NBSIR 73-157

National Program of Metrology for Ecuador

T. M. Stabler

Office of Engineering and

Information Processing Standards

National Bureau of Standards

Washington, D. C. 20234

April 1973

Final Report

Prepared for U. S. Aid Mission

to Ecuador

U.S. Department of State Washington, D. C. 20523

NBSIR 73-157

NATIONAL PROGRAM OF METROLOGY FOR ECUADOR

T. M. Stabler

Office of Engineering and

Information Processing Standards

National Bureau of Standards

Washington, D, C. 20234

April 1973

Final Report

Prepared for U. S. Aid Mission

to Ecuador

U. S. Department of State Washington, D. C. 20523

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

NATIONAL BUREAU OF STANDARDS, Richard W. Roberts. Director

CONTENTS

Page

Introduction 1

Progran and Alternatives . 2

Weights and ^'easures Law and Regulations 3

Prograni Plan 8

Personnel 12

Technical Education ....... 17

Outlined Reconimendations 19

INEN Program of Scientific Metrology . 19

INEN Program of Legal Metrology 23

References 30
1
NATIONAL PROGRAM OF METROLOGY FOR ECUADOR

Introduction

The Ecuadorian Institute for Standardization (INEN) is a new organization, having been established in 1971 to promote the development

of a centralized system of standards. Besides its basic function of

preparing and publishing compulsory as well as voluntary standards

relating to practices, processes, materials, products and commodities,

INEN has the responsibility of developing a weights and measures

program in Ecuador.

At the request of the Ecuadorian Institute for Standardization the

United States Agency for International Development (U.S. AID Mission,

Quito) made arrangements for a weights and measures advisor from the

National Bureau of Standards to visit Ecuador to assist in the development of a design for a raetrological laboratory and a weights and

measures law enforcement program including an inspection system, a

training program, and other essential features, (Reference 1, NBS

Report 10551.)

The National Bureau of Standards (NBS) representative, Thomas M. Stabler,

visited Quito, Ecuador, in 1971, 1972, and 1973 to advise INEN and plan

a possible approach to a program of scientific and legal metrology for

Ecuador.
2

The laboratory is now complete, the new standards installed and

technical training in metrology was conducted by Harry Johnson of

the KBS Office of Weights and Measures (January 1973),

t PROGRAM AND ALTERNATIVES

A program of weights and measures (legal metrology) for Ecuador

must rest upon careful consideration by the appropriate government

authorities of the objectives they want to achieve. This is the

responsibility of the Ecuadorian government and a fully detailed

program cannot be devised until objectives are firmly established.

Recommendations can then be given. The program outlined here would

provide the essential ingredients for the initial stages such as the

legal basis for regulations, reference (primary) National Standards,

staffing and technical education.

In the opinion of the Technical Director of INENj the weights and

measures activity should include a broad educational program, for

government, industry, and small businesses engaged in commerce. This

should begin as soon as possible and continue to be a major effort.

Accompanying this. effort could be a parallel program for educating

the people and the workers to the importance and benefits of the program.

Gradual public acceptance is expected despite the long history of

traditional and foreign units employed in buying and selling, and the

myriad of other factors affecting comixierce such as transportation,

communication, etc.
Tradition, communication, and transportation impose barriers to

a quick and easy solution to the weights and measures problems in

commerce. Significant steps can be initiated now, however, that

will provide a firra footing for gradual evolution of a nationwide

uniform measurement system, which should employ the International

System of Units (SI) officially recognized in world trade. Consideration should be given to the formation of a regional Conference

on Weights and Measures, perhaps under the auspices of the Andean

Pact, for the purpose of reaching agreement on uniform (Model) laws

and regulations, performance specifications for standards, devices,

packages, and administration of a v;eights and measures system on a South

American or continental basis. Adoption of uniform laws and regulations

should result in significant benefits to industries in the international market. Not only could this organization promote the

initiation of uniform weights and measures programs for the benefit

of participating nations, but it could also provide standards and

certification for international trade broadly.

WFJGHTS AND MEASURES LAW AND REGULATIONS

The proposed Weights and Measures Law of 1973 (Reference 2) estab].ishes

the authority for the weights and measures program, defines the standards

to be used, and outlines the responsibility of INEN, the Minister of

Industry, Commerce and Integration; commercial device ovmers, and users.

