. Department of Commerce

Office of the Secretary

Washington 25, D. C.

April, 1946
"S

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- 29 -

I believe that the Department can accept whole-heartedly the general objectives and spirit of your Committee Report, which is to encourage the wider use of standards in industry and to bring

about the greatest possible cooperation among the various organizations active in this held. The

Department will be delighted to see the American Standards Association and other organizations

pursue a vigorous program in the held of trade standards and will cooperate to the fullest extent

in providing both scientihe and technical, and economic and marketing data which will be useful

in such a program.

One of the two principal recommendations of your Committee hts in very well with the plans

for the reorganization of the Department. I refer to the recommendation that the divisions of Simplified Trade Practices and Commercial Standards be transferred out of the Bureau of Standards to a “more suitable status elsewhere in the Department”, and that “the Bureau of Standards’ functions

should be those of basic research, furnishing of facts, measurements and technical assistance in the fievelopment of adequate testing methods”. The logical place for these two divisions is the new

OfiBce of Domestic Commerce, which will be responsible for the Department’s general services and

programs for the promotion of domestic industry, business, and trade. In accordance with your

recommendations, I am planning to have these divisions transferred from the National Bureau of

Standards to the Office of Domestic Commerce as soon as it is legally possible and suitable internal arrangements can be made.

The other principal recommendation of your Committee is that the Department of Commerce

withdraw from the field of initiating and publishing standards which are voluntarily agreed to by

industry groups as soon as the American Standards Association “implements itself for such functions”. Your Committee has supported this recommendation with the following considerations:

(1) that “interested private groups are best qualified to initiate and formulate voluntary standards”;

(2) there is now some duplication of effort as between the American Standards Association and

the Department; and (3) the voluntary standards published by the National Bureau of Standards

have sometinres been misinterpreted as scientifically determined government standards, or as compulsory standards.

Certainly the Department does not wish to compete with, or to duplicate, the services which

private organizations can provide equally well, nor does the Department wish to have voluntary

induirtry standards misinterpreted as scientific or compulsory government standards. We have tried

to guard against such misinterpretations by printing on the face of the booklets published by the National Bureau of Standards, “A RECORDED VOLUNTARY STANDARD OF THE TRADE”,

and in other ways.

I do not believe, however, that the Department of Commerce can properly close the door to industry and other economic groups which request the direct assistance of the Department in devel- oping and in publishing voluntary standards on their behalf. The Department has a statutory re- sponsibility to provide such services in the interest of business and industry and the general public

and we have no authority to refuse such requests. In addition, there may be circumstances in which

the cooperation of the Department of Commerce and the Department of Justice will be desirable in order to avoid any possible misinterpretation of voluntary industry agreements on standards in relation to the anti-trust laws. However, to the extent that the American Standards Association re- organises its procedures in accordance with the recommendation of your Committee so that it can perform trade standard services to the satisfaction of all the groups with an interest in standards, the Department is prepared to encourage the use of the facilities of the American Standards Association for the initiation, development, and publication of standards.

In view of the tremendous list of commodities, practices, and services and the limited facilities of tba Department in the commercial standardization field, it would seem eminently desirable that the American Standards Association and other voluntary business groups as well, expand and improve their facilities for negotiating and publishing trade standards. In fact, I regard it as one of

the important functions of the Department of Commerce to encourage and stimulate such a de- velopaseaL The Department itself does not plan, nor can it hope to monopolize this field of activ>

ity. On the contrary, it is the job of the Department as I see it to stimulate and assist activity by

private groups in this field and to perform a pilot function in commercial standardization work as

it has been doing for some two decades.

