NIST

PUBLICATIONS

A TEN YEAR HISTORY OF

NATIONAL BUREAU OF STANDARDS

ACTIVITIES UNDER THE BROOKS ACT

(PUBLIC LAW 89-306)

INSTITUTE FOR COMPUTER SCIENCES AND TECHNOLOGY

NATIONAL BUREAU OF STANDARDS

U.S. DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

ISSUED FEBRUARY 1977

NBSIR 76-1113

A TEN YEAR HISTORY OF

NATIONAL BUREAU OF STANDARDS

ACTIVITIES UNDER THE BROOKS ACT

(PUBLIC LAW 89-306)

Edited by

Grace Burns and

Shirley Radack

Institute for Computer Sciences and Technology

National Bureau of Standards

U.S. Department of Commerce

Washington, D.C. 20234

i

U.S. DEPARTMENT OF COMMERCE,

Dr. Betsy Ancker-Johnson, Assistant Secretary for Science and Technology

NATIONAL BUREAU OF STANDARDS, Ernest Ambler, Acting Director

Issued February 1977

Foreword

This report has been prepared to assist NBS management and, in particular, the management of the Institute for Computer Sciences and Technology. We hope that it wUl be helpful also to other

organizations concerned with how NBS is meeting its responsibilities under the Brooks Act (Public

Law 89-306).

An internal tasic force of 31 ICST staff members began this study ten years after the passage of the Brooks Act, when the first significant standards and other important products of ICST activities had been in use long enough to have had an impact. Their study focused on activities under the Brooks

Act, not on other important ICST activities (e.g., automation technologv" and export control).

The report is intended to be a factual, candid, and informative appraisal of NBS responses to its three Brooks Act responsibdities: providing advisory services, developing Federal automatic data

processing standards, and conducting necessary research. The task force has prepared supplementar\" case studies of NBS work in selected technical areas which have the highest learning value for managers and scientists. The report also includes:

• summary of principal findings,

• ten year perspective on NBS' Brooks Act responsibihties that includes a review of Office of Management and Budget poUcy guidance to the Bureau and selected external groups' views

that have helped mold the NBS program.

• ten year profile of the computer environment covering the growth of the Federal computer

inventor>". Federal computer applications and functions, and shifts in the technological

character of Federal computer use,

• the procedure used by NBS for identifying Federal computer problems, and

• profile of the resources appUed to the NBS computer science and technology program.

NBS has during the last five years conducted two comprehensive reviews of its responses to the

Brooks Act. The first review was reported in NBS Report 10 608. Brooks Bill Issue Study of the National Bureau ofStandards , dated September 1971. The current report and the Brooks Bill Issue Study provide a comprehensive look at the ten year history of the National Bureau of Standards'

implementation of its responsibilities under Public Law 89-306. These two reports together provide an unusually complete, factual point of departure for assessing the past, understanding the present

and planning the future.

The document has already been helpful to ICST management in identifying areas of work in which a reorientation or increased emphasis would be beneficial to the general purposes of the Brooks

Act. Ruth M. Davis, Director

Institute for Computer Sciences

and Technology

iii

Contents

Page

1. SOENURY OF PRINCIPAL FINDINGS 1

1.1 XBS Responsibilities 1 1.2 Progress Under the Brooks Act 1

1.2.1. .\(lvisor>" Services 1 1.2.2. ADP Standards 1 1.2.3. Research 1

1.3. GAO Reports on NBS' Brooks Act Activities 2

1.4. N'BS Funding 2

2. N"BS" BROOKS ACT RESPONSIBILITIES 2

2.1. Highlights of the Brooks Act (Pubhc Law 89-306) 2

2.2. The NBS Role 2

2.3. Authorities 4

2.4. GAO Reports and Findings 4

2.5. Congressional Hearings and Reports: 1966-1975 5

2.6. Informal Conferences, Meetings and Reports Dealing with the Brooks Act and

NBS: 1966-1975 6

2.7. Reports 7

2.8. How N'ES Responds to Its P.L. 89-306 Responsibilities 8

3. ASSESSMENT OF THE FEDERAL COMPUTER ENVIRONMENT 9

3.1. Computing from 1965 to 1975 10

3.1.1. Changes in Computing Systems between 1965—1975 10

3.1.2. Distributed Computer Systems 10

3.1.3. Micro- and Multiprogramming Systems 10

3.1.4. Minicomputers and Microprocessors 11

3.2. Computers in the Federal Government: 1965 and 1975 11

3.3. Identifying Problems to be Addressed in the NBS Brooks Act Program 12

4. RESOURCES 14

5. OVERVIEW OF NBS RESPONSES TO BROOKS ACT RESPONSIBILITIES 19

5.1. Advisory Services 19

5.1.1. Background 19

5.1.2. Relevant Authorities 20

5.1.3. Relevant 0MB and GAO Issuances 23

5.1.4. Specific Studies, Letters and Reports 25

5.1.5. Selected Citations of Specific Requests for Technical Advisory Services 26

5.1.6. NBS Responses to Advisory Services ResponsibiUties 27

V
5.2. ADP Standards 32

5.2.1. Background 32

5.2.2. Definition of a Federal Standard 32

5.2.3. Two Schedules for the Development of a FIPS Standard 33

5.2.4. NBS Responses to ADP Standards Responsibilities 35

5.2.5. Standards Assessment 41

5.2.6. Standards Validation, Testing and Calibration Services 41

5.3. Research 42

5.3.1. Background . 42

5.3.2. NBS Response to Assigned Responsibilities 42

6. CASE STUDIES 44

6.1. Computer Systems Performance Measurement 44

6.2. Adoption of the American Standard Code for Information Interchange (ASCII) as a Federal Information Processing Standard 47

6.3. Computer Peripheral Interface Standards 53

6.4. Remittance Processing System 55

6.5. Performance Measurement of Computer Networks 57

6.6. Data Encryption Standard 59

6.7. COBOL Standards and Validation Routines 61

6.8. Mechanical Translation 62

6.9. FORTRAN Standards and Validation Routines 63

6.10. BASIC Standards and Validation Routines 54

6.11. Computer Technology Transfer in Medicine 65

6.12. APT 67

6.13. Computer Information Services 67

6.14. NBS PILOT Multiple Computer System 70

6.15. Development and Use of a Computer-based Graphical Display Terminal (MAGIC

II) 71

6.16. Computer Magnetic Storage Media 73

Appendix

A General Accounting Office Reports Recommending Actions Related to the National

Bureau of Standards' Mission 76

B List of Publications 78

Listing of Tables

Table 1. Excerpts from the 0MB Policy Guidance Letter (December 15, 1966) to the Secretary of

Commerce

Table 2. Topics and Recommendations Impacting on NBS from the Charlottesville Conference

Table 3. Topics and Recommendations Impacting on NBS from the Mrytle Beach Conference

Table 4. Selected Findings or Conclusions of the "Automatic Data Processing Strategy Study" of

March 1975 Relevant to NBS

Table 5. Computers in the U.S.: 1965 versus 1975

Table 6. Computers in the Federal Government: 1965 versus 1975

Table 7. Profile of Congressionally Appropriated Funding for NBS' Computer Sciences and

Technology Program in Response to the Brooks Act

vi
Table 8. Profile of the Estimated Obligation of Directly Appropriated Funds By Brooks Act

Categories in the NBS Computer Science and Technology Program

Table 9. Estimated Funding Requested by NBS

Table 10. Obligation of NBS Resources

Listing of Figures

Figure 1. Computer Application by Federal Sector Activity

Figure 2. Categories of Computer Problems/Issues

Figure 3. Major Problems/Issues by Computer Applications

Figure 4. Selection of Problems and Organizations for Emphasis in NBS Program

Figure 5. The FTPS Process: Standard Developed Entirely Within the Government

Figure 6. The FIPS Process: Adoption of ANSI Voluntary' Standard

vii
Acknowledgment

This report was prepared by a task force established by the Director of the Institute for Computer Sciences and

Technology. Members of the task force were:

Zane Thornton, Chairman

Thomas Pyke, Co-Chairman

Marshall Abrams

Leroy Allison

Robert Blanc

Dennis Branstad

Richard Dunlavey

John Evans

Dennis Fife

Sidney Geller

David Gilsinn

Martha Gray

Trotter Hardy

Joseph Harrison

Madeline Henderson

Ehzabeth Holberton

Edwin Istvan Seymour Jeffery

George Lindamood

Judy Lyons

Hazel McEwen

Raymond Moore

Ted O'Neill

Shirley Radack

Susan Reed

Don Rippy

William Truitt

Mabel Vickers

Joseph Wegstein

Harry White

John Wood

Elaine Frye, Secretary

viii
A Ten Year History of National Bureau of Standards

Activities Under the Brooks Act

Grace Burns and Shirley Radack, Editors

This report presents the principal findings of a National Bureau of Standards task force which

reviewed the activities and accomplishments of NBS from 1965 to 1975 under Public Law 89-306, the Brooks Act. The Brooks Act is concerned with the effective use of computers by the Federal Government

and assigns the National Bureau of Standards responsibility for providing scientific and technological

advisory services for automatic data processing, developing uniform Federal ADP standards and undertaking necessary research in computer science and technology. Program activities and a history of funding for each of these three major responsibilities are covered. Also included are case studies of

individual program initiatives.

Key words: Brooks Act; ADP standards; computer science research; computers in the Federal Government; scientific and technological advisory services.

1. Summary of Principal Findings

1.1. NBS Responsibilities

The National Bureau of Standards is responsible

under Public Law 89-306 dated October 30, 1965 for:

• providing scientific and technological consulting

and advisory services to Federal agencies,

• developing uniform Federal automatic data proc- essing standards; and

• undertaking necessary research in the sciences

and technologies of automatic data processing

computer and related systems.

By letter dated December 15, 1965 the Office of Management and Budget (then the Bureau of the Budget)

provided policy guidance to NBS in carrying out these

responsibilities.

1.2. Progress Under the Brooks Act

NBS has made significant substantive progress to- ward carrying out its assigned responsibilities under

Public Law 89-306.

1.2.1. Advisory Services NBS provided nearly $18 million worth of reimbursable scientific and technological consulting and

advisory services and technical assistance to Federal

agencies during the period FY1965-FY1975. The

spectrum of reimbursable services provided in- cludes: • feasibility studies to determine the need for a computer,

• assistance in the selection of computer systems,

• assistance in basic information system design, • review of the effectiveness of existing ADP sys- tems, and

• development of special data processing techniques.

1.2.2. ADP Standards

The preponderance of NBS effort over the last ten years (i.e., nearly four-fifths of its directly appropriated funds) has been directed to the development of

ADP standards and guidelines. These standards and

guidelines are issued as Federal Information Processing Standards Publications (FIPS PUBS).

NBS has developed 27 Federal Information Processing Standards (FIPS), 11 FIPS Guidelines and 6

FIPS prograin management documents. The FIPS

standards produced cover the areas of computer

hardware, software data, quality control, and safety

and security safeguards.

NBS has provided the equivalent of approximately

80 man-years of support to the American National

Standards Institute (ANSI) and associated groups in the development of voluntary commercial ADP

standards. In addition, NBS coordinates and

monitors the participation of some 150 technical ex- perts from 19 other Federal agencies in the ANSI

voluntary standardization program. Twenty voluntary ADP standards developed with Federal participation have been adopted, with appropriate modification, as Federal Information Processing Standards.

1.2.3. Research

During the early years of implementing the Brooks

Act, NBS carried out modest research efforts in pat- tern recognition, techniques for manipulating and

organizing chemical information, and the development of automatic graphic interface to a computer.

During the period FY1970-FY1973, the Bureau

explored methods of software quality control, pro- gram and data transferability methods, controlled

accessibility of computer systems, and systems per- formance measurement and evaluation; these ex- ploratory developments led to the establishment of new technical programs in software management,

computer security, and computer system perform- ance measurement.

1
1.3. GAO Reports on NBS' Brooks Act Activities

The General Accounting Office has issued 12 re- ports which contain comments or findings about

NBS' Brooks Act activities. These reports found NBS

having inadequate resources to do an adequate job.

Areas in which the GAO cited inadequacies were:

• interface standards, • software management,

• performance measurement,

• technology transfer, • data standards, and

• automated decision-making applications.

1.4. NBS Funding

NBS has received a total of $20.6 million in directly

appropriated funds to carry out its responsibilities

under Public Law 89-306 during the period FY1965-

FY1975. Although the annual average over the 10

year period has been about |2 million, annual funding

for the computer science and technology program did

not actually reach the $2 million level until FY1971, some five years after enactment of Public Law 89-

306.NBS has not had the resources to carry out all of the

specific tasks contained in the 0MB policy guidance

letter of December 15, 1966. Major examples are:

• means for measuring compliance with Federal

Information Processing Standards,

• guidelines and methods for monitoring the per- formance of systems studies and for implementing the results of such studies, and

• annual review of the accomplishments of and

programs for Federally-sponsored research in computer sciences and technology.