The Regulations, which should include the specifications and tolerances
4

for commercial devices, would have the force and effect of law, and

support the basic statute by providing the guidelines and "rules" of

enforcement

.

The author has reviewed the proposed Law and believes it contains

most of the necessary provisions for weights and measures supervision

in Ecuador; however, a more general approach is recom.mended (See the

Model State Law, Reference 3) . The author suggests that the Ecuadorian

officials consider including the following additional provisions in the

law:

: 1. Authority for supervision and enforcement of the law by

' the national government only. Municipal responsibility

may lead to non-uniform enforcement, duplication of effort

and increased costs.

2. Authority to establish rules for packaging and to inspect

packages for uniformity (Reference A).

3. Authority to establish specifications, tolerances, and

other technical requirements for commercial weighing and

measuring devices (Reference 5).

4. Authority to set qualifications for weighmasters and to

establish a register of qualified persons (Reference 6).

5. Authority to set qualifications for equipment service

companies and to establish a register of qualified firms

(Reference 7)

.
5

The proposed Weights and >!easures Law provides for administration by

the Minister of Industry, Commerce and Integration; defines the

technical responsibilities of INEM and of the owners/users of commerical devices, establishes penalties for violations, and provides

for the physical standards to be used in enforcement activities.

Regulations to implement the law should establish the basic requirement that commodities sold by weight shall be sold by net weight

rather than gross weight. In addition, the law should assign

specific authority to check packages for net contents. The U.S.

Model State Packaging and Labeling Regulation (Reference A) developed

by the U.S. National Conference on Weights and Measures provides

detailed requirements for packages including statement of net quantity

of contents, name and address of packers, shippers, etc., (for domestic

and imported commodities). This model regulation should be examined

to determine those features which are useful and adaptable to local

conditions. This can only be done by an individual who is thoroughly

familiar with the habits and mores of the Ecuadorian population.

The proposed law now provides for the establishment of a fee system

and collection of fees by inspectors. Most countries have found this

practice undesirable because of possible mishandling of funds. An

Net weight—the weight of a commodity excluding the carrier, container,

package, or other wrapping material and inserts.

Gross v;eight —the weight of a commodity including the carrier, container, package and other wrapping material and inserts.
6

alternate to this feature might be a licensing system v.'ith fees sent

directly to INEN, Not only is the possibility for mishandling of funds

greatly reduced, but enforcement is enhanced by removing monetary considerations altogether (i.e., an inspector having to condemn a device

and also to collect payment) . Under one possible licensing plan, a

device owner would submit the appropriate fee to INEN each year; in

turn the Institute would send him a license for the current year

irrespective of the number of inspections performed or whether devices

were approved or rejected. The U.S. Model State Weights and Measures

Law could serve as a reference for the proposed revision of the proposed

statute. . \

Usually, a fee system cannot provide adequate financing for the total

operation of weights and measures programs; consequently, government

support will be required. Most countries consider that weights and

measures programs are sufficiently in the public interest to justify

such public support.

Regulations relating to requirements for devices and packages should be

adopted by actions apart from the weights and measures law, because of

the need for periodic revisions of regulations. The appropriate

regulations can be referred to in the law. The various model laws and

regulations listed in this report as references may be useful when

drafting Ecuadorian practices. These models not only set forth performance

specifications but also standards of practices and procedures which are

equally ].mportant.
7

Another essential ingredient of the program is the physical standards

of weights and measures now housed at the INEN Metrology Laboratory.

National Reference (Primary) Standards and working or secondary

standards (comparable to field standards used by the states in the

U.S.) are necessary for enforcement of legal requirements. The primary

standards of mass, length, and volume are presently housed in the

INEN Metrology Laboratory and serve as the National Standards for

Ecuador. Commercial measurements and legal determinations should

be traceable to the National Standards. Primary reference standards

are essential to provide the basis for an equitable level of accuracy

in commerce. To provide traceability and the link between commercial

measurements and the national Standard, adequate field standards of

weights and measure are employed; these include standard v/eights,

capacity measures, and linear standards. The standards program m.ay

be broadened in the future to include electrical standards, temperature

standards, gage blocks and other measuring instruments; however, the

initial requirements usually relate to the measurement of mass, length,

and volume. Calibration of field standards against national standards

does not necessarily ensure that measurements are accurate since other

aspects of the measurement process may not be under adequate control.