Industrial Standardization
t
- 30 -

Ih view of the above considerations, 1 envisage that after their transfer from the National Bureau

of Standards the divisions of Simplified Trade Practices and Commercial Standards will f)crform

the following functions with respect to voluntary trade stundorda and simplified trade practices:

1. As recommended by your GanmiUeo, sponsor and parform liosie roscofeh in the economic and marketine fields for the American Standards Association and other groups and organiMHlons engaged in formulating

oTuntary standards or desiring to initiate standards;

2. As recommended by your Committee, act as sponsor for groups in proposing standards to the ASA

lor issuance as American Standards;

3. Retain the Department’s present function of initintifig and proposing to the ASA or to any other group or groups the development of voluntary standards where the Department finds on the basis of economic

studies that such standards would be desirabic in the piililic interest; and

*• 4. Retain the function of publishing a voluntary standard developed by u group if that group requests the Department to publish. Such standards will be puhlislied by the Department of Commerce (not the National Bureau of Standards) and will clearly indicate the Industry or other group or groups on whose behalf

the Department Is publishing. However, where testing methods or the research of the National Bureau of Standards have contributed to the establishment of particular standards, appropriate credit will be given to the Bureau in publication.

This in general will mean the continuance of the functions of the Department on commercial

standards and simplified trade practices in accordance with well established procedures. However,

the Department would be prepared as a matter of policy to suggest, when the Aasociation’s facilities are adequate, that standards be submitted to the ASA for publication as American Standards.

The business group would, however, be perfectly free to make its own decisions as to whether to publish the standard under its own name; through the American Standards Association; or through

the Department of Commerce.

The Department is interested in cooperating actively with your Committee and with the ASA

and other interested groups to promote the wider use of voluntary standards and their adoption to the needs of the nation’s commerce in the postwar years. I should like to suggest that a joint con- ference committee of the ASA and the Department be set up for this purpose. I believe that this conference committee should cover the entire field of standards—the scientific, technical, and test- ing aspects as well as the economic, marketing, and trade aspects of the problem—and that the Department’s representatives on the committee should therefore include scientists of the National Bureau of Standards as well as officials of the Office of Domestic Commerce, Office of the Solicitor,

and the Office of Program Planning.

I should also like to ask that your Policy Committee on Standards continue to function as an

advisory group to me and to the Department of Commerce so that I may conault it from time to time on questions of broad policy in the field of standards. I feel that the experience of your

Committee during the last year will be of great value in dealing with additional problems which

will arise in this growing field of standards, and that the continuance of the Committee will in- sure maximum use and benefit of that experience.

I wish to express' to you and to your Committee my sincere appreciation of the service which

you have performed for the Department and for American business In your consideration of this important subject. Your studies have helped to clarify the entire situation and to point out some

of the things that need to he done^to promote the more extensive use of standards in the postwar

period. I sincerely hope that I may count on your continuing cooperation.

There is attached an abstract of this letter outlining the Department’s future policy on stand- ards which has beeii prepared to meet Mr Knoderer’s request for a short and succinct statement for general distribution. Sincerely yourfi,

ilf^NUY A. WaI-LACF,, Secretarv of Commerce

April, 1946
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ASA Accepts Challenge (APPENDIX 6)

For Expanding Program

AMERrcAN Standards Association

New York 17, N. Y. March 8, 1946

The Honorable Henry A. Wallace

Secretary of Commerce

Washington, D. C. My dear Mr Secretary:

The American Standards Association and its affiliated organizations greatly appreciate the confidence in them

which you expressed in your letter of February 28,

1946, to Mr Charles Wilson as Chairman of the Policy

Committee on Standards.

Through a change in its constitution, the American

Standards Association has been enabled to broaden the scope of its work so that it may deal with standards or standardization projects deserving national recognition,

whether in the field of engineering, consumer goods,

safety codes, or in other fields. Arrangements are un- der way for the addition to our Board of Directors of leaders in the consumer goods field, retail trade and the other interested groups, thus rounding out the representative character of our Board.

The leadership of the Association has been strengthened through the organization of an Executive Committee under the chairmanship of Mr Howard Coonley.

Mr Coonley has retired from the chairmanship of the Board of the Walworth Company and is now devoting

himself to the job of conditioning the Association to

its increased responsibilities.