2. NBS' Brooks Act Responsiblities

2,1. Highlights of the Brooks Act (PubUc Law 89-

306)

Public Law 89-306 (79 Stat. 1127) was enacted on October 30, 1965, as an amendment to Title I of the

Federal Property and Administrative Services Act

of 1949 (63 Stat. 377). The purpose of P.L. 89-306 is to "provide for the economic and efficient purchase,

lease, maintenance, operation, and utilization of automatic data processing equipment by Federal departments and agencies.''

Under the Brooks Act:

• the Administrator, General Services Administration (GSA), was directed to coordinate and

provide for the economic and efficient purchase,

lease, and maintenance of automatic data proc- essing equipment by Federal agencies.

• the Secretary of Commerce was authorized to provide scientific and technological advisory

services to Federal agencies and the Administrator, GSA, to make recommendations to the

President relating to the establishment of uniform Federal automatic data processing standards, and to undertake necessary research in computer sciences and technology, and

• the Office of Management and Budget (0MB)

was assigned responsibility for exercising fiscal and policy control over the execution of authorities assigned to the Administrator, GSA,

and the Secretary of Commerce.

2.2. The NBS Role

The Brooks Act assigned no policy making responsibilities to the Secretary of Commerce as it did to the

Office of Management and Budget and the General

Services Administration. The Act did not carry any

funding authority with it. It did authorize the Secretary of Commerce to:

• provide scientific and technological advisory

services relating to automatic data processing

and related systems to Federal agencies and the

Administrator, GSA,

• make appropriate recommendations to the President relating to the establishment of uniform

Federal automatic data processing standards,

and

• undertake necessary research in the sciences

and technologies of automatic data processing,

computer and related systems.

The authorities assigned to the Secretary of Commerce by P.L. 89-306 were delegated to the Director,

NBS, and, subsequently, to the Institute for Computer Sciences and Technology (ICST). Specifically,

NBS/ICST was assigned the three major technical

responsibilities described in the Brooks Act and was

directed to undertake specific activities detailed in policy guidance issued by the Office of Management

and Budget.

The Office of Management and Budget, in a letter dated December 15, 1966, provided policy guidance

to the Secretary of Commerce implementing Public Law 89-306. The letter transmitting the policy

guidance stated:

"It is widely recognized that major hindrances to improving

the use of ADP are the absence of: (a) standardization in character sets, input-output media, and interfaces which pro- vide for compatible interchange of information and interoperation of systems and equipment, (b) standardization of computer programming languages, and (c) yardsticks for evaluating software and its effects upon the performance of the computing system. The Department (of Commerce) should concentrate on actions which will overcome these deficiencies."

Excerpts from the 0MB policy guidance letter of

December 15, 1966, are summarized in table 1.

2
Table 1

EXCERPTS FROM THE OMB POUCY

GUIDAIVCE LETTER (DECEMBER 15, 1966) to THE SECRETARY OF COMMERCE

BROOKS ACT STATEMENT: Provide scientific and technological advisory services relating to automatic data processing and

related systems to Federal agencies and the Administrator of General Services.

OMB POLICY GUIDANCE

a. Provide guidelines for use by agencies in conducting systems

studies, including consideration of systems interrelation- ships.

b. Provide guideUnes and methods for monitoring the perfor- mance of systems studies and for implementing the results of such studies.

c. Provide criteria to assist in evaluating software and hardw^are developments that may be considered during the systems

studies.

d. Provide technical guideUnes for preparing solicitations of proposals, including the specification of system require- ments.

e. Provide guidelines, criteria and techniques for evaluating and

selecting equipment and related software, giving priority emphasis to criteria for measuring the effectiveness and effi- ciency of software. Data on this subject will also be furnished

to GSA for consideration in the procurement of computers.

f. Mciintciin a reference index of computer programs to minimize

the need for the development of programs already developed,

tested and in use elsewhere.

g. Provide guidelines for evaluating installation and systems

performance on a continuing basis.

h. Keep abreast of the state-of-the-art developments in ADP

equipment, techniques and languages and evaluate these developments in terms of their current or potential impact upon the Government's use of equipment and software and its ADP management policies. Make these findings known

promptly to the Office of Management and Budget.

BROOKS ACT STATEMENT: Make appropriate recommendations to the President relating to the establishment of uniform

Federal automatic data processing standards. OMB POLICY GUIDANCE

a. NBS will undertake to increase compatibility in automatic

data processing in the Federal Government by recommending

Federal standards related to ADP equipment, techniques and computer languages. (Responsibility for recommending

standards for data elements and codes was retained by OMB

and later assigned to NBS by Executive Order 11717, May 9, 1973.

b. Develop, issue and maintain a statement of the Federal Government's standardization objectives and needs.

c. Survey and keep abreast of ADP standardization activities within the Federal government, Llnited States of America

Standard Institute (USASI). and elsewli.ere: and initiate and promote activities as necessary to achieve the Government's

objeclives.

d. Study and provide recommendations for Federal ADP stan- dards.

e. Study and provide recommendations on use within the Federal government of each appropriate United States Standard approved by the USASI in the area of ADP equipment, computer languages and techniques.

f. To the extent feasible and desirable, develop and recom- mend means for measuring compUance with Federal standards.

g- Provide for the technical maintenance of Federal ADP

standards.

h. Recommend procedures to be used in the Federal Govern- ment for adopting Federal standards and developing and

implementing plans therefor.

i- In the development of Federal standards. NBS/ICST will communicate and work closely with all Federal agencies (and

with manufacturers, private industry, and State and local governments when required and advantageous) to assure proper consideration of their needs and views and to obtain

their cooperation in the development process.

j. Provide day-to-day guidance and monitorship ot an Executive Branch program to promote the development and testing of voluntary commercial standards for automatic data processing equipment, techniques and computer languages.

k. Participate in activities of the X3 Committee on Computers

and Information Processing of the American National Stan- dards Institute (ANSI), its subcommittees and task forces and in the activities of the International Organization for Standardization as requested by ANSI.

1. Arrange and insure appropriate representation and active

participation from other Federal agencies on the X3 Committee, subcommittees and task forces to complement ICST's

participation with additional expertise from the operating environments of the Government.

m. Monitor and coordinate all such participation by all Federal

agencies to assure its consistency with the Federal govern- ment's objectives.

BROOKS ACT STATEMENT: Undertake the necessary research

in the science and technologies of automatic data processing computer and related systems.

OMB POLICY GUIDANCE

a. Sponsor, monitor, and undertake researcli and development

activities in the computer and information sciences and

technologies, including system design, oriented primarily toward Government application.

b. Maintain current awareness of on-going basic and applied research and development activities conducted by other

agencies, by Federally-sponsored contractors and grantees, and by the private sector of the economy. Develop inean;; for making such activities known and tlie results, including appropriate evaluations, available to Federal agencies for their benefit.

c. Research and development activities will be sponsored or undertaken, as appropriate, for the following purposes:

• To supplement agency research efforts when necessary

to meet Gi>vernment-wide re<)uirenuMits or to provide

solutions to problems ot concern to several dittercnt agencies.

• To initiate efforts to solve large-scale and difficult prob- lems sufficiently unique ti> special needs ot Go\ criiment

that outside interests are not likely to undertake \igor- ous and timely action.

3
• To evaluate and apply advanced concepts to the de- velopment, organization and implementation of automatic data processing, computer and related systems, in- cluding the innovation or extension of techniques needed for improved cost effectiveness in the conduct of agency programs through the use of computers and

related techniques.

• Conduct exploratory research in order to provide the technological bases for future standardization activities and to maintain the competence of the technical staff engaged in technical advisory services, testing and

evaluation, and standardization activities.

• To identify continuing Research and Development

(R&D) requirements for use by NBS/ICST, other agencies, academic and other organizations and industry in planning and coordinating R&D programs in the area of computer and information sciences and technology.

d. NBS should conduct an annual review of accomplishments of and programs for research in computer sciences and tech- niques, in conjunction with 0MB and other Government

agencies engaged in sponsoring research in computer sci- ences to assess accomplishments and to provide guidance for programs.

2.3. Authorities

The NBS/ICST program to provide ADP scientific and technological advisory services to Federal agencies, recommend uniform Federal ADP standards,

and conduct necessary research in computer sci- ences and technology is operated primarily under the

statutory authority of the Brooks Act. During the 10 years since enactment of this Act, however, NBS'

responsibihties in the computer science and technology area have been interpreted or expanded by the

following:

(1) Office of Management and Budget letter dated

December 15, 1966, subject: Policy Guidance

•

. ' to the Department of Commerce (National

Bureau of Standards) in the Implementation of Pubhc Law 89-306.

(2) Office of Management and Budget Circular

A-108, dated July 1, 1975, subject: Responsibilities for the Maintenance of Records About

Individuals by Federal Agencies.

This circular assigns responsibility to the

Secretary of Commerce for issuing standards and guidehnes on computer and data

security in accordance with 0MB guidance

relative to the Privacy Act of 1974.

(3) Executive Order 11717 dated May 9, 1973

This Executive Order transferred to the

Secretary of Commerce all functions being

performed by the Office of Management

and Budget relating to the establishment of

Government-wide automatic data processing standards, including the function of ap- proving standards on behalf of the Presi- dent. The Order resulted in NBS receiving

responsibility for the Federal data standards program which 0MB retained when it issued its 1966 policy guidance on implementation of Public Law 89-306.

(4) Office of Telecommunications Policy letter dated September 1, 1971

In this letter to the Assistant Secretary for Science and Technology, DOC, the Director, Office of Telecommunications Policy

(OTP) requested NBS to provide to OTP

technical advice and analysis in teleprocessing matters and to represent the United

States at appropriate international meetings.

(5) Department of State letter dated March 10,

1972

In this letter to R. M. Davis, Director,

Center for Computer Sciences and

Technology (CCST), H. Pollack, Director,

Bureau of International Scientific and

Technological Affairs, accepts CCST'S

offer to provide technical advice and support to the Department in its role in for- mulating and implementing foreign policy.

2.4. GAO Reports and Findings

Since enactment of Public Law 89-306, the General Accounting Office has issued (or has in draft form) 12 reports that contain comments, findings

and/or recommendations about NBS' Brooks Act activities. These reports (listed in appendix A) have

been generally consistent in citing inadequacy of re- sources and stressing the necessity for NBS to do more just to minimally meet government needs and

carry out the Bureau's Brooks Act responsibilities.

4
Principal areas in which the GAO has cited inadequacies in NBS' activities are:

• Interface Standards

• Software Management

Documentation

Standard programming languages

evaluation (validation)

Software specifications (quality controls)

• Performance Measurement

• Technology Transfer

• Data Standards

• Computerized Model Development

• Automated Decision Making Applications

• Automation Technology for Manufacturing

GAO has been both realistic and understanding in

its findings. A typical example of its findings ("Acquisition and Use of Software Products for Automatic Data Processing Systems in the Federal Government," B-115369, June 30, 1975) is:

"Computer users in the Federal Government have been inde- pendently evaluating software products with no uniform for- malized set of standards against which to make judgments.

The emphasis placed on such evaluations has been to satisfy the immediate needs of the user. There have been duplicate

technical evaluations of similar software products and of the

acquisition of varying types of software for the purpose of

satisfying like data processing needs.

"NBS was directed by 0MB in 1966 to perform technical evaluations of software products being acquired by Federal

data processing installations. We were advised by NBS offi- cials that they had been unable to execute these responsibilities due to the lack of financial and manpower resources.

"We believe that the use of a single technical evaluation procedure, using existing expert resources in the Government

and documenting the findings for future reference, would

eliminate duplicate technical evaluation efforts."

2.5 Congressional Hearings and Reports: 1966-

1975

There have been seven Congressional Hearings

since the passage of the Brooks Act in which NBS

program activities have been a topic and in which

NBS officials have testified. These are:

(GAO Report of June 24, 1969)

(GAO Report of June 30, 1971)

(GAO Report of August 22, 1972)

(GAO Report of June 3, 1974)

(GAO Report of December 29, 1972)

(GAO Report of October 8, 1974)

(GAO Report of May 16, 1974)

(GAO Draft Report, August 1975)

(GAO Report of May 1976)

(GAO Draft Report, 1975)

(1) Hearings before a Subcommittee of the Committee on Government Operations, House of

Representatives, July 1967: The purpose of the Hearing as stated by

Congressman Brooks was "to hear from those

directly involved (BOB, GSA, NBS) in this management effort ... to learn of their suc- cesses ... to define the problems confronting

them as we seek fuller implementation of this management program and even greater effi- ciency and economy in the use of Government

data processing."

(2) The Proxmire Hearings on Economy in Government, July 1970: "We believe that the development of a standard interface will promote industry competition and result in certain economies." ". . . the National Bureau of Standards should be

directed to develop a Federal standard inter- face program in order to achieve a significant

savings . . . from increasing the compatibility of

major components with mainframe equipment." (Elmer B. Staats, Comptroller General)

(3) The hearings before the Government Activities

Subcommittee of the Committee on Government Operations, House of Representatives,

May 20, 1971:

5
The purpose of this Hearing as stated by

Congressman Brooks was ". . . to obtain tes- timony ... as to the progress that has been

made in the implementation of PubHc Law

89-306 . . ." "Our interest is particularly

oriented to the problems that have been en- countered as this Government-wide coordinated system of management has been under

implementation over the period of the last five years."