As measurement practices in the commerce of Ecuador become more

(The National Standards should be compared at regular intervals

approximately 10 years—with standards of the United States, Great

Britain, France, West Germany, or other major industrial nations to

assure accuracy.)
8

sophisticated, attention will have to be given to the entire measurement

procedure in order to be sure that systematic errors are minimized.

An environmentally controlled laboratory has been provided to house

the National Standards and laboratory instruments. An area of

2 approximately 300 m usually is adequate in the initial stages of a

metrology program. State weights and measures laboratories in the U.S.

have found that a ground floor location with temperature controlled to

±2.0°C (within commercial air conditioning capability) and relative

humidity of less than 50% are adequate for calibrations and tests which

are needed. The effect of vibration of the laboratory is an important

consideration. The Institute should provide the necessary controls

for a dust free, temperature and humidity controlled environment.

Indeed, unless strict precautions are taken, present equipment already

on hand may be subject to damage by corrosion and dust.

PROGRAM PLAN

The first step in the implementation of the program is the enactment of

a Law. The Law provides the legal basis for the National Reference

Standards which are now established at the INEN Metrology Laboratory.

Working or field standards should now be certified by the laboratory

to establish traceability of accuracy. These field standards are used

in the testing of commerical v/eights and measures.
9

Special Considerations

Before discussing essential elements in detail, the situation in

Ecuador should be reviewed. Policy of the national government and

INEN will, in large part, determine the degree of success of this

program. The national government is probably the largest single

user, purchaser, and consumer of products either v;eighed or

measured. An effective weights and measures program to assure

reliable quantity determinations in commerce could result in important

governmental savings; in the purchase of agricultural products,

manufactured goods, petroleum, etc. Government requirements

(contracts) should include the use of approved scales and meters

and support a package control program. Contracts with suppliers

could require traceability to the National Standards.

The National Metrology Laboratory and standards program rank as high

priorities since they are essential in the establishment of foundation

for measurement. With this initial phase completed, the inspection

of commercial weights and measures can now commence (i.e., testing of

scales, meters, packages).

Another aspect of the weights and measures program should be the

surveillance of government weighing and measuring devices at import

stations. These devices should be operated by qualified weighmasters

or government officials trained in the operation of weighing equipment
10

after examination and certification by INEN government support of

the weights and measures program, is essential if the inspection

program is to provide the necessary equity.

Ecuadorian authorities are determined that consumers receive fair

value In the market place. A measurement program for industrial

products could result in immediate increase in confidence by the

consuming public, industry, and the government. Liquid flow

metering is an illustration of a readily applicable technology

that can be adopted to ensure equity. Flow metering devices have

been standardized to a high degree by the petroleum industry, and

there usually exists in the industry an effective service program

for the repair and maintenance of gasoline pumps, truck-mounted

meters, and high-capacity meters found on aircraft and ship fueling

devices.

An effective way to administer the weights and measures program may

be to establish regional or provincial weights and measures offices

to communicate with commerce, industry, farmers, and agencies of the

government in the designated areas. The activities of the provincial

weights and measures offices would be coordinated with the principal

government administrator, INEN, and other agencies providing assistance

(U.S. AID. etc.).
11

Economic advice on agricultural marketing practices is beyond the

scope of this report, but the author wishes to caution the recipients

of this report that a weights and measures program, no matter how

effective, is only one important factor in a marketing system. Other

factors include price structure, information accessibility, transportation facilities, storage capability, weighing accuracy, etc., and

these factors all relate to other segments within the same industry.

Approach

The following sequence, in order of priority, is suggested as an

approach to the development of a weights and measures program for

Ecuador

:

1. Enact up-dated version of the Weights and Measures Law,

2. Train highest level administrative staff in laboratory

metrology and weights and measures administration. (An

appropriate six-month training program could be provided

by NBS.)

3. Provide calibration and testing program (mass, length,

volume) for industries (agricultural, manufacturing,

chemical, etc.), and universities.