We sincerely believe that the ASA, with its 28 years

of background in servicing the American j^ple, ia in a unique position to live up to the requirements placed

in its hands by your letter to Mr Wilson and by the report of Mr Wilson’s Committee. We, therefore, ac- cept the responsibility entailed. Your belief in the ability of private enterprise to demonstrate its effectiveness through voluntary action lends greatest significance to the responsibility which

the American Standards Association and its affiliated bodies are accepting. We have a record of successful operation in the field of industrial self-regulation. We

feel that tlie arrangements suggested by the Department of Commerce have opened the way for a new

concept in the relationship between Government and

industry. It is our privilege to validate the responsibility which industry and private groups must carry in the development of means for better standards of living for the American people through the medium of the American Standards Association and its affiliates.

It is particularly gratifying to have you propose the formation of a joint committee of the Department of Commerce and the American Standards Association to cover the entire field of standards and I believe that in

this way we shall be able to avoid duplication through

close cooperation and alignment of our operations. The

wealth of experience represented by the Policy Committee on Standards that you have invited to remain

in operation in an advisory capacity will contribute

greatly to the joint development of standards by all concerned.

We have been greatly interested in the administrative

changes which you are making in order to improve

your services to groups concerned with standards. The

transfer of the Divisions of Simplified Practice and

Commercial Standards to the new office of Domestic

Commerce should, as you indicate, minimize the misinterpretation of the standards as scientifically deter- mined Government standards. We note that the two

divisions will sponsor groups in proposing standards

and standardization projects to the American Standards Association. We appreciate this function which, we believe, will be useful to all concerned.

We also note that the Department will publish a voluntary standard developed by a group if that group

requests publication by the Department, but that the publication will clearly indicate the group on whose

behalf the Department is publishing it. We are glad to

Industrial Standardization
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32

note this last provision since it should tend to mini- mize misunderstanding as to the status of the standard

and its relation to the Government.

The sponsoring and carrying out by the Department

of basic research in the economics of standards and

their use in the marketing field should perform a much needed function which will be of great value to industry and to the consuming public.

I'he steadily increasing demand for standards on the part of industry and the great increase in the use of standards and interest in them brought about by the war have made necessary important changes in our or- ganization and work of the American Standards

Association. Considerable progress has been made in simplifying

and decentralizing the technical work and further streamlining of processes in order to speed up the de- velopment and approval of standards. More systematic programming in the fields in which

the ASA is working is being brought about through

closer coordination and changes in committee setup.

Plans are already under way to expand the ASA

financial structure. It is now contemplated to carry out an active and continuous program to provide for an

increased budget which will broaden the incidence of

support and participation in the ASA. Thirteen national organizations have affdiated in the last year. There are now 94 national organizations in the membership. The principal consumer and labor groups are represented on the main ASA committee on consumer

standards. In conclusion, I cannot refrain from saying a few

words in regard to the remarkably effective cooperation which we have had from the National Bureau of Standards for a quarter of a century or more. The

Bureau is represented on considerably more than 100

ASA committees. In particular, the research work of

the Bureau has been of invaluable assistance to a great

number of agencies engaged in standards work. There

is serious need for a large amount of this type of tech- nical data, and we hope that under the new arrangements, the Bureau can be provided with sulhcient re- sources to meet this need. With many thanks for your constructive consideration of this subject of standardization, and with best wishes. Sincerely,

Hknky B. Bryans,

President
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- 33

APPENDIX 7

The Final Report of the Policy Committee

on Standards

To fhe Secretary of Commerce

P

URSUANT to tlje suggestion

conveyed to this Committee by

your Assistant, Mr Malcolm

Kerlin, that the Policy Committee

on Standards should have further hearings of interested groups concerned, invitations were issued to consumer groups, labor groups, and

educational groups to meet with the Committee at a public hearing.

Attached Appendix “A” [not in- cluded in this publication] is a copy

of the Committee’s call of meeting of September 10, 1945, A copy of this

call was sent personally to each of

the following:

Henry B. Bryans, President, American

Standards Association.

Carroll L. Wilson, National Plauninf

('ommission. Malcolm Kerlin, Assistant to the Secretary of Commerce. Lyman J. Briggs, Director, National Bureau of .Standards.

J. W. Studehaker, ' Commissioner, U.S.

Office of Kducation. George F. Zook, President, American

Council on Education.