(4) The NBS Oversight Hearings before the Subcommittee on Science, Research and Development of the House Committee on Sci- ence and Astronautics of September 1971:

The purpose of the Hearing was to give

Congress a complete overview and review of

the activities of NBS. Questions addressed

compatibility of computers, computer networking, quality and amount of NBS computer

equipment, impact of the computer on the labor

market, and the role of IBM in the computer

industry.

(5) The Hearing before the Government Activities

Subcommittee of the Committee on Government Operations, House of Representatives,

May 16, 1972: The purpose of this Hearing was to consider HR 13200. Section 2 of which proposed a 1100,000,000 annual appropriation for NBS to spend to support basic research in data proc- essing technology.

(6) Hearings before the Foreign Operations and

Government Information Subcommittee of the

Committee on Government Operations, July

17, 1973:

The purpose of these Hearings was to examine". . . Federal use of information and

communications technology to meet the needs

of society" . . . "to examine a variety of Federal systems which demonstrate how advanced

technology can be utilized to improve . . .

Federal information activities" ... to "examine what kinds of safeguards are needed

in each case to protect against misuses . . . how each system guarantees the privacy of in- dividual case files ..."

(7) Hearings before the Senate Committee on Government Operations and the Judiciary Subcommittee on Constitutional Rights, June 19,

1974:

Hearings were held on a "series of bills proposing controls on Government and commercial data banks and computers." Each of

these bills was "aimed at safeguarding the

rights of privacy of the individuals who are the

subjects of these information systems." The

Director of NBS' Institute for Computer Sci- ences and Technology testified that "in order

for any legislation passed to be really useful, it has to be technologically implementable."

Only one of these Hearings was concerned directly

with the question of the adequacy of resources for NBS. This was the Hearing on HR 13200 held on May

16, 1972. The Hearing proceedings were not published, and there was no legislative action on the

proposed $100,000,000 annual appropriation for NBS.

2.6. Informal Conferences, Meetings and Reports

Dealing With the Brooks Act and NBS: 1966-1975

Two conferences and two reports dealing with the

implementation of the Brooks Act are singled out for attention as being most meaningful to NBS' activities. They are:

(1) The Charlottesville (Virginia) Conference of

September 1969.

(2) The Myrtle Beach (South Carolina) Conference

of June 1970. The principal topics and recommendations rele- vant to NBS are listed in table 2 and table 3 below:

Table 2. Topics and recommendations impacting on NBS from the Charlottesville Conference

Selected Findings Relevance to NBS

1. "Intensive work siiould begin now to develop appropriate

interface standards."

2. . . need for quantitative performance measures as an aid to agencies in the selection of various elements of a computer

system."

3. "Consideration should be given to the development of standard ben< hmark tests in common application areas against which proposed system ('onfigurations would be measured."

NBS and GSA have underway a cooperative program in interface standards. NBS directed to "provide guidelines, criteria, and techniques for evaluating and sele('ting equipment" (0MB letter of December

1966 to Secretary of Commerce).

NBS developing synthetic benchmarks in COBOL.

6
Table 3. Topics and recommendations impacting on .\BS from the iVyrtle Beach Conference

Selected Findings Relevance to NBS

1. "ReafGrmation of the need for appropriate I/O interface standards." NBS and GSA have under\%ay a cooperative program.

2. "Coasideration should be given to taking an inventory- of software in use by Federal agencies."

NBS directed to "maintain a reference index of computer programs." (0MB letter of December 1966 to Secretary' of Commerce)

3. "Software packages acquired for Government use ought to be

supplied in standard languages ... to reduce their cost to the Government."

NBS efforts in COBOL. FORTRAN, and BASIC language standards and validation

4. 'Defer cataloging of application packages until an acceptable

format is established by NBS." NBS developed FTPS PUB 30 (standard form for describing computer programs).

2.7. Reports

There have been two notable special reports that bear on the XBS Computer Science and Technology

Program. They are:

(1) The Brooks Bill Issue Study of the National

Bureau ofStandards (NBS Report 10 608), September 1971.

This report was prepared by NBS/ICST in re- sponse to an 0MB request dated April 7, 1970,

for a study on the issue:

"What can be done to make the contribution

of the National Bureau of Standards more

effective in achieving greater efficiency and economv in Government ADP operations, as envisioned in the Brooks Bill (P.L. 89-306)?"

The report, informally stated as satisfactorily

responsive to the 0MB request, has served as

the basis for the NBS program since FY1972.

(2) "Automatic Data Processing Strategy- Study."

prepared for GSA. March 1975: Decisions and

Designs. Inc. The findings of this report support some of the

specific activities directed by the December

1966 0MB guidance letter to NBS. As noted

earlier NBS* abihty to pursue these actions is limited by its resources. The report also pro- posed several new activities such as the estabhshment of a central Federal audit review activity and the use of the Federal ADP revolving

fund for the development of software vaHdation

services. NBS and other Federal agencies as appropriate are following up on both of these

proposals.

The more significant of the findings of tliis re- port relevant to NBS are identified and short comments on their relevance are made in table

4.

7
Table 4. Selected findings or conclusions of the "Automatic Data Processing Strategy Study" of March 1975 relevant to NBS

Selected Findings or Conclusions

•1. "The quality of ADP services would be enhanced and their costs decreased by the use of private industry to satisfy the Federal Government's needs for the ADP systems and operations."

2. "Care should be taken In the publication of evaluation criteria and weights in solicitation documents . . ."

"Solicitations and source selected criteria should be im- proved in terms of clarity and consistency."

3. "[GSA should] provide coordination with respect to plans for centralization of computing facilities both within and among

user agencies."

4. "The efforts of the Federal Telecommunications Standards Committee (FTSC) may be enhanced. . . .This would

require an analysis of the degree and nature of interoperability requirements . . . which would give new directions and

priority to the Federal standards development activity."

5. "[GSA Automated Data and Telecommunications Service (ADTS) should] establish a technical analysis support facility which will be capable of providing assistance to those agencies which are not GSA-certified. '

6. "... a central Federal audit review activity should be initi- ated."

7. "GSA and NBS [should] explore the concept of class retire- ment by its after-the-fact audit of type characteristics, ... as an element of its approval of agency ADP plans."

8. ... "[Software] exchange is enhanced by employing stand- ard formats and data elements and NBS is developing such

standards" . . .

9. . . ."Cost evaluation made at the component level are necessarily fragmented and incomplete, unless true componentlevel interchangeabiUty exists."

10. " [The ADP] Fund should be used by GSA ADTS to encourage

software generalization and/or exchange efforts by a system

of credits to software developers and charges against the subsequent users."

11. GSA, OTP and NBS should continue to review interagency

plans regarding interconnectivity, sharing, etc.

2.8. How NBS Responds to Its Brooks Act Responsibilities

The NBS response to the Brooks Act takes many

forms depending upon the specific responsibility

being addressed and the demands of a particular

problem. The principal forms of response are:

(1) Federal Information Prcessing Standards

(FIPS) for Government-wide implementation.

These standards are issued in the categories of

Relevance to NBS

NBS directed to "provide guidelines, criteria and techniques for evaluating and selecting . . . software, giving priority emphasis to criteria for measuring the effectiveness and efficiency of software" (0MB letter of December 1966 to Secretary of Comnrierce) This task becomes MORE IMPORTANT as greater re- liance is placed on private industry.

NBS directed to provide criteria to assist in evaluating software and hardware developments that may be considered during the sys- tems studies and to provide technical guidelines for preparing

sohcitations of proposes, including the specification of system

requirements.

GSA should explore the establishment of central multiple-access

computer facilities (or utilities) building upon the research apd

evaluation findings of the NBS, DOC and other agencies on the

effectiveness of such systems." (0MB letter of May 4, 1966 to Administrator, GSA)

NBS was instrumental in setting up the PfSC. NBS is having

FIPSCAC review FIPS objectives and requirements.

0MB directed NBS to perform such functions in its December 1966

policy guidance letter. 0MB and GSA should request the necessary funding for these functions to be done by NBS.

GAO, GSA and NBS are in the process of recommending that NBS

provide the needed technical support for such activity. See draft GAO report on Automated Decisionmaking Applications.

See comment under #6.

NBS has scheduled dates for needed standards in its FIPS program.

NBS Interface Standards program has with GAO encouragement

recently received more resources and has near-term milestones regarding interchangeabiUty standards and guidelines.

GSA and NBS are exploring the use of the ADP Fund for develop- ment of software validation services.

No additional direction needed.

hardware, software, data, quality control and

safety and security safeguards.

(2) FIPS guidehnes that provide technically sound

recommendations and information to assist Federal agencies in coping with specific au- tomatic data processing problems. The

guidelines are developed and issued

when there is a perceived, widespread need for uniform technical guidance and a FIPS stan- dard is inappropriate or cannot be developed in the required time frame.

8
(3) FIPS management publications that describe

standardization program objectives, detail pro- cedures for developing and using ADP standards, provide indices of FIPS standards and

guidelines, and define agency responsibilities

v/ithin the FIPS program.

(4) Standard Reference Materials (SRM), calibration services and high precision techniques for measuring the quality and performance of

computer magnetic storage media, e.g., magnetic tape, cassettes, cartridges, and disks. These products are used by the General

Services Administration to test and certify

magnetic media for Federal procurement, and

by industry for quality control in the manufacture of magnetic media.

(5) Technical publications reporting on research in computer science and technology undertaken

to provide a basis for advisory services to Federal agencies or to estabUsh a technical foundation for the development of FIPS standards and

guidelines.

(6) Handbooks of reference information and data

to assist computer professionals in carrying out

specific functions such as software development and computer system performance

measurement.

(7) Technical assistance and advisory services to Federal agencies. Generally, this work takes

two forms: direct technical input to policymaking by central management agencies, e.g., Office of Management and Budget and the

General Services Administrative, and reimbursable interagency agreements where NBS

"contracts" to provide specified ADP services

and products to the sponsoring agency in solv- ing a specific ADP problem. The products of

these interagency agreements go directly to the

sponsoring agency and on occasion, depending

upon the nature of the problem addressed, are made available to other agencies and non- Government requestors. A few other agency

projects result in the development of prototype

hardware systems that are turned over to the

sponsoring agency.

(8) Scientific and technical conferences, workshops, and symposia are used extensively to keep abreast of computer technology, to dis- seminate the results of NBS computer re- search, to focus attention on specific technical

problems, and to identify trends in agencies'

requirements for computer science and

technology. NBS sponsors many of these conferences, workshops and symposia by itself; the Bureau also collaborates with professional

societies, universities and trade associations in jointly sponsoring some of these activities. Wherever appropriate, NBS publishes proceedings of its conferences and symposia as a means of achieving secondary dissemination of

technical information.

(9) Extensive interaction with Federal agencies.

Technical representatives of Federal agencies

play an active role in NBS' computer science

and technology program. Agency personnel

serve as members of task groups established to develop FIPS standards, and as members of the FIPS Coordinating and Advisory Committee that helps establish ADP standards pro- gram objectives and requirements and has

oversight of task groups set up to develop

specific standards.

(10) Monitorship and guidance of the Executive

Branch program of participation in the development of voluntary industry ADP standards. NBS arranges for Federal participation in the committees and working groups of the

American National Standards Institute, and

coordinates such participation to assure its consistency with the Federal Government's objectives.

(11) Establishment of validation centers for compilers and other software products.

3. Assessment of the Federal Computer

Enviromnent

In order to develop a meaningful perspective of NBS' Brooks Act Program, one must take into ac- count the evolution of computer technology and the

extent to which the Federal Government has exploited

that technology. The Federal Government has been a major user of computers since the beginning of the

computer era nearly 30 years ago. In the early 1950's

the Federal Government sponsored virtually all computer activities and computer research and development. As computers proliferated in the private sector, however, the percentage of computers controlled

by the Government decreased from nearly 100 per- cent in the early 1950's to 8.7 percent in 1965 and,

finally, to 4.1 percent in 1975. (See note, table 6.) The first part of this section attempts to profile the

computer environment in 1965 and 1975. It provides

statistical data on computers in both the Federal

Government and the private sector for the periods of

interest. The second part of this section continues to profile

the Federal computer environment by describing a procedure used to identify those problems that are addressed in the NBS Brooks Act program. This pro- cedure is based on the analysis of types of computer

applications. Federal activity sectors where computers are used, and generally acknowledged problems

and issues in computer usage as expressed by other

Federal agencies. General Accounting Office re- ports. Congressional hearings and reports, and in- dustry representatives. The output of the procedure

9
is a set of problems and issues that deserves priority

attention.

The third part addresses the identification and

selection process used to determine the specific problems that are addressed by the NBS Computer Sci- ence and Technology Program.