4. Develop government-wide policies and procedures to insure

that government procurement is in accordance with weights

and measures regulations.

5. Initiate field inspection program within the manufacturing

and petroleum industries.

6. Develop weights and measures program within the framework

of the agricultural sector (coffee, grain, animal, etc.).
12

As a follow-up to the installation of new standards in the state

laboratories, the U.S. National Bureau of Standards conducts a

Laboratory Auditing Program (LAP) in which 35 states participate,

and which provides the state personnel a program of continuing

professional development, surveillance of standards and instruments,

self-evaluation, and NBS certification of traceability . The

feasibility of foreign laboratory participation is being considered.

PERSONI-TEL

The weights and measures program is only one function of INEN and

the National Government. It ^^7ould be difficult for the Technical

Director of INEN to supervise all operational details of this and

other areas of his responsibility; consequently, a program administrator

might be required to devote full time to this project.

In addition to the Technical Director of INEN and the Minister of

Industry, Commerce and Integration and clerical employees, the

weights and measures staff should consist of a weights and measures

program administrator, field supervisors, inspectors j a metrologist

and laboratory technician. The staff structure and responsibilities

listed below are considered appropriate for carrying out the calibration and testing program specified in the proposed law and regulations. The number of field personnel will be dependent upon detailed

national objectives to be set by Ecuadorian authorities.
13

1. ADMINISTRATOR

The program Administrator should be responsible for national

enforcement of the weights and measures law and regulations.

He should implement the policies and programs for weights

and measures. The Administrator supervises hiring of new

personnel, training of inspectors and raetrologists , procurement of necessary equipment, and allocation of personnel

and equipment for optimum efficiency. Important aspects of

his responsibility which deserve emphasis are public

relations and education, and he should expend a significant

portion of his effort in these areas.

Effective communication with INEN and the National Government

is essential. The Administrator should keep them apprised of

program progress and of requirements and difficulties that

bear on matters relating to broad objectives and policies.

He should spend considerable time in thinking and planning

for the growth of the program.

Qualifications for the position of Administrator should

include a university degree in science or engineering and

experience in management of organizations and personnel

development. He should have had specialized training in the

administration of a weights and measures program, preferably

both domestic and abroad.
14

SUPERVISOR

The Supervisor's primary responsibility is to coordinate

the weights and measures field inspection program. He

assists in the scheduling of inspections and tests and

provides technical expertise in training of field personnel,

in the conduct of special investigations, and in troubleshooting of problems when they occur. The Supervisor has

direct supervision of the inspectors to assure that the

law and regulations are being enforced in an equitable

manner and that established policies and procedures are

being adhered to.

Problems of interpretation and application of the law and

regulations, and disputes arising from misunderstandings and

lack of information should all come to the attention of the

Supervisor for mediation.

An important responsibility of the Supervisor is to evaluate

the field personnel and their effectiveness in performing

their duties. Close surveillance of performance can provide

a measure of training needs, as well as the level of capability

and responsibility that can be expected of the individual

inspectors.
15

Initially, tlie weights and measures program should include

one field supervisor, but as the program grows, additional

supervisors m.ay be needed to effectively coordinate inspection

activities. At a later date supervisors might be assigned

to regional offices close to their areas of responsibility,

perhaps to a provincial or regional office.

INSPECTOR

The Inspector, under the direction of the Supervisor, inspects

and tests weighing and measuring devices and packages to

determine their conformity to the law and regulations.

Qualifications for this position should include high school

education, mechanical ability preferably with experience in

tasks requiring similar manual dexterity, and a high standard

of moral character.

In the conduct of his duties, an inspector may be subjected

to temptations which, though not illegal, may subject him to

accusations of improper influence. The Inspector must apply

equitably the legal codes of weights and measures using mature

judgment in complex cases where obvious solutions are not

evident. In reaching his decisions, he must never compromise

the moral codes for honesty. If he does, he becomes ineffective

and should not be permitted to continue in his position of

public trust.
16

The Inspector's image as a trusted public servant must be

supported by a high level of technical competence. A

thorough knowledge of the law and regulations should be

balanced by an understanding of the basic principles of

weighing and measuring and the devices employed therein.

An on-going technical training program should be devised

to continue the professional development of the Inspector.