Harry E. Rogers, President, Brooklyn

Polytechnic Institute. Donald El. Montgomery, Member of the ASA Advisory Committee on Ultimate CoRMiner Goods for the CIO.

Colston Warne, Amherst College (Honorary Vice President, National Con- sumers League). Helen Hall, Director, Henry Street Set- tlement, New York; National Federation of Settlements. Ruth O’Brien, Bureau of Human Nutrition and Home Economics, U.S. De- partment of Agriculture.

Murray Lincoln, Executive Secretary, Ohio Farm Bureau Federation. Faith Williams, Member of the ASA Advisory Committee on Ultimate Consuwer Goods for the American Association of University Women,

Caroline F. Ware, Chief, Social Division, American Association of University Women.

Florence Thom, Head, Research Depart- ment, American Federation of Labor. Margaret Scattergood, American Federation of Labor, Research Staff. M. H. Hedges, Director of Research, In- ternational Brotherhood of Electrical Workers.

Selia Massey, Executive Secretary, Ameri- can Home Economics Association.

Harriett Howe, American Home Eco- nomics Association, Consunrer Educa- ’ tion Service. Carol Moffett, American Home Eco- nomics Association. Those attending this meeting were

in each case representing a special- ized organization or association, as

is evidenced by the following list of those present:

American Home Elconomic.s Association, Carol Moffett. American Association of University Women, Carol F. Ware. Bureau of Human Nutrition and Home

Economics, U.S. Department of Agriculture, Ruth O’Brien. Advisory Committee on Ultimate Con- sumer Goods to the American Standards Association, Representative of the American Association of University

Women, Faith Williams. American Federation of Labor, Research

Staff, Margaret Scattergood.

International Brotherhood of Electrical Workers Research, William D. Walker.

In full attendance of the Committee, a detailed discussion of those

April, 1946
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present brought forth the desires and

reactions of each group or individual present. Before the close of this meeting each group was requested to present its point of view with defi- nite recommendations as to how its desires might be accomplished. Such

reports have been received and analyzed with the Committee’s report of June 1, 1945. Your Committee does not believe

the report needs to be changed, as

all suggestions or requests for change, after close comparative

study, demonstrate that the implementation of the report by the American Standards Association and by

the Department of Commerce and

Bureau of Standards will in every

case produce the results desired by

each one and every interested body.

The June 1, 1945, report enunciates two specific recommendations:

First. That standards activities which

involve negotiation, opinion, judgment, or compromise should be developed through

individual and joint efforts of technical, manufacturing, merchandising, and con- sumer groups. €t was contemplated that

this was to be fulfilled by the American

Standards Association only when and as it implements itself for such functions and

as it demonstrates its ability to perform

elhciently, expeditiously, and satisfactorily, as it has demonstrated heretofore on industrial standardization. Second. That the National Bureau of Standards’ functions should be according to those of basic research, furnishing of facts, measurements, and technical assistance in development of adequate testing methods. A review of objections and sug- gestions of the represented groups

follows. When reviewed in relation

to the report of June 1, and with the organic act and statutes under which

the National Bureau of Standards

operates, the comments* given here

disclose the evident means now

available to meet such objections or

suggestions. It was the concensus of those attending the hearing:

(a) That American Standards Association should implement itself to he the clearing house for all stand- ards activities which involve negotiation, opinion, judgment, or compromise.

* Comment: Such a recom- mendation was included in the June 1st report.

(b) 'fhat there is a need on the

part of various groups—such as con- sumers and retailers of manufactured goods—for basic research and

furui.shiug of facts, measurements,

and technical assistance in development of adequate testing methods.

- 34 - •Comment: This falls within

the Organic Statute creating the National Bureau of Standards.

(c) That there is a need for re- search and technical consultation

which can include studies of the eco- nomics that might result for consumers from performance and operational standards; the determination

of consumers’ reactions to perform- ance standards used in merchandising surveys to determine the need in consumer and commercial fields. •Comment: This might fall within various agencies of the De- partment of Commerce.

(d) That there is a need for the bringing together of such interested groups into a cohesive whole.