3.1. Computing from 1965 to 1975

3.1.1. Changes in Computing Systems between 1965—1975

In the eyes of many observers, 1965, the year in which the Brooks Act became law, was a pivotal year

in the history of the computer industry. With the

dehvery of the first 3rd-generation computer systems

in that year, profound and lasting changes were initi- ated in the practice of computing and in the computer

industry, changes that are still underway today.

The 3rd-generation computer systems announced

and delivered in the mid-1960's offered significant

improvements in speed, capacity, flexibility, reliability, and (especially) cost over their predecessors. The

use of hybrid and integrated circuit semiconductor

technology in central processing units made submicrosecond cycle times commonplace. Advances in magnetic core technology made possible central

memories having cycle times commensurate with

those of the central processing units and with

capacities several times greater than in previous

computers. Other advances in magnetic and elec- tromechanic technology made possible a wider range

of computer peripheral devices offering increased

performance in terms of data transfer rates, storage access times, storage capacities, and reliability.

Of even greater consequence than these advances

in hardware were the changes in software and

software practice effected by the advent of the 3rd

generation. Although operating systems, file management systems, and other special or general pur- pose software systems had been developed for some

of the larger 2nd-generation computers, such complex software packages were a necessity (rather than

a sometimes desirable option) in 3rd-generation computer systems. This fact, coupled with the increased

complexity of 3rd-generation system architecture,

and amplified by the trends toward decreased

hardware costs and increased programmer costs, gave rise to a situation in which the cost of system

software exceeded that of hardware.

Other significant differences in the practice of sys- tem architecture between 2nd and 3rd-generation

computers gave rise to changes in the computing

industry. With upward and downward compatibility across the entire IBM System/360 product line, old

distinctions between scientific and business oriented

computers became obsolete. The building-block ap- proach to system configuration, wherein a variety of

memory sizes, channel configurations, and peripheral equipment were available for each model,

made the "standard configuration" of a given computer system a thing of the past. As a consequence,

each hardware unit was. priced separately, with the

cost of the software being "bundled' into the price

into the CPU. This fact, plus the market aggregation

resulting from the use of the same interface for each

peripheral throughout all models of the System/360

series, occasioned the formation of companies whose

sole business it was to manufacture and market

"plug-compatible" peripheral devices, such as disks,

tapes, printers, and (eventually) even central memory

units. Computer manufacturers other than IBM, in order

to compete with the IBM 360 line, were forced to discontinue or at least significantly modify their past

practices of marketing two or more somewhat distinct product lines, each tailored to specific markets. This,

in turn, also made these companies subject to competition from plug-compatible peripheral suppliers.

Perhaps as a result of this and also because of the

unanticipated magnitude of difficulties encountered

by the major mainframe manufacturers in developing

the complex system software and applications packages for 3rd-generation systems, the practice of software "unbundling"—that is, separate pricing of

hardware and software—began in the late 1960's. Again, this opened the way for the creation of a new

genre of firm in the computing industry, the independent software house.

Changes in the lease-to-purchase price ratios also gave rise to the advent of third-party computer leas- ing firms, and the drastically increased number of

computer installations using systems made up of

equipment from several different suppliers created a demand for independent computer maintenance

firms.

The years from 1965 to 1975 have been characterized as a period of "consolidation," reflecting the

fact that most of the predominant practices in computing today already existed in 1965, at least in ex- perimental or rudimentary form. Although the differ- ence between then and now is that these practices

have become commonplace, the changes, however

gradual, have been significant.

3.1.2. Distributed Computer Systems

In hardware, the building-block approach to sys- tem configuration has evolved into decentralized sys- tems. As the cost of semiconductor circuitry has

dropped rapidly, new options have been opened to computer engineers in allocating processing functions among the CPU, channel, controller, and ter- minal or peripheral device. This, coupled with the

maturation of software and communications technology for computer networks has resulted in the distri- buted computing systems of today.

3.1.3. Micro- and Multiprogramming Systems

Microprogramming, a concept which dates back to 1951 but which first received widespread use in a commercial product line in the System/360, is often

the means used to implement distributed processing

capability. More significantly, microprogramming

10
has also provided a "bridge" between hardware and

software, not only by facilitating system designs in which the hardware provides an optimal environment

for the software but also by permitting systems and

even applications functions heretofore carried out in software to be implemented in hardware with significantly improved cost/performance ratios. The use of microprogramming to provide increased

efficiencies in compilation and execution of programs

written in higher-level languages has also made as- sembler language programming almost a thing of the

past. Despite the introduction of new programming

languages such as PL/1, APL, BASIC, and ALGOL

68, most computer programs today are written in FORTRAN and COBOL, languages dating back to the late 1950's. Despite the difficulties encountered in perfecting

3rd- generation operating systems embodying muhiprogramming, this concept is employed in all but a very small number of highly specialized, dedicated

computer systems today. Moreover, the time-sharing

concepts pioneered in the early 1960's reached suffi- cient maturity to give rise to a number of commercial

time-sharing computer service bureaus in the late 1960's. Of late, these service bureaus have suffered

to some extent from competition provided by portable

programmable calculators, but the techniques and

concepts which were proven in that service bureau

environment—for example, virtual memory—are now an integral part of modern computer networks.

3.1.4. Minicomputers and Microprocessors

Even the minicomputer, which now promises to overtake the more traditional "general-purpose

mainframes" in constituting the dominant factor in the computing industry, was present in the early 1960's in the form of products from Digital Equipment

Corporation (DEC), Computer Control Corporation

(now a subsidary of Honeywell), and Autonetics.

Minicomputers have comprised part of the leading

edge of the movement toward unbundled software,

purchased systems, and distributed systems employing dedicated processors for specialized functions.

Today the microprocessor threatens to overtake

the minicomputer in what was formerly the latter's exclusive domain, the original equipment manufacturers (OEM) computer market. As a result, instead

of attaching "other things" to computers, computers

are now being built into other devices. While this is making possible the intelligent terminals and other

devices essential to distributed computer systems, it is having much more far-reaching consequences in application areas such as scientific instrumentation,

home appliances, automobiles, and entertainment

(including children's games).

Although present day trends toward networking

and distributed systems are expected to continue for some time to come, it is difficult to predict new

technological breakthroughs and their attendant ef- fects. Some indication of what the future will bring can be gained, however, from current research areas:

ultra-high-speed circuits, such as Josephson junction

devices; mass-memory systems based on magnetic

bubble, charge-coupled device, laser, or electron

beam technology; hand-written character and speech

recognition; and graphic display output techniques.

It is relatively safe to predict that whatever

changes occur will be introduced in an evolutionary,

rather than revoluntionary fashion. Although the

claim may be correct that the computing industry has now become technology-driven rather than marketdriven, there is much too large an existing investment

in capital goods, inventories, trained personnel, and

leased equipment for the industry to introduce new

technologies and techniques which are totally incompatible with present-day systems. Although the in- troduction of the IBM System/360 in April 1964, in- volved new CPUs, memories, peripheral devices,

and software all at the same time, systems today are being introduced in piecemeal fashion, and the

pieces are designed in such a way as to be useable

with older system components as well as those

planned for announcement in the not-too-distant fu- ture.

3.2. Computers in the Federal Ck>vernment; 1965

and 1975

In the early 1960's it was often necessary to piece

together computer systems from various products

which were not necessarily designed to be compatible

with one another. Since this usually required the

design of special interface hardware and/or software

and since the requisite expertise to do this was often not present in the Government agencies involved,

technical assistance from NBS was often required.

This situation is now changed. Advances in computer

component technology make it possible for Federal

agencies to use commercial computer products. Even

in the rare cases where it is still necessary to integrate

and/or interface special equipment for a particular

purpose, the technical expertise required to do so is more often available within the Federal agency in- volved or from private firms.

Other changes which have occurred in the U.S.

computer industry and in the use of computers in the

Federal Government are shown in tables 5 and 6. The

number of computers has increased significantly, al- though the rate of growth in the Federal Government

is only one-half that of the U.S. as a whole. As in 1965. the Government continues to purchase a larger portion of its computers than U.S. computer users in general. This may account at least partially for the

higher average cost of computers in the Government,

since purchased systems are not replaced as ipiickly as leased systems when new models are announced

with better performance per dollar: Another reason for liigiier average computer costs

in the Government may be the Government's tradi- tional role as the chief sponsor and user of very large

scale computers such as are used in defense and

space programs. However, as the data in tables 3 and

6 suggest, the proportion of "super " computers in Government applications has declined significantly.

11
Table 5. Computers in the U.S.: 1965 versus 1975

1965 1975 Numbers of Computers 25,165 209,061 Purchased

Leased

7,165 (28.5%)

18,000 (71.5%)

155,586 (74.4%)

53,475 (25.6%) Purchase value Average value

$7.5 Billion $298,000

$37.8 BiUion $181,000

Number of computers in three price ranges

System purchase price less than I200K 16,000 (63.6%) 164 451 ns 7%)

System purchase price between I200K and $1.5M 8,625 (34.3%) 41,043 (19.6%)

System purchase price greater than $1.5M 540 (2.1%) 3,567 ( 1.7%)

Number of computer systems from various manufacturers

Burroughs

CDC

DEC

Data General Hewlett-Packard Honeywell & GE

IBM

NCR

T Ini va p A R A

Varian Xerox

Other

835 ( 3.3%)

900 ( 3.6%)

(See note a) 0

0

1,265 ( 5.0%)

14,285 (56.8%)

1,305 ( 5.2%)

o,yoa [lo.ovo) 0

(See note a) 2,590 (10.3%)

3,971 ( 1.9%)

2,416 ( 1.1%)

41,082 (19.7%)

15,040 ( 7.2%)

12,340 ( 5.9%)

9,950 ( 4.8%)

54,829 (26.2%)

5,026 ( 2.4%)

4,o46 ( z.3%)

4,125 ( 2.0%)

1,651 ( 0.8%)

54,186(25.9%)

Source: International Data Corporation

* Included in figures for "other" in 1965 data.

3.3. Identifying Problems to be Addressed in the

NBS Brooks Act Program

NBS makes every effort to match its limited re- sources to the ADP problems that are most pressing

for Federal agencies. The identification and selection

process is difficult and has been the subject of special

study efforts; one approach is described below.

NBS, using inputs from Federal agencies, the General Accounting Office, the Congress and representatives of industry, has compiled the major computer

applications by generic type. The principal computer

applications are listed below:

Principal Computer Applications

(1) Data^ Acquisition and Validation

Real-time sensors Nonreal-time data collection

Automated data reading

(2) Recordkeeping (Information Storage and Retrieval)

Personal records (for current operational use)

Management data records (e.g., profit, budget)

' "Data" and "information" are used interchangeably depending upon traditional usage in the computer field.

Administrative data records (e.g., payroll)

Operational data records (e.g., inventory, daily

sales, transaction records, laboratory experiment records)

Historical, bibliographical and/or research rec- ords (e.g., census, judicial, history archival,

library records)

(3) Management Information Services (Management Information Storage, Manipulation,

Analysis, Retrieval and Display)

(4) Real-Time Control

Moving vehicles (e.g., commercial aircraft,

satellites, targetted weapons, mass rapid

transit)

Operational systems (e.g., electric utility dis- tribution networks, telephone systems, rail- road systems, police department activities,

computer-aided instruction)

Information systems (e.g., electronic fund

transfer systems, retail point-of-sale and

supermarket check-out systems, automated

warehousing and distribution, airline reser- vation systems)

Automated laboratory experiment systems

Automated production

Continuous process control

12
Table 6. Computers in the Federal Government: 1965 versus 1975

1965 1975 Number of Computers 2188 8649

Purchased 988 (45.2%) 7504 (86.8%) Leased 1200 (54.8%) 1145 (13.2%)

Purchase value 11.0 Billion 12.9 Billion Average value $457,000 1334,000

Number of computers in three price ranges

System purchase price less than $250K (1965) or OZUUJS. (i^flo) yyy (4o. /to;

•700*7 /OO ^fyl \ 12,2,1 (oo.6%)

bystem purchase price between $z5UK (19o5) or S200K (1975) and S1.5M 954 (43.6%) 1276 (14.8%)

System purchase price greater than $1.5M 235 (10.7%) 146 ( 1.7%)

Number of computer systems from various manufacturers

Burroughs 98 ( 4.5%) 221 ( 3.2%)

CDC^ 210 ( 9.6%) 427 ( 6.1%)

DEC 31 ( 1.4%) 1443 (20.7%) Data General 0 259 ( 3.7%)

GE 51 ( 2.3%) 127 ( 1.8%) Hewlett-Packard 0 330 ( 4.7%)

Honeywell 66 ( 3.0%) 398 ( 5.7%) IBM 998 (45.6%) 1202 (17.2%) NCR 196 ( 9.0%) 103 ( 1.5%)

RCA 132 ( 6.0%) 113 ( 1.6%)

T I n 1 \' o ^ u 111 V ac ftl ^ (11 f\0/r.\ Varian 0 116 ( 1.7%)

XDS'^ 40 ( 1.8%) 229 ( 3.3%)

Other 175 ( 8.0% 1200 (17.2%)

Total 2188 6981 Number of computers in various Federal agencies

Ueiense 1 ACii //id Arrf\ 1497 (68.4%) 4245 (49. 1%)

NASA 251 (11.5%) 1114 (12.9%) AEC (now ERDA) 183 ( 8.4%) 1904 (22.0%)

Treasury- 48 ( 2.2%) 150 ( 1.7%)

All other 209 ( 9.6%) 1236 (14.3%)

Total 2188 8649 NOTE:

Source: Inventory of Automatic Data Processing Equipment in the Federal Government, General Services Administration, 1965 and 1975. This inventory excludes analog computers and digital computers built or modified to special Government design and integral to a weapons

or space system.