Training should begin with an in-depth study of the laws

and regulations, and the fundamental considerations of

weights and measures law enforcement. INEN policies and

procedures should be reviewed. New inspectors should be

trained in the field under the supervision of an experienced

inspector and field supervisor. The new Inspector should

not be permitted to function independently until the Supervisor believes he has an adequate background to perform his

duties in an acceptable manner.

A. METROLOGIST

The laboratory provides measurement services for the universities, technical colleges, and industry. Professional

consultation in measurement science could be a most important

service to industry in its quantity and quality control

programs—that is, how to accurately measure raw materials

purchased and finished goods produced.
17

The Metrologist operates the laboratory program and conducts

tests and calibrations of weights and measures standards.

He maintains calibration of the National Standards and

traceability of field standards to assure that legal

requirements for accuracy are met.

The metrologist should participate in training programs that

cover care and maintenance of standards and laboratory

instrum.ents , techniques and procedures in testing and

calibrating physical standards, data collection and reporting,

and administration of a metrology laboratory. Many of the

tasks in the laboratory will be routine in nature and can be

handled by a technician. In the event that the Metrologist is

re-assigned, it will be advantageous to have a qualified person

or persons ready to fill in and keep the program in operation.

TECHNICAL EDUCATION

A well balanced technical ecucation program is necessary for the foreseeable future and is needed at all levels.

Since practical experience and application are essential to the effective

supervision of the metrology laboratory and program of enforcement of the

Ecuadorian Weights and Measures Law, it is recommended that an engineer

of the INEN staff (preferably the indivudual who will ultimately serve

as Weights and Measures Administrator) , participate in an intensive
18

training program. Such a program, of six months duration, can be

provided by the National Bureau of Standards. This training will

provide the necessary technical background to qualify the INEN

representative as an instructor to train other Ecuadorian officials

in testing and calibration procedures relating to laboratory and

field applications. The training program should include:

. 1. Metrology Laboratory design, including environmental

controls and equipment.

2. Basic Metrology—care and maintenance of standards, calibration techniques, laboratory procedures, administration.

3. Intermediate Metrology—collection of surveillance data,

monitoring standards and instruments, laboratory evaluation,

statistical analysis.

4. Weights and measures administration and supervision, resource

allocation, inspections, tests, reporting, evaluations.

5. Writing of specifications, tolerances and other technical

requirements for commercial weighing and measuring devices.

6. Package control—requirements for packages, labels, test

procedures

.

7. Field training with state weights and measures officials.

Inspections and tests of commercial devices and packages.

8. Weights and measures administration at a state office, reports,

official actions, and program evaluation.

A comprehensive training program should consist of the above but should

not necessarily be limited to the items listed. Technical education

should be tailored to the specific needs of the individual and the program

he will administer.
OUTLINCD RECODIENDATIONS

19

INEN Program of Scientific Metrology

The prograra of Scientific Metrology at INEN should include

the ten considerations listed below. They are presented in the

general order of priority; however, it may be necessary to alter

the list and add items not considered here as the program evolves.

1. Technical Training for the Metrologist,

NBS conducts training for State laboratory metrologists

in Basic, Intermediate, and Advanced Metrology. The

complete course consists of approximately 200 hours in

calibrations, tests, administration, care and maintenance

of standards and instruments, laboratory techniques and

procedures. It is recommended that the feasibility of NBS

technical training for the Metrologist be investigated.

2. Internal Data Control.

INEN policy and a practical system for laboratory data

control should be established. It is important to decide

upon a system for data collection, documentation, filing,

and reporting. Redundance is required to minimize errors

and to build confidence in the system.

3. INEN Calibrations and Tests.

Unlfonn and appropriate language must be established for

Reports of Calibration, Reports of Test, Certificates, and

letters of verification or laboratory approval. Specifications
20

for standards should be adopted (References 8, 9, 10:

NBS H-105-1, 105-2, 105-3). A fee schedule should be

established.

Administrative Policy.

For reasons of security and care of the standards and

precision instruments, access to the new Metrology

Laboratory should be restricted to the Director and

Metrologist. No one other than trained personnel should

handle the standards or operate the instruments. The

laboratory doors should remain locked at all times.