•Comment: It is suggested this might be done in the National Bureau of Standards by the setting

up of an Interdepartmental Advis- ory Board drawn from other agencies of the Government and also a Consumers Advisory Board.

(e) That there is a need for the development of standard specifica- tions upon request.

* Comment: It was suggested

that this could be accomplished

through the National Bureau of Standards and other technical agencies of the Department

through development of standard

specifications when requested to do so by important national groups, sucb as a Consumers Advisory Board of the National Bureau of Standards, by a retailers association, or by an association of manufacturers of a particular

type of goods.

(/) That there is a need for the early publication of information re- lating to the specifications as and

when sufficiently advanced to be of

value.* Comment: It is suggested that when published it be in the name

of the group that requested the work, along with credit to the agency developing the. specification.

(g) That the National Bureau of Standards should undertake these functions, including the publication

and enforcement by and under the name of the National Bureau of Standards.

* Comment: It is pointed out

that trade standards and simplified

practice recommendations are ac- tually voluntary standards of tlie trade, but because they have here- tofore been published by the Government, they have been generally regarded as Government

standards. To eliminate this confusion, trade standards and simplified practice recommendations

should be first published by the group sponsoring the standard or recommendation.

The use of any such standard is voluntary. A certificate and label- ing • procedure should be devel- oped by the ASA for the guidance

of any one when he elects to use a standard. Enforcement enters the picture only if misrepresentation occurs and the matter then comes

under the jurisdiction of the Federal Trade Commission.

The Committee has carefully re- viewed these suggestions and in do- ing so recognizes that: (a) and (b) are in line with the Committee’s recommendation.

(c) (d) and (e) are matters re- lating to internal organization setup

and work within the Bureau of Standards.

A study of the original report of June 1, 1945, discloses that in no way is it at cross purposes with any

of the stated needs except that publication of such a developed specifi- cation or standard should not be

done by the National Bureau of Standards until it has been duly sub- mitted and sponsored and a{5proved

by the American Standards Association. However, the Committee sees no objection to the publication of such standards by other than gov- ernmental groups, prior to approval

by American Standards Association

as an American Standard. Either the group or the Bureau of Standards

should be the sponsoring body of such a standard to the American

Standards Association through which

it is to be adopted as an American

Standard. Any non-govemmental

group creating such a standard, and

not desiring that it be an American

Standard, may publish it under its own name as a standard of that group. Through this procedure the National Bureau of Standards will sup-

])ly to all legitimate groups the full facilities offered through the Or- ganic Act or National Statutes creat- ing and continuing the Bureau. Also

through such procedure all bureaus

of the Government can consistently

Industrial Standardization
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Mi|tj)ly facUial tlitla as may be uvuilabli! ami of iiil( rest. 'J’lirou‘*li the above steps all desires of these j)arlie.', in interest can be met.

riic initial |mblication of coiniiuicial standards and simplified

practice recommendations by the De- partment of Commerce has led to their acceptance as standunls devel- oped and a|iproved by the Government, whereas actually they repre- sent voluntary recorded standards of

the trade. The Policy Committee on Standards therefore recommends:

(1) That hereafter consumer standards, commercial standards, and simplified practice recommendations may

be first published by the consumer

group or the industrial group re- questing and sponsoring the stand- ard or recommendation, with appropriate acknowledgment of the technical assistance of the National Bureau

of Standards in its preparation.

(2) That such standards prepared

- 35 -

for such groups by the Dcjiurlmcul

ol Commerce should be subrnitled

either by the gioiq) interested or by

the De|»artment of Commerce as sponsor to the Americuii Standards

Association for apjuoval.

(3)

That after apjuoval by the American Standards As.sociution such standards should then be issued

us an American Standard. The re- quest for approval to the American

Standards Association may be made

under the sponsorship of the De- partment of Commerce, or any other sponsor. The Committee recognizes that

this procedure cun be accomplished

only as fast as the American Stand- ards Association implements itself for such functions. Progress is be- ing made in this direction and san- guine hopes point to such accomplishment early in 1946. The task lying ahead appears

an entirely feasible one. Liaison

work of this committee establishing

cohesion of interest between the Depailmcnt ul (.miimcnc liie AmciiI'.in Sumdaids A>-ociali(ju ami inter- citcd slandardi/.ing boili('- will, we

confidently believe, demuiolrate the

.souiulness ol the i ecommendations

contained in the (aunmittee’s report

of June 1, 1915.