^ includes Bendix

" includes EMR

^ includes SDS

Discrete parts manufacturing

Discrete production lines Teleoperators and/or remote manipulators

(5) Real-Time Monitoring

Individual identification (e.g., controUed-entry

areas, computer network access, emergency

medical services, voting, credit transactions)

Individual health care (e.g., coronary care

units, intensive care units, automated medical instrumentation, patient monitoring)

Vehicle, personal location monitoring

Environmental monitoring (e.g., air pollution,

water pollution)

Area monitoring (e.g., electronic area surveil- lance, house protection services)

Quality control monitoring

Meter reading

(6) Modeling and Simulation

Economic

Systems design, performance, operation

Product performance

Planning

War-gaming

System, product

Nondestructive evaluation

Technology prediction, assessment

(7) Scheduling, Allocation, Dispatching

13
(8) Scientific and Research Investigations

(9) Specialized Applications

Automated photocomposition

Automated stenotype

Next, NBS matched these computer appHcations

with Federal sector activities. Figure 1 shows the

computer apphcations relevant to each category of

Federal activity.

The next step in the process was to identify the

principal problems and issues of continuing concern

in the computer and automatic data processing field. Again, inputs were drawn from Federal agencies,

GAO reports, the Congress, and industry. The identified problems and issues are shown in figure 2. Selected highest priority technical and technology

problems and issues identified in the preceding process were then matched against computer applications

categories (from fig. 1); the resulting matrix is shown

in figure 3. The culmination of the entire process is illustrated

in figure 4. The dominant computer applications and

their sectors of widest impact were intersected with

problem and issue categories to produce a list of

problems and issues that should receive priority at- tention. By identifying the major trade and professional associations within the sectors of widest impact, one can then produce a list of such associations

with which NBS should work in attempting to resolve

the identified priority problems and issues.

4. Resources

This section provides a summary of the funding

history of the NBS Computer Science and Technology Program undertaken in accordance with authorities assigned to the Secretary of Commerce by

the Brooks Act. The tables provided here profile the

funds requested and appropriated for the period

FY1965-FY1977, and show the allocation of directly

appropriated funds to program functional areas. In order to illustrate the emphasis that has been

placed on the different aspects of the Bureau's

Brooks Act responsibilities, funding data have been

aggregated under broad activity categories as defined

in the Act and the Office of Management and Budget

implementing Policy guidance. The Brooks Act

categories are:

• develop uniform Federal automatic data pro- cessing standards, • provide scientific and technological advisory

services to Federal agencies, and

• conduct necessary research in computer sci- ences and technologies. (This research directly

supports the standards development category

shown above.)

The 0MB policy guidance categories are: • provide scientific and technological advisory

services to Federal agencies, • participate in the development of voluntary

commercial ADP standards, • develop uniform Federal ADP standards, • conduct necessary research, and

• provide computer services to NBS.

COMPUTER APPLICATION BY

FEDERAL SECTOR ACTIVITY

COMPUTER APPLICATIONS zo

5 = z

OS Z Z <= S

LU — u ° UJ O y X

LU O

ISIT cc z ** OC io1- oc

TIM ITOfl ELIN

ILATI lURC

CATI MTIF ARC

1V3I

FEDERAL SECTOR ACTIVITY

DATA ACOU RECO

KEEPI man; INFO! REAL CONT REAL MON!

niAiis

lOOIAI = o

UJ _J

CC <

SCIEI RESE SPEC APPL

NATIONAL DEFENSE • • • • • •

NATIONAL SECURITY • • • •

LEGISLATIVE •

JUDICIAL •

PUBLIC SAFETY • • • •

WELFARE SERVICES •

RESEARCH & DEVELOPMENT • •

PUBLIC HEALTH • • •

HOUSING & URBAN SERVICES •

FINANCIAL • •

TRANSPORTATION • • • •

INTERNATIONAL AFFAIRS •

COMMERCE • •

PUBLIC LANDS NATURAL RESOURCES • •

MANAGEMENT/ADMINISTRATION • •

GENERAL SCIENCE. SPACE & TECHNOLOGY • • • • •

EDUCATION

FiGUKE 1

14
CATEGORIES OF

COMPUTER PROBLEMS/ISSUES

TECHNICAL

• INADEQUATE SECURITY SAFEGUARDS

• LACK OF PERFORMANCE MEASUREMENT TECHNIQUES

• NEED FOR IMPROVED METHODS OF NETWORKING

• TECHNOLOGY

SOFTWARE

DATA

STRUCTURE

MEMORY

MATHEMATICAL MODELS MEASUREMENT & EVALUATION TECHNIQUES

PROGRAM TRANSFERABILITY SOFTWARE SUPPORT FOR MINICOMPUTERS

QUALITY CONTROL

FILE STRUCTURE & DATA MANAGEMENT

VERY LARGE STORAGE DEVICES ARCHITECTURE - operating systems

- COMPUTER SYSTEM DESIGN

- VERY LARGE STORAGE DEVICES INPUT/OUTPUT - COMPUTER graphics

- HIGH DENSITY STORAGE MEDIA

- ARCHIVAL PROPERTIES OF STORAGE MEDIA MANAGERIAL

•INADEQUATE SECURITY SAFEGUARDS

• INADEQUATE SOFTWARE MANAGEMENT

•INADEQUATE INFORMATION MANAGEMENT

PRACTICES

• DISSIPATION OF COMPUTER MANPOWER

SKILLS

• INEFFICIENCY IN COMPUTER UTILIZATION

• LACK OF CONCERN FOR CONSUMER OF

SERVICES

ECONOMIC

•PREDATORY MARKET PRACTICES

•LACK OF QUALITY CONTROL OF COMPUTER

SERVICES

•NEED FOR MARKETPLACE STANDARDS

• NEED FOR IMPROVED NETWORKING

METHODS

MARKETPLACE

•INADEQUATE INFORMATION FOR THE

CUSTOMER

•LACK OF PERFORMANCE MEASURES

•LACK OF QUALITY CONTROL FOR COMPUTER

SERVICES

•INADEQUATE SELECTION TECHNIQUES FOR

THE CUSTOMER

SOCIETAL

•POOR QUALITY SERVICES FOR THE PUBLIC

•LACK OF GOOD INFORMATION

MANAGEMENT PRACTICES

•CONSUMER IGNORANCE OF COMPUTER'S

ROLE

LEGAL

•PREDATORY MARKET PRACTICES

• NEED FOR MARKETPLACE STANDARDS

•INADEQUATE PROTECTION OF DATA

•MONOPOLISTIC PRACTICES

• LACK OF INTERFACE STANDARDS

•INADEQUATE INFORMATION FOR THE

CUSTOMER

15
MAJOR PROBLEMS/ISSUES

BY COMPUTER APPLICATION

TECHNICAL-

•TECHNOLOGYCOMPUTER APPLICATION a. S

DATA ACQUISITION RECORD KEEPING MANAGEMENT INFORMATIO

REAL-TIME CONTROL

REAL-TIME MONITORING

MODELING & SIMULATION RESOURCE ALLOCATION

SCIENTIFIC & RESEARCH

SPECIALIZED APPLICATIONS NOT APPLICABLE

Figure 3 SELECTION OF PROBLEMS & ORGANIZATIONS

FOR EMPHASIS IN NBS PROGRAM

DOMINANT COMPUTER

APPLICATIONS

• DATA ACQUISITION • RECORD KEEPING • MANAGEMENT INFORMATION • REAL-TIME CONTROL • REAL-TIME MONITORING SECTORS OF WIDEST IMPACT

• MANUFACTURING INDUSTRIES • GOVERNMENT •EDUCATION • COMMUNICATIONS •RETAIL TRADE • ELECTRIC & GAS UTILITIES • MEDICAL & HEALTH SELECTED TRADE/PROFESSIONAL

INTERSECTION WITH

PROBLEM/ISSUE CATEGORIES

• TECHNICAL • MANAGERIAL • ECONtlMIC • MARKETPLACE

.•SOCIETAL

• BANKING ASSOCIATIONS

• NATIONAL RETAIL MERCHANTS ASSOC." • ELECTRONIC INDUSTRIES ASSOCIATION • ELECTRIC POWER RESEARCH INSTITUTE • NATIONAL ASSOCIATION OF STATE INFORMATION SYSTEMS • AMERICAN MEDICAL ASSOCIATION • UNIVERSAL PRODUCT CODE COUN • NUMERICAL CONTROL SOCIETY • COMPUTER S BUSINESS EQUIPMENT MANUFACTURERS ASSOCIATION • SUPERMARKET INSTITUTE • AMERICAN BANKERS ASSOCIATION • COMPUTER INDUSTRIES ASSOCIATION

NBS

PROBLEMS/ISSUES

FOR EMPHASIS

'• COMPUTER SECURITY • SOFTWARE MANAGEMENT

• QUALITY CONTROL OF SERVICES • INTERFACE STANDARDS • PERFORMANCE MEASUREMENT • NETWORKING

Figure 4

There are three sources of money to fund the Computer Science and Technology Program. Direct Congressional appropriations provide the backbone funding for the development of standards, necessary re- search and some advisory services. Reimbursements

from other agencies fund a major portion of the advi- sory services and technical assistance provided upon

request to other agencies. Fees collected from the users of central computer resources cover the majority of the costs of providing computer services at NBS. The funding data presented in this section are

limited to Congressional appropriations only.

The fiscal year totals for funds requested, appropriated and allocated have been derived from NBS

Budget Division records by analyzing funds for each

ICST program subelement (i.e.. Computer Security,

Computer Utilization, Computer Networking and

Performance Measurement, and Functional Applications of Computer Technology) and aggregating them

by Brooks Act function or 0MB policy guidance cate- gory. These resultant estimated aggregations are considered to have an acceptably high degree of ac- curacy, particularly for the period FY1970-FY1977

where records are more complete than for earlier years.

16
Table 7 is a profile of the Institute for Computer

Sciences and Technolog>'"s iICSTi directly appropriated funding for the period F\ 1965-FY1977. It traces for each fiscal year the actions taken on the

ICST budget request at each managerial level, the

amount appropriated by the Congress, and, finally, the actual frnds allocated to ICST for application to

its program. The table shows that, during the period

F\ 1965-FY1977 (projected). XBS requested approximately S44 mUhon for the Computer Science and

Technolog>' Program. The Congress appropriated

67.4 percent or nearly S30 million of the amount re- quested.

Table 7 shows that the aggregate funds allocated to ICST matches the amount appropriated by the Congress. It should be noted, however, that nearly SI.

million of directly appropriated funds were not allo- cated to ICST: this amount is counter-balanced (to within S160.000) by base adjustments and the allocation of funds stemming from XBS reprogramming

actions to support high priority efforts such as computer security, particularly in the later years of the

time period.

Table 8 shows the estimated obhgation of CongressionaUy appropriated funds by each of the three

Brooks Act categories of responsibUity assigned to NBS. Because Category- 3 (Research) is directly supportive of standardization activities, it can be combined with Categon." 1 to show that, for the period

FV 1965-FY1977. 80 percent of all Congressionally

appropriated Brooks Act funds were apphed to the

development of standards. Of the remaining funds,

15. .5 percent were applied to Scientific and

Technological Advisory Services and 4.4 percent were apphed to NBS Computer Services.

Table 9 shows the estimated funding requested by

XBS for the period FY1973-F^'I977 for the Computer

Science and Technolog\ Program. The funds are shown by the five categories of activity provided in 0MB policy guidance letter dated December 15. 1966. The fiscal year span portrayed in this table covers the period since reorientation of the Computer

Science and Technology Program in accordance with

the XBS Brooks BUI Issue Study dated September

1971 prepared in response to an 0MB request for a study of "what can be done to make the contributrion

of the XBS more effective in achieving greater effi- ciency and economy in Government ADP operations,

as envisioned in the Brooks Act. It shows a 5 percent

increase in the allocation of funds to the development

of standards.

Table 10 shows the estimated obligation of Congressionally appropriated funds and associated manpower by each of the five 0MB policy guidance

categories for the period FY1973-Fi 1977.

c

"fCO

X3

a

a.