Control of the Laboratory environment should be considered

of highest priority. Instruments and standards can be

easily damaged by untrained persons and can deteriorate

through unclean conditions, dust, high humidity, etc.

Maintenance of Standards and Instruments.

Regular maintenance of balances should be considered.

Annual or bi-annual servicing by a qualified person

(Voland or Mettler) should provide long term, troublefree operation of these precision instruments. The

Metrologist should regularly clean and service all other

standards and laboratory equipment.

Annual Reporting.

The form for the annual weights and measures report

should be based upon the requirements of government for

information and the system of reporting that will provide
21

the most meaningful, relevant information. For example,

information may be requested relative to the economic

impact of tests and calibrations upon industry and commerce,

cost vs. benefits, economic advantages for the export

market, etc.; in addition, listing of laboratory customers

and description of standards calibrated.

7. Short Term Program.

The INEN Program of Scientific Metrology should be discussed

and established in terms of activities for the next one to

two years. An ad hoc advisory committee consisting of

representatives from industry, universities, and government

could provide valuable assistance in the early stages of

laboratory services to these institutions, and help

identify possible pit falls, future customers, and proper

direction for growth. In the first year or two it is important

to establish a limited calibration and testing program held

well within the capability of the Metrology Labpratory.

Although an effective public relations effort can be

beneficial to the new program., "over-selling" of available

services may create administrative and other problems such

as a backlog of requests for testing, for professional

consultation, public appearances, etc. Laboratory

services should be scheduled in advance and commitments

made within the capability of the available personnel.
22

time and budget, INEN should prepare pamphlets, and

other material to be used in announcing available

laboratory services.

8, Long Term Program.

: Planning for the long term should include program growth

for the period extending to 10 years. Goals should be

well-defined and a permanent advisory committee appointed

to deal with the requirements of the Metrology Laboratory

program during this interval of time. Budget requirements

for program expansion, personnel, new standards and

equipment, and technical seminars should be considered

by the advisory committee.

9. Technical Training.

Perhaps technical training, and education in a broader

sense, will constitute the most important program of the

INEN Metrology Laboratory; at least in terms of long

range objectives. The "how, when, and why" of measurement

accuracy and precision should be included in any educational

program as they are of paramount importance in the transfer

of measurements from one standard to another and from one

laboratory to another. (Measurements can be meaningless

without proper controls for procedures, environment,

application, and understanding.) A broad program of

technical education and training is necessary for industry,

universities, government, commerce, and weights and

measures officials.
23

10. Laboratory Auditing Program.

The INEN program of Scientific Metrology might include

certification of other laboratories. Such a program should

include "round robin" testing of standards, an educational

program, a laboratory evaluation or auditing program (i.e.,

NBS Laboratory Auditing Program) , and possible cooperation

with laboratories of other Andean Pact nations.

B. INEN Program of Legal Metrology

The future program of Legal Metrology for Ecuador will be based

upon the authority established by the proposed new Law of Weights

and Measures. When the law is signed by the President, it will set

forth certain responsibilities for INEN including maintenance of the

national standards, system of units (SI), certification of standards

and weights and measures used in the testing of commercial devices.

The Minister of Industry, Commerce and Integration will be given

principal responsibility foe enforcement. The Law provides for

conversion to the Metric (SI) System of Units through a 10 year

program.

There are two considerations relative to the proposed Weights

and Measures Law in its present form. First, it could be more

general and less detailed. Regulations having the force and

effect of law could provide the details, specifications, and

other requirements to support the law in its basic context. Second,

the Law provides for a National and municipal (cities) program

of enforcement. This may result in duplication of effort, nonuniformity, and added expense. For a uniformly administered,
24

effective, and equitable program of weights and measures in

Ecuador, a single National Program is recommended. There should

be one government office with total responsibility. This should

result in reduced costs and a higher level of efficiency.

The following recommendations are listed in order of priority;

however, the list may be altered to provide for additional items:

1. Weights and Measures Law.

In addition to the above, the Law should provide for

a. licensing of weighmasters

;

b. licensing of servicemen (for repair of commercial

devices)

;

c. checking of packages; and

d. unit pricing of random size (weight, etc.) packages.