In conclusion we wish to ijuote

from the last jiaragraph of the June

report; namely, ‘‘that the approach

recommeiuled —calling for a functional division of cflort between the Depaiiment (inefuding the National Bureau of Standanls) and interested private groups (including the American Stamlanls Association) and for

active eoo|)eration among all parties

concerned —oilers great promise as u means of guiiling the progressive

ada|)tation of standards to the needs

of the nation’s commerce during the decades immediately ahead.”

C: L. Wilson

Cliairmau,

I\)liey Gonunillee on Standards

USCOMM-NB^-OC

Ariiii , 1946
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APPBSDIX 8

JttiM lOv 1948

Admiral CU F. Hussey, Jr.

Secretary, Amerloan Standards Association

70 East 45th Street

New York 17, Nev York

Dear Admiral Hussey:

In your letter of Hay 20, 1948, you advise that steps are being

taken to incorporate the American Standards Association under the

laws of the State of New York, and that under those laws the mmabers

of the existing association will automatically become members of the

incorporated association.

As you are aware from the discussion of the matter which took

place in the Office of the Solicitor of this Department on Hay 10, 1948,

legal questions have arisen with respect to the propriety of the member*

ship of Government Agencies in the Association without express statutory

authorisation, either in the present unincorporated association or in

the New York corporation.

Under these circumstances, I regret that the Department of

Commerce will be unable to become a member body of the American

Standards Association when incorporated under the laws of the State

of New York, and cannot therefore be in. the position of a membor*body

at the time of the incorporation under ^w York laws.

I wish to assure you, however, that the Department of Coomerce is

ready and willing to continue our present full partiqjlpac^on and the

most effective possible cooperation in the technical 'activities of the

Association.

Sincerely yours,

(signed) Charles Sawyer

Secretary of Cnmsmrce
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APfBWU 9a

Jnlf 1, 1992

Aftelral 0. r. Buttey, Jr.

lUuiagliig Director

itericAn ftAndATde AASOclAtion

70 Sect Forty-fifth Street

Hev York 17 , New York

Deer AdDlral Ihiesey:

1 an glad to accept the iavltation extended in poer letter ot My 23,

for the membere of the etaff of this Departiaent to attend tteetlage of your

Standards Council. la order that there be no nlsandarstanding of our participation In the affairs of your organisation, I am eenslderlng your

Invitation as a very general one end I am not designating any specific

official of the Department to attend regularly meetings of the Standarde

Council*

As you know, the Commodity Standards Division Is assigned to the

Office of Industry and Cdsmerce, of which Mr. M. B. NoCey Is Director.

The Bureau of Standards, of which Dr. A. V. Astln Is Director, oeoperates

with your Association on technical matters, la view of t]be general

Intereet of both of these organisations, I suggest that you send natleds

of meetings and the agenda of the Standards Council to both Messrs. Astln

and McCoy. These two officials will make arrangamente er designate an appropriate representative to attend any part^ular meeting.

Sincerely yours,

/s/ Charles Sawyer

Seeretery of CoSBaeree
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38

kmVIDU. 9b

July 7. 1932

The Honorable Charles Sanryer

Secretary of Coonerce

Washington 23, D. C.

My dear Mr. Secratary:

It is a pleasure to have your latter of July 2, accepting the invite*

tion for iossd>ers of the staff of the Depsrtmsnt of Connerce to attend

meetings of the Standards Council with the privilege of the floor.

The basis on which you accept the invitation is entirely agreeable to

the American Standards Association.

It is particularly gratifying that you designated Mr. McCoy ahd

Dr. Astin as contact men for the Department, because with both we have

had most pleasant and fruitful relations.

Looking forward to welcoming Dr. Astin or Mr. McCoy or their designees

at meetings of the Standards Council, I am

Sincerely yours.

G. F. Hussey, Jr.

Managing Director
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