O CC - ^- O ~ ~ > •C sC 'sr

?5

r~- — £ K ^ O > iC >C rf' ^*

o S ^ i?;

FVi

*-

<:^

cc L"; csi !N CM

r;; O t;; — — vg

L'^ t~-' -e c-i ^J

H o ^ o I

A.'I r6 ro" c^' <m'

* r~ r-: — o TT

7^ Lq o r-r > ^ Csl ^ CM CM

* CM = = =: o

cm' cm' —' —' —

o i CM CM CM CM o a; CO cc o

FYl CM CM CM —

* r CM C> —

>- cm' cm' cm' —' —

o lt: — r-^ o <r ^ C?; L.-^ L-^

>- cm' cm' cm' —' —

rvC * '—^ L/^ rr >c

r — 1 " o CC >

>

>•

E. ^ — —

-| i i 5 If

17
Table 8. Profile of the Estimated Obligation of Directly Appropriated Funds by Brooks Act Categories in the NBS Computer Science and

Technology Program

Funds Obligated by Brooks Act Category*

Total Funds 1 2 3

Fiscal Available Year $000 sooo % SOOO % $000 %

365 63.0 114 19.6 100 17.3

^ 1 813 69.

161 13.6 202 1 7 1 1967 looo 952 68^8 210 15^2 221 16.0 1968 1550 1008 65.0 184 11.9 358 23.1 1969 1699 1iUiV m Q uu.u 7 7 oZ.o 1970 1861 1065 57.8 184 9.9 597 32.1 1971 1996 1285 64.4 224 11.2 232 11.6 1972 2134 1302 61.0 465 21.8 301 14.1 1973 2405 1256 52.2 256 10.6 774 32.3 1974 2669 1431 53.6 589 22.1 565 21.2 1975 3659 2750 75.2 645 17.6 169 4.6 1976 4446 3161 71.1 642 14.4 166 3.7 1977 4174 EST 2995 71.8 812 19.5 158 3.8

Totals 129,731 119,402 14,617 $4,392 Percent of Total 65.3% 15.5% 14.89 Approximately 4.4 percent of total directly appropriatedfunds were allocated to NBS computer services support which is not included in

either of the three Brooks Act Categories.

*1 = Development of Standards

2 = S&T Advisory Services

3 = Research

Table 9. Estimated funding requested by NBS

(SOOO)

FY1973 FY1974 FY1975 FY1976

PROJECTED

1977

Category $

% of

total funds $

% of

total funds $

% of

total funds $

% of

total funds $

% of

total funds

Advisory Services 785 24.5 796 10.9 315 8.5 689 11.2 642 9.6

Voluntary Standards \

Federal Standards /

1441 50.0 4311 59.0 2692 72.6 4595 74.4 5613 83.9

Research 857 26.8 1990 27.2 624 16.8 827 13.5 295 4.4

Computer Services 120 3.7 208 2.8 77 2.1 67 1.1 144 2.2

Total Funds $3203 $7305 $3708 $6178 $6694

Summary of percentages of total funds requested by category for the entire period FY 1973—FY1977

Advisory .Services 11.9%

Voluntary Standards) „~

Federal Standards t

Research 16.9%

Computer Services 2.3%

18
Table 10. Obligation of NBS resources ($000)

FY1973 FY1974 FY1975 FY1976

Projected

FY1977

Category

Man

years $

% of

total $

Man

years $

% of

total $Man

years 1

% of

total 1 Man

years $

% of

total $ Man

years $

1: of

total S

Advisory

Services 7.18 256 10.9 13.96 589 22.2 16.53 645 17.8 20.0 642 15.8 23.0 812 19.8

Voluntary Standards 7.0 465 19.7 7.0 495 18.7 8.0 526 14.5 8.0 560 13.7 8.0 594 14.5

Federal Standards 21.4 791 33.6 21.78 936 35.3 39.23 2224 61.2 44.0 2601 63.9 40.0 2401 58.4

Research 16.83 774 32.9 11.12 565 21.3 3.39 169 4.7 4.3 166 4.1 4.0 1.58 3.8

Computer

Services .38 70 2.9 .41 65 2.5 65 1.8 3.0 104 2.5 3.0 144 3.5

Total doOars 12356 $2650 13629 14073 $4109

Summary of percentage allocations to category for entire period FY1973—FY1977

Advisory Services 17.5%

Voluntary Standards* 15.7 Federal Standards* 53.2 Research* 10.9

Computer Services 2.7

*79.8% of all funds were allocated to the development of standards

5. Overview of NBS Responses to Brooks

Act Responsibilities

This section of tlie report describes the actions

NBS has taken relative to its assigned Brooks Act

responsibilities. The section is divided into three

parts: (1) Advisory Services, (2) ADP Standards,

and (3) Research. These sections are subdivided into the specific tasks assigned to NBS by the 0MB policy

guidance letter of December 15, 1966 with each subsection containing a description of NBS implementing action.

5.1. Advisory Services

5.1.1. Background

The Brooks Act assigned NBS responsibility: "To

provide agencies . . . with scientific and technological advisory services relating to automatic data proc- essing and related systems." The 0MB Policy Guid- ance Letter of December 15, 1966 stated that:

"The Center will provide scientific and technological advisory and consulting services to executive agencies on automatic

data processing. Upon request of Federal agencies, the Center

will, to the extent possible, provide direct assistance on

specific projects and monitor the technical performance of commercial contracts."

NBS has made substantive progress toward carry- ing out this responsibility.

Since its establishment in 1966 as a Center within

the National Bureau of Standards, the organization

known since 1972 as the Institute for Computer Sci- ences and Technology has directed a significant portion of its resources to providing advisory services

aimed at helping Federal agencies solve ADP related problems. The bulk of the advisory service activity in the initial five year period of the Center was devoted

to systems analysis type work directly supporting

Federal agencies who were incorporating new computer hardware or software systems into their operations. By-and-large these activities were specific applications oriented. The general tiirust was to help

other agencies run computers better and to do. re- search for them on specific problems whicii arose in connection with their computer applications.

Starting in FY 1972 this program activity was

reoriented so as to place more stress upon support to Federal policy-making offices concerned witii the impact of the use of computers witiiin our society,

and upon improvements in Governmental operations

which might be facilitated through the use of computerized lecimiques. Througii this reorientation, emphasis was given to solving problems common to several agencies. Thus tiie work in tiiis program area now encompasses five general categories: support to

19
policy formulation, technology assessment, support

to U.S. international activities in ADP, specific applications in Federal agencies, and information ser- vices. Consultative and advisory services have been pro- vided to more than 30 Federal agencies with specific

problems in a broad range of subjects. The following

are examples of these activities:

• feasibility study assistance to determine the

need for a computer—National Labor Relations

Board,

• computer selection assistance—Peace Corps,

Civil Service Commission, Department of

Labor, Patent Office, National Center for

Health Statistics, Bonneville Power Authority,

• assistance in basic information system

design—Food and Drug Administration, National Institutes of Health, Small Business Administration, Treasury Department, National

Center for Radiological Health,

• review of the effectiveness of existing

systems—Naval Oceanographic Office, General

Services Administration—Communications

Service, Department of Health, Education, and

Welfare, Agency for International Development, Army Map Service, and

• development of special data processing

techniques—U.S. Patent Office.

Area of work which are of general assistance to all agencies include:

• the conduct of feasibility studies,

• guidelines for computer performance evaluation,

• guidelines for network performance evaluation,

and

• the operation of a computer information service

to provide access for Government agencies to the growing store of computer science information and experience.

In order that the knowledge and experience developed in course of fulfilling the technical advisory

services responsibility be made available for general use throughout Government, the Institute has undertaken to codify such experience through reports,

technical notes, monographs, and other formal publication means. These have generally been made avail- able as NBS publications under the Bureau's publication system. In the period FY 1965 to FY 1975, nearly one hundred such reports were published as the

product of advisory services rendered to more than

twenty Departments and agencies in the Federal

Government as well as to organizations such as the

Engineering Foundation, the American National

Standards Institute and the Council on Library Resources. While relatively few of these publications were prepared directly for the central management

agencies (GSA and 0MB), it should be noted that the

bulk of the STRS technical effort of the Institute is directly keyed to technical aspects of the central

management responsibilities of those agencies. It must of course, be recognized that the true "product"

of this effort lies not in the publication of reports, but

in the improved effectiveness and efficiency of the

ADP operations of the agencies brought about

through the advisory activity itself. A list of publications resulting from advisory ser- vices is contained in appendix B.

5.1.2. Relevant Authorities

(1) Extracts from the February 1965, Report to the President on the Management of Automatic Data

Processing in the Federal Government, by the

Executive Office of the President, Bureau of the

Budget, Washington, D.C. 20503

The National Bureau of Standards

Under its authority to develop standards, perform

scientific research and advise Government agencies on scientific and technical problems, the National Bureau of Standards has engaged in the

following automatic data processing activities: —NBS, to the extent its limited resources permitted, has provided technical advice and assistance

to executive agencies in information problem

analysis, computer systems design, development

of system specifications, and equipment selection. —NBS research in the computer sciences began

with its direct involvement in the design, construction, programing, operation and use of the

first computers built. Dating from the late 1940's

computer science research at NBS has continued

to the present and includes the provision of advi- sory services in the application of computer sci- ences to the problems of various executive agencies.

Problem of advanced system design

The tremendous effect ofsystem design on the effi- ciency and effectiveness of computer applications

makes it desirable that means be developed for assuring that techniques of high quality system

design are utihzed. The problem is compounded

by the fact that designing systems involves an

evolving technology that calls for a high degree of individual competence applied to unique situations.

The selection of equipment requires extensive

knowledge of the use for which the equipment is

20
intended and of the performance of available

machines. In making the selection, procedures

are needed that are not overly expensive, lead to the right choice, and encourage competition.

This problem has been met in part by the National

Bureau of Standards, Department of Commerce,

which has upon request provided assistance to agencies, to the extent possible. The demands for assistance have far exceeded resources to service

them. Other agencies have at times cooperated by

lending trained personnel—often at a sacrifice to their own programs. In other cases, commercial

sources have been used to carry out studies.

There is a need for a pool of trained personnel who

can be called upon, as needed, to help

agencies—particularly smaller ones—in solving

problems related to computer systems.

The needs of agencies for assistance in the

analysis and design of computer-based systems

must be met. Because the National Bureau of

Standards has performed this role in the past,

to the extent its resources permitted, and be- cause of its established competence in this

field, it seems logical that its resources should

be expanded to meet more fully the needs of

agencies for assistance in systems work.

Recommendations

The Department of Commerce, through the

National Bureau of Standards, should expand

the advisory services currently being provided

to agencies in the analysis and design of

computer-based systems. Its resources allo- cated for this purpose should be increased to the extent required to meet such needs as fully as possible.

Problem of marginal uses

Ordinarily, the greatest advantage for the Government is derived when a computer is devoted to accomplishing the missions of an

agency, as opposed to routine administrative

tasks. Examples are numerous: they include

the use of computers in administering veterans' benefits, social security benefits, and the

tax system; in tracking satellites; in performing

theoretical investigations for scientific programs; in predicting demands for electric

power; in weather forecasting: and in controlling air traffic. There are advantages in using

computers for administrative tasks such as

payroll and personnel accounting. However,

since administrative functions normally are a

relatively small part of total operations, the potential benefits tf) be derived from these applications arc limited.

Recommendations

The Department of Commerce should determine the extent to which the resources of the

National Bureau of Standards need to be ex- panded to serve as a research center on computer science and technology, primarily

oriented toward Government applications, and

to serve as an advisory service and consulting

center for aU Government agencies.

The Report:

Proposed the enactment of legislation by the

Congress which would (a) constitute an expres- sion of congressional policy and interest with

respect to effective and economical use of au- tomatic data processing equipment, and (b)

strengthen the authorities for the development,

testing and implementation of standards; the

performance of research in computer sciences

and the provision of advisory services by the

National Bureau of Standards: and the establishment of a revolving fund to finance ar- rangements for the joint utihzation of computer

facilities.

(2) Extract from Public Law 89-306 (Brooks Act),

dated October 30, 1965

An Act To provide for the economic and efficient pur- chase, lease, maintenance, operation, and

utilization of automatic data processing equipment by Federal departments and agencies.

". . . The Secretary of Commerce is authorized (1) to provide agencies, and the Administrator of General Services in the exercise

of the authority delegated in this section, with

scientific and technological advisory services

relating to automatic data processing and re- lated systems, ..."

(3) Extract from 0MB Policy Guidance paper to implement the Brooks Act which is an enclosure to Bureau of the Budget letter to Secretary of Commerce dated December 15, 1966.

Basic Policy

The provisions of P.L. 89-306 will be administered in a manner that is consistent with the

prime objective of encouraging the use of ADP

by Government agencies to achieve greater

productivity and reduced costs in the discharge

of their respective agency program responsibihties.

Responsibility to carry out these functions for the Secretary has been assigned to the Center

for Computer Sciences and Technology

21
(CCST), an organization within the Institute for Applied Technology, National Bureau of

Standards.

In carrying out its responsibilities, the Center

should maximize the utilization of existing

capabilities and facilities even when they re- side in agencies not specifically identified in P.L. 89-306.