2. Regulations. Regulations should include:

a. Specifications and Tolerances for Commercial devices

(instruments).

b. Packaging and Labeling.

c. Package sizes and standards of fill.

d. Method of Sale of Commodities (Reference 11).

e. Requirements for Unit Pricing (Reference 12).

3. Nationwide Survey.

The plan for administration of the Weights and Measures

Law should be preceeded by a nation-wide survey to

identify the problem areas in commercial measurement

and to establish a rational base for the future

program. In addition, the survey will focus immediate
25

attention to the scope of the task at hand: to

develop within the national government an equitable

program of weights and measures that will furnish the

level of confidence in the market place that the law

intends. The survey should include testing of

commercial devices and packages in the major markets

of Ecuador. Principal industrial products should be

tested also. The economic importance of this program

to the nation and various segments of the economy can

then be evaluated—based upon the results of the survey.

4. Program of Law Enforcement.

The program of law enforcement should be based upon the

concept that the packager or device owner/operator is

responsible for accurate measurement. When violations

of the Law and Regulations are discovered, he is held

responsible. Consequently, servicemen and repairmen are

responsible for their maintenance programs, and weighmasters are responsible for their weights. A packer

must deliver the correct net weight.

To analyze the effectiveness of the weights and measures

program, a selective sampling procedure may be used. It

should be based upon:

a. economic importance of the device or commodity in

money value.
26

b. compliance level, and past history of compliance.

Program emphasis is placed upon the areas of commerce

and industry of greatest economic importance and v;hich

demonstrate serious measurement problems (non-compliance,

short weight or measure). Cost/benefit analysis, EDP,

operations research, are useful techniques in the management

of a weights and measures program.

Technical Training.

A program for the technical training of weights and

measures officials, industry representatives, and service

personnel is of major importance. They must receive

training in the areas of enforcement that relate to their

interests; i.e., scale testing, meter testing, package

control, law, regulations, etc. The more effective the

training program, the more effective will become the

enforcement program. INEN will probably shoulder the

primary responsibility for a technical training program

which should consist of instruction in administration for

program managers, supervision for field supervisors, and

inspections and tests for the field inspectors.

Pattern Approval,

This provision in the law, sometimes called "type

approval," is necessary as it controls the importation.
27

manufacture, and commercial use, of devices, packages,

and labels of inferior performance and design. INEN

plans to conduct an engineering evaluation of devices,

packages, and labels before they are used in com.merce

thus prohibiting unfair competition from illegal weights

and measures.

7. Calibrations and Tests.

INEN will be responsible for the testing and certification

of field standards and equipment used in the weights and

measures service. All field standards should be tested

at least annually, or more often if necessary, and be

certified for their use in the control of packages and

commercial devices.

8. Metric Conversion.

The Law provides for a National Advisory Board for planning

metric conversion. INEN should provide technical information to this body, industry, and commerce concerning

metric standards, instruments, commercial devices and

packages. Educational programs should be designed for the

general public and audio-visual aids (motion pictures,

pamphlets, etc.) prepared for wide distribution. Also,

speeches, informal presentations, and seminars will aid

the nationwide program of metric education.

The Metric Board should obtain voluntary conversion

schedules from industry based upon the economic factors
28

(time, costs, etc.) Involved and plan for a metric industry

and commerce within the ten years as established by the

law. Hov.'ever, there likely exist certain elements in

Ecuador's economy and future measurement system that

probably should remain in the customary or traditional

units, to which no benefit would be derived from conversion, or for which costs of conversion would be prohibitive, or simply would be impractical. These areas

should be identified.

One of the most important considerations is the conversion

to the metric system by commerce. Commercial devices

(packages, scales, meters, weights and measures, etc.)

should be placed on a mandatory schedule for conversion

to metric units. Packers and manufacturers can assist

in the determination of reasonable schedules for individual

classes of products and commodities. Many factors will

have to be considered such as the availability of metric

instruments and spare parts, the expected life span of

present equipment, inventory of packaging material and

labels, etc. However, deadlines should be established for

the change to metric units in commerce and these should

be enforced. Competition between manufacturers and packers,

for the export/import and domestic markets, may force the
29

creation of a mandatory plan if one is not established in

the beginning of the program.

Andean General Conference on Standardization.