The interrelationships among the central management agencies identified in P.L. 89-306 and

the using agencies, coupled with the dynamic

nature of the ADP technology, require that a special effort be made to expedite policy development and implementation ....

Initial Guidelines

Advisory and Consulting Services

The Center will provide scientific and

technological advisory and consulting services

to executive agencies on automatic data processing. Upon request of Federal agencies, the

Center will, to the extent possible, provide di- rect assistance on specific projects and monitor

the technical performance of commercial contracts. In addition, the Center will:

• provide guidelines for use by agencies in conducting systems studies, including consideration of systems interrelationships,

• provide guidelines and methods for

monitoring the performance of systems

studies and for implementing the results of such studies,

• provide criteria to assist in evaluating

software and hardware developments that

may be considered during the svstems

studies,

• provide technical guidelines for preparing

solicitations of proposals, including the

specificiation of system requirements,

• provide guidelines, criteria and techniques

for evaluating and selecting equipment and

related software, giving priority emphasis

to criteria for measuring the effectiveness

and efficiency of software; data on this

subject will also be furnished to GSA for consideration in the procurement of computers,

• maintain a reference index of computer

programs to minimize the need for the development of programs already developed,

tested and in use elsewhere, and

• provide guidelines for evaluating installa- tion and systems performance on a continuing basis.

The Center will keep abreast of the state-ofthe-art developments in ADP equipment, techniques and languages and will evaluate these

developments in terms of their current or potential impact upon the Government's use of

equipment and software and its ADP management policies. Findings in this regard will be

made known promptly to the Bureau of the

Budget.

It is essential for NBS staff who are consulting

with agencies in system design to be fully aware of on-going system developments,

whether performed in-house or under contract

for other Government agencies. In this connection, a study should be made and reported to the Bureau of the Budget soon after January 1, 1967, to explore the feasibility of developing a system by which each Federal agency would

keep the NBS informed of all ADP system design study projects. In additon to the possibility

of NBS maintaining a current index of projects

in progress, consideration should be given to requiring agencies to provide NBS, for a cen-^

tral reference file, copies of the reports of such

information systems studies.

(4) Extract from Title 15 (Code of Federal

Regulations)—Commerce and Foreign Trade

SUBTITLE A— OFFICE OF THE SECRETARY OF COMMERCE

PART 6—STANDARDIZATION OF DATA

ELEMENT AND REPRESENTATIOND (as

amended May 9, 1973)

. . . Responsibilities

. . . National Bureau of Standards

. . . Provide technical assistance, as re- quested and within the limits of available re- sources to Federal departments and agencies on matters concerning the utilization of automatic data processing and standardization.

(5) Extracts from NBS Organic Act. (As given in U.S. Dept. of Commerce, NBS, Administrative

Manual.)

1.01.01 BASIC LEGISLATION

The National Bureau of Standards was established on March 3, 1901, by "An Act to Establish the National

22
Bureau of Standards" (31 Stat. 1449 1. Extensive

amendements were made in 1950 by passage of Public Law 81-619 i&i Stat. 371): in 1956 bv Public Law

&4-940 (70 Stat. 959 1: and in 1958 by Public Law

85-890 (72 Stat. 17111. The provisions of the organic

act and amendments are merged in the following statement of basic legislation quoted from Title 15 of the United States Code.

1.01.03

FUNCTIONS OF SECRETARY

(15 U.S.C. 2721 "The Secretar>- of Commerce (hereinafter referred to as the "Secretary") is authorized to undertake the

following functions:

. . . "(e) Advisor}" ser\"ice to (^vernment agencies on scientific and technical problems.

. . ."In carryingout the functions enumerated in this section: the Secretary is authorized to undertake the

following activities and similar ones for which need

may arise in the operations of Government agencies,

scientific institutions, and industrial enterprises:

. . ."(19) the compilation and pubHcation of general

scientific and technical data resulting from the per- formance of the functions specified herein or from

other sources when such data are of importance to scientific or manufacturing interests or to the general

pubhc. and are not available elsewhere, including

demonstration of the results of the Bureau's work by

exhibits or otherwise as may be deemed most effective, and including the use of National Bureau of

Standards scientific or technical personnel for parttime or intermittent teaching and training activities at educational institutions of higher learning as part of and incidental to their official duties and without

additional compensation other than that provided by

law."

1.01.04

FUNCTIONS: FOR WHOM EXERCISED

(15 U.S.C. 273)

"The Bureau is authorized to exercise its functions

for the Government of the United States and for international organizations of which the Lnited

States is a member: for governments of friendly countries: for any State or municipal government within

the United States: or tor any scientific society, educational institution, firm, corporation, or individual

within the Lnited States or friendly countries and

scientific societies, educational institutions, firms,

corporations, or individuals therein shall be in coordination with other agencies of the United States (^ivernment. in particular the Department of State in respect to foreign entities. All requests for the ser- vices of the Bureau shall be made in accordance with

the rules and regulations established in sections 276

and 277 of this title 1 15 U.S.C.)."

1.01.07

SERVICE CHARGES

(15 U.S.C. 275a)

""The Secretarv" shall charge for services performed

under the authority of section 273 of this title. [15

L .S.C.] except in cases where he determines that the

interest of the Government would be best served by

waiving the charge. Such charges may be based upon

fixed prices or costs. The appropriation ortund bearing the cost of the ser^'ices may be reimbursed, or the

Secretary' may require advance payment subject to such adjustment on completion of the work as may be

agreed upon."

5.1.3. Relevant 0MB and GAO Issuances

1 1) Extractfrom 0MB Circular A-71 . dated March 6. 1965. Subject: Responsibilities for the Administration and Management ol Automatic Data Processing Activities

Responsibility of the Department of Commerce: provide advisor>" and consultative ser- vices to executive agencies on the methods tor developing information systems based on the use

of computers and the programming and languages

thereof.

(2) Extract from GAO report of December 29. 1972 on "Means for Increasing the Lse ot Detense

Technolog}' for L rgent Public Problems"

Chapter 6 and Appendix 111.

""The communication gap bet\s"een technology

developers and potential users is a signiticant

barrier to the transfer process particularlv \s here

their technical disciplines and problems are not similar. Although there are several clearinghouses for passive documentan." intorniation col- lection, storage, retrieval, and dissemination,

there is no comparable centralized Federal ser- vice to augment active technology transfer process. . . . One way to help accomplish this objective is the establishment ot a centralizetl interdisciplinary team."

""The team would serve as consultants to agencies

seeking information and guidance concerning the

availability of technology and resources relevant

to their needs and would advise tcchnologx de- velopers of potential secondary applii ations. 1 he

team would deal directh on a per>on-to-person

basis with the u>ing and de\ eloping agencies

senior professional statt members assigned to liaison activities to facilitate technology transfer.

It could alstt lU'ganize conferences anil s\inposia

to discuss problems common to a number of agencies."

23
"As we visualize it, the team should be organizationally attached to a technology-oriented agency

with no vested programmatic or conflicting mission interests. The entire group should be funded

by the cognizant agency through a special 0MB

provision or a separate appropriation. We are not suggesting any specific agency through a special

0MB provision or a separate appropriation. We

are not suggesting any specific agency for this role. However, we believe that the National

Bureau of Standards (NBS) and NSF warrant consideration."

"The Department of Commerce indicated that NBS would be an appropriate location for the

team, especially in view of its extensive interagency technology activities, in which it continually acts as a transfer agent. According to the

Department, adequate funding must be provided

to support the increased staff that will be needed.

Other agencies also expressed concern over the

need to obtain funds required to implement our recommendation."

NATIONAL BUREAU OF STANDARDS

NBS is a principal focal point within the Government for applying physical and engineering sci- ences to the advancement of technology in industry and commerce. In addition to conducting re- search, NBS (1) provides technical services to promote the use of available technology and to

facilitate technological innovation in industry and

Government, (2) cooperates with public and pri- vate organizations in developing technological

standards and test methodologies, and (3) pro- vides advisory and research services for Federal,

State, and local Government agencies.

NBS has a long history of successful working

relationships with Government agencies and pri- vate industry in the development of standards and

the solution of national problems. NBS maintains

its own laboratories and has the administrative measures to engage private industry assistance

for adaptive engineering tasks. NBS has professional stature and acceptance throughout the sci- entific and technological community, including

the Government, professional societies, trade as- sociations, academic and nonprofit institutions,

and private industry.

In hearings before the Subcommittee on Science,

Research, and Development, House Committee

on Science and Astronautics, in July 1971, the

Secretary of Commerce stated, in part, that: "Our objectives in technology are readily described. We must strive to: "Remove barriers impeding the use of exist- ing technology.

"Stimulate better use of existing technology.

"Remove barriers impeding the development and use of new technology.

"Stimulate the development and use of new

technology."

(3) Extractfrom GAG Report on "Acquisition and Use

ofSoftware Productsfor Automatic Data Process- ing Systems in the Federal Government,

B-1 15369, June 30, 1971

Principal Findings

" . . The acquisition practices followed by Federal agencies were necessitated because of limited activity by central management agencies of

the Government in providing policy guidance for acquiring and utilizing computer software. (See

ch. 5.) There is a definite need for: ... A catalog, inventory, or central reference

index of computer programs that have been

developed, tested, or in use by the Government."

Recommendations or Suggestions

" . . Director of the National Bureau of Standards establish and maintain a ref- erence index of computer pro- grams. . ."

". . . On October 27, 1970, a representative of

the Systems Development Division of NBS re- ported on a study that was made to identify data

management systems software packages. This

study identified 159 data management systems

packages. Sixty-five of the packages were found

to be written in Formula Translator Language

(FORTRAN) or Common Business Oriented Language (COBOL) and 47 of these 159 packages were identified as being in the public domain.

This last fact is important to Federal users, as some of these were developed by the Government

and are available without charge."

"This report of NBS personnel filled a void for this type of information. Potential users of data management systems now have a starting point for their studies. . . .These evaluations, if made by a

central agency such as NBS, would eliminate the

need for all potential users to perform independent studies, and would help to standardize the

criteria used in the evaluation processes."

Catalog of Available Programs

"In December 1966, 0MB instructed NBS to main24
tain a reference index of computer programs so

that the need for development of programs al- ready developed, tested, and being used

elsewhere in the Government can be minimized.

A catalog or reference index of available pro- grams had not been prepared by NBS at the time

of our study. This subject was explored during the

two conferences sponsored by 0MB on the management of computer systems. The proposal was

considered to be conceptual by sound, but be- cause of the potential magnitude of the task in- volved, the report of the Myrtle Beach conference

suggested that some selectivity should be exer- cised in determining the contents of the catalog.

We believe that such a catalog would assist potential users in selecting software in an unbundled

environment, in providing access to information on advances in the state-of-the-art, and in

minimizing the possibility ofwriting programs al- ready developed.^'

Recommendations

".

. .Additionally, we recommend that the Director

of the National Bureau of Standards: —Establish and maintain a reference index of

computer programs. . . ."

3.1.4. Specific Studies, Letters and Reports

Extracts from Brooks Bill Issue Study

The Brooks Bill Issue Study identified two pro- grammatic areas extant in ICST which directly related to the Advisory and Consulting Service

mandates of the Brooks Act:

"Selected Computer Applications" and "Supporting S&T Advisory Services."

Each element is the outgrowth of ICST responsibilities under the Brooks Act and the 1901 Organic Act, amplified by both the Policy Guidance

paper and the needs of the evolving Federal computer environment.

Selected computer applications: The objective of

this NBS program is to ensure that adequate

technical support and developmental activities are available for those areas of computer applications most important to the Federal Government.

Recommended projects in this area are characterized by a need for cooperative efforts between

NBS and the appropriate mission-oriented

agency. In particular, ADP problems are affect- ing the quality of Government service in the fol- lowing areas: health care delivery services; welfare and medical payment services; education

services, both in formal educational and in continuing education; law enforcement; mass transportation; and data management systems.

Again, work in this area is required by a

specific citation in the Policy Guidance, and by

the stated purpose of the Brooks Bill. Several

areas have been identified for which the Government has a major share of the responsibility, within which major problems exist, and to which proper computer application can make a significant improvement. Examples are health care delivery, law enforcement, mass transportation, and many others.

Projects in this area of Specific Computer Applications are characterized by the necessity

for cooperative efforts involving the ICST and

the appropriate mission-oriented organizations.

Self-generated and self-evaluated work in

computer applications is impossible. In many

instances, portions of the funds expended by

the ICST are obtained from other agencies.

Generally, the posture of the Institute is more

healthy when the funding responsibility is shared with the concerned agency. Exceptions,

however, are made on a case-by-case basis.

One notable example in the Institute's history

is the fingerprint project, initially funded to- tally by the ICST and later jointly with the

Federal Bureau of Investigation (FBI). This

project has also been one of the most successful application-oriented endeavors of the Institute's funding from Other Agencies.

Supporting scientific and technological advisory services: NBS has recently redirected

much of its work in this area so as to put less emphasis on solving specific problems on an agency-by-agency basis. Instead, priority will be given to resolving Federal policy-making

problems in ADP and to solving problems

common to several agencies. Work in this pro- gram area falls into five general categories:

support to formulation of ADP policies;

technology assessment and forecasting; support to U.S. international activities in ADP;

support to other Federal agencies; and information services.