It may be feasible to conduct an Andean Conference to discuss

and adopt model laws and model regulations for weights and

measures. These would include performance and design

specifications for commercial weighing and measuring devices,

and for packaging and labeling. Certainly, it will benefit

all nations of the Andean Pact to subscribe to uniform

laws and regulations for weights and measures. This is

a basic requirement for international trade. Industrial

standards (ISO, lEC, etc.) are equally important and should

also be considered for adoption by the member nations.
References

1. NBS Report 10551, Program of Legal Metrology and Scientific

Metrology, Quito, Ecuador (1971).

2. Weights and Measures Law—La Siguiente Ley De Pesas Y Medidas,

Quito, Ecuador (1973).

3. Model State Weights and Pleasures Law (1971).

4. Model State Packaging and Labeling Regulation (1972).

5. NBS Handbook 44, Specifications, Tolerances and Other Technical

Requirements for Commercial VJeighing and Measuring Devices

(1972).

6. Model State Weighmaster Law.

7. Model State Registration of Servicemen and Service Company

Regulation (1966).

8. NBS Handbook 105-1, Specifications and Tolerances for Field

Standard Weights (1972).

9. NBS Handbook 105-2, Specifications and Tolerances for Field

Standard Measuring Flasks (1971).

10. NBS Handbook 105-3, Specifications and Tolerances for Metal

Volumetric Field Standards (1971).

11. Model State Method of Sale of Commodities Regulation (1972).

12. >[odel State Unit Pricing Regulation (1972).

Copies of References were sent with copies of the original report to the

Agency for International Development (U.S. A.ID Mission, Quito). Additional

copies are available from the National Bureau of Standards, Office of

Engineering and Information Processing Standards, Washington, D.C. 20234.

30
FORM MBS-114i 1.71)

Li . L. . 1) c ^ . O COM*/.. DIRLlOGRAPrilC DATA

M. Pb.SLlCAl iON OR KHFOKl' XO.

I MB SIR 15^

Gov't Accebbicai No.

4. 'iri LL. AXD SUBTlTLi:

Natio!i--il Program of Metrology for Ecuador

7. AUTHOR(S)

Thomas M. Stabler

9. PERFORMING ORGANIZATION NAML. AND ADDRESS

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20^34

3. Recipient's Accession No.

5. P-jblication Date April 1973

6. Performing Organisation Code

8. 1 'erf o.-.T-ing Orcr.miz.ition NBSIR 73-157

10. Pro|ect/T ask.' V.'ork Unit No. 1560370

11. Contract/Grant No.

12. Sponsoring Organization Name and Address

Same as Item 9.

13. Type of Report U Period Covered Final

14. Sponsoring Aj-,ency Code

15. SUPPLEMENTARY NOTES

16. ABSTRACT (A 200-word or less factual summary of most significant information. If document includes a significant

bibliography or literature survey, mention it here.) At the request of the Ecuadorian Institute of Standardization (I>.EM) the U.S.

AID made arrangen.ents for a weights and measures advisor to assist in the development

of a prograii^ for scientific and legal metrology j including the design of a metrology

laboratory, inspection system, a training program, and other essential features. A

four week survey by an NBS representative has resulted in recommendations for a m.etrology laboratory, physical standards, and Ecuadorian weights and rr-dasures law,

regulations, and control program.

Considered also were the Ecuadorian National Standards of mass, length, and

volume; precision balances, and other laboratory instruments. A program of technical

education v;as recommended for an INEN engineer (Program Administrator) and for other

members of the INEN laboratory staff.

17. KEY WORDS 'Alphabetical order, separated by semicolons) Calibration and testing; Ecuadorian Institute

of Standardization (INEN); field inspections; mass, length, and volume standards;

metrology laboratory, model law and regulations; technical education; U.S. AID

18. AVAILABILITY STATEMENT

IXi UNLIMITED.

for OFFICIAL DISTRIBUTION. DO NOT RELEASE

TO NTIS.

19. SECURITY CLASS

(THIS REPORT)

UNCL ASSIFIED

20. SECURITY CLASS

(THIS PAGE)

UNCLASSIFIED

21. NO. OF PAGE;

33

I 22. Price

i

USCOMM-OC 6G?.'14.oVl