A large number of agencies have been and will be served on a wide variety of problems. For

example, the U.S. Office of Education was as- sisted in the evaluation of computer-related

education research programs; the Post Office was helped with a time-sharing system used to direct mail to servicemen overseas; an automatic accounting system was developed for the

Agricultural Research Service; and many agencies have been assisted in the development of

procurement specifications for computer sys- tems. This type of assistance can only be ex- pected to increase as more and more agencies

turn to computer usage, and as the reputation

of the Center for service of this type becomes

more widely known.

25
The current ICST technical program reflects

the changing character and emphasis of the

Center's scientific and technological advisory

services. Since its establishment, the Center

has directed the majority of these services to- ward helping Federal agencies solve specific

ADP problems; only a small part of the effort was aimed at supporting those few Federal

agencies which have broad policy-making re- sponsibilities in the area of automatic data processing. Starting in FY1972, ICST has

reoriented its scientific and technological advisory services program to put more stress on support to such Federal policy-making and

policy-influencing agencies as the Office of

Management and Budget, General Service Administration, Office of Science and Technology, Office of Telecommunications Policy, National Science Foundation, National Academy

of Science, General Accounting Office, Federal

Council on Science and Technology, Department of State, and the Civil Service Commission. In spite of this change in emphasis, however, ADP consulting and advisory services will continue to be made available to other agencies

to assist in solving specific ADP management

and application problems.

The ICST Scientific and Technological Advisory Services program is made up of five general areas of activity:

(1) Support to the formulation of ADP

policies

(2) Technology assessment and forecasting

(3) Support to U.S. international activities in automatic data processing

(4) Support to other Federal agencies

(5) Information services.

During FY 1971, ICST provided such services

to some 45 organizations in 16 Departments

and independent Agencies. These services,

provided on a cost reimbursable basis, cover a wide range of activities including systems

analysis, system specifications and requirements definition, system design, computer pro- gramming, preparation and analysis of automation proposals, and equipment selection.

In the performance of its mission and functions, ICST must necessarily be a broker of in- formation services. It must collect, organize

and maintain significant quantities of information in the ADP and computer sciences and

technology areas both for its own consumption

and for delivery to Federal customers. The

types of information to be collected include directories, inventories and listings of ADP

software, hardware systems and services, state- of-the-art surveys and reports, research and

technical reports, product specifications, etc.

5.1.5. Selected Citations of Specific Requests for Technical

Advisory Services

FBI: January 17, 1967 letter from J. Edgar

Hoover, Director of the FBI, to John

Eberhard, Acting Director, CCST/

NBS, requesting NBS to continue

work relating to automating the fingerprint identification system on a reimbursement basis.

IRS: August 31, 1971 Purchase Order, from

J. Mitchum, Internal Revenue Service

to J. Skillington, Chief of Budget Division, NBS requesting the provision of

services and equipment to create a prototype model of a data entry station

for a remittance processing system.

OTP: September 1, 1971 letter from DeputyDirector, OTP to the Assistant Secretary for Science and Technology,

DOC, recognizing "distinct and special

role in assisting OTP in carying out its , functions assigned by the President in the area of computers and communications." Requests NBS to provide technical advice and analysis in teleprocessing matters and to represent the

United States at appropriate international meetings.

NRMA: December 17, 1971 letter from J. H.

Wakelin, Jr., Assistant Secretary for Science and Technology, DoC to Mr.

Williams, President, National Retail

Merchants Association (NRMA) offer- ing the support of NBS in the development of voluntary standards and

performance specifications for auto- mated systems of merchandise and

customer identification. This letter was in response to the NRMA Presi- i dent's June 1971 letter to the Secretary of Commerce requesting technical

assistance.

STATE: March 10, 1972 letter from H. Pollack,

Director, Bureau of International Scientific and Technological Affairs, to R. M. Davis, Director, CCST, accepting

the offer of CCST to make available

its institutional resources to advise the

Department in its role in formulating

and implementing foreign policy, in

26
the form of technical advice and re- sources for dealing with computer re- lated issues and providing technical

support and suggesting appropriate

technical representation in international meetings. (This letter supports

ICST responsibilities in work with the

Organization for Economic and

Cooperative Development Agency for International Development United Nations, with AID, and with the United

Nations.)

GAO: February 19, 1974 Interagency Agreement between ICST/NBS and the Office of Federal Elections, General Accounting Office, for the development

of operational guidelines for election

administrators to insure accuracy and

security of the vote-tallying process

using ADP equipment.

FTC: February 29, 1974 letter from R. Jast and S. Feldman, Federal Trade Commission to R. M. Davis, requesting ICST

assistance in investigating possible vio- lations for the Fair Credit Reporting Act

having to do with computerized credit

reporting systems.

DIBA: April 4, 1974 letter from R. L. Hildebeidel. Director, Office of Budget,

Domestic and International Business

Administration (DIBA), Department of

Commerce to Ralph Simmons, ICST,

attaching Reimbursable Agreement for technical support to Office of

Economic Analysis (OEA) centering on categorization and potential use of

computer installations in specific

foreign countries and of new export

applications.

JUSTICE: October 16, 1974 letter from Deputy

Assistant Attorney General requesting

technical support for IBM antitrust case and Octoljer 31, 1974 letter from

Assistant Attorney General recognizing

that the support of ICST in the preparation of the Government s antitrust case . .w()uld be absolutely essential," and that ICST support would be

needed . .to secure the most technically competent support staff avail- able to the government.

"

5.1.6. NBS Responses to Advisory Services Responsibilities

(1) ASSIGNED NBS

RESPONSIBILITY: Provide guidelines for use by agencies in conducting

systems studies, including

consideration of systems

interrelationships.

0MB PoHcy Guidance

Letter to the Department of Commerce

(December 15, 1966)

NBS has made substantive progress toward

carrying out this responsibility.

A substantial proportion of the NBS technical

notes, information reports, and special publications issued by the Institute for Computer Sci- ences and Technology over the past 10 years were published to serve as guidelines for use by

other Federal agencies in accomplishing system

studies or in planning for new ADP systems and

facilities. Examples of recent such publications

include the following:

Characterization and Testing of Interactive

Graphics for Computer-Aided Design and Engineering, S. Treu, (NBSIR 73-289) 1973.

Guidelines for the Use of Computer Technology

in the Developing Countries. R. A. Simmons.

(NBSIR 73-423) 1973.

Effective Use of Computing Technology in VoteTallying. R. G. Sahman. (NBSIR 75-687) 1975.

Software Testing and Network Sen'ices. R. B. Stillman and B. Leong-Hong. (NBS Tech. Note

874) 1975.

Exploring Privacy and Data Security Costs—A

Summary ofa Workshop. J. L. Berg. (NBS Tech.

Note 876) 1975.

Standards Analysis for Future WWMCCS Computer Networking. D. Fife. (NBSIR 74-570)1974.

In addition to providing these guidelines di- rectly to the agency of prime interest (often tiie agency wliicli re(]uested the assistance and pro- vided tile tunding for the activity), the guidance

contained in tliese reports is publicized through

mechanisms such as workshops and seminars as

well as through the Bureau s publication notifi27
should establish and

maintain a reference

index of computer programs...

cation procedures. In certain instances, the significance of the guidelines is such as to occasion

special distributions. For example, the Clearinghouse on Federal Elections of the General Accounting Office (now the Elections Commission)

considered the guidelines contained in the re- port on the use of computers in vote-tallying to be of such significance as to warrant special

distribution of the report directly to the senior

election administrator in every jurisdiction in the

United States with a population of 25,000 per- sons or more.

(2) ASSIGNED NBS

RESPONSIBILITY: Provide guidelines and

methods for monitoring

the performance of sys- tems studies and for implementing the results of

such studies. 0MB Pohcy Guidance

Letter to the Department of Commerce

(December 15, 1966)

NBS has not undertaken to carry out this re- sponsibility.

By referring to methods for monitoring the

performance of systems studies, there is implicit

in this responsibility a direct managerial oversight function. Discussions with senior ICST in- dividuals who were present during the early

years of the center indicate that it was not deemed appropriate for NBS to undertake such

oversight functions as it moved toward carrying out the responsibilities mandated under the

Brooks Act. Reporting requirements upon agencies which were imposed under 0MB and GSA

Circulars tended to minimize the urgency of this requirement. Inasmuch as the resources pro- vided to the Institute did not reach the levels of

requirement anticipated in order to fulfill all mandated responsibilities no action was taken

with respect to carrying out this responsibility as

initially put forward in the 0MB guidance letter.

(3) ASSIGNED NBS

RESPONSIBILITY: Maintain a reference

4ndex of computer programs to minimize the

need for the development

of programs already developed.

0MB Policy guidance

Letter to the Department

of Commerce (December

15, 1966)

...Director of the National

Bureau of Standards

GAO Report B-1 15369, June

30, 1971

The NBS has made substantive progress to- ward carrying out this responsibility.

A catalog or reference index of available

programs had not been prepared by NBS as of

the time the GAO study was underway. The

subject was explored at two conferences subsequently sponsored by the Office of Management and Budget on the management of computer systems, but because of the potential

magnitude of the task involved it was con- cluded that selectivity should be exercised in accomplishing such a catalog. In October 1970, the Center for Computer

Sciences and Technology of the National

Bureau of Standards reported to the GAO on a study that was made to identify data management systems software packages. The study

identified some 159 such packages. Of these,

65 were found to be written in FORTRAN or COBOL; 47 were identified as being in the

public domain, and available for use by the

Government without charge. The GAO notedthat this report by NBS filled a void for this

type of information and provided a starting

point for the carrying out of the recommendation contained in the GAO report. In October 1972 the Index of Data Management Software Packages was published by NBS

in direct response to the above assigned re- sponsibility. Subsequently the maintenance

and expansion of an index of computer programs was incorporated as an on-going project

activity within the program of the Institute for Computer Sciences and Technology. At the

present time this index contains over 10,000

computer programs and is available as a central reference for use by all Federal agencies

as well as State and local Governments in

selecting available software and to minimize

the possibility of developing programs similar

to those which are already in existence.

The Computer Information Section of the Institute receives approximately 150 inquiries per

year about this index.

(4) ASSIGNED NBS

RESPONSIBILITY: Provide guidelines for

evaluating installation

and systems performance

on a continuing basis. 0MB Policy Guidance

Letter to the Department of Commerce

(December 15, 1966)

28
XBS had made substantive progress toward

earning out this responsibility.

The XBS has not undertaken to enter into a

direct managerial oversight role with respect to determining the continuing basis by which

agencies apply the guidehnes for evaluation of

installation and systems performance. Rather

XBS has confined its activities to the development and assessment of measures and techniques by which systems performance can be

evaluated, and to disseminating this information to concerned Federal agencies.

Representative XBS publications reflecting

XBS activity carried out in support of the re- sponsibility to provide guidelines for evaluating

systems and installation performance foUow:

A Computer Test Program to Assess Adroitness

in Indexing Operations, George ^ . Reitwiesner. iXBS Report 9470) 1967.

Performance Measurement of Remote Access

Computer Systems, M. D. Abrams, (XBS Report 10 381) 1970.

Performance Measurement of Interactive

Graphics Systems in Support of Computer Aided

Design and Engineering, T. X. Pvke. Jr.. et al. (XBS Report 10 451) 1971. A Set of Problems to Evaluate Scientific Computers, G. W. Reitwiesner, (NBS Report 10

883) 1972.

Evaluation of Information Systems: A Selected

Bibliography with Informative Abstracts, M. M.

Henderson, (XBS Tech. Xote 297) 1967.

Data Communications System Throughput Per- formance Using High Speed Terminals on the

Dial Telephone Xetuork. D. S. Grubb. (NBS

Tech. Xote 779) 1973.

Computer Svstem Capacity Fundamentals. D.

J. Kuck. (XBS Tech. Xote 851) 1974.

Computer Performance Evaluation , H. J. Highland, (XBS Sp. Pub. 401) 1974.

Computer Performance Evaluation: Report of

the 1973 NBS/AMC Workshop, T. E. Bell. B. W. Boehm and S. Jeffrey. (XBS SP. Pub.

406) 1975.

Guidelines for Benchmarking ADP Systems in the Competitive Procurement Environment

(FIPS PUB 42) 1975.

In addition, each year since 1973 the Insti- tute has co-sponsored with the Association for Computing Machinery a "Computer Perform- ance Evaluation Workshop " by which the

latest criteria and techniques for evaluating

systems performance are brought to the atten- tion of Federal computer and installation

managers.

(5) ASSIGXED XBS

RESPOXSIBILITY: Keep abreast of the

state-of-the-art developments in ADP equipment, techniques and

languages and evaluate

these developments in terms of their current or potential impact upon

the Government's use of

equipment and software

and its ADP management policies.

0MB Policy Guidance

Letter to the Department of Commerce

(December 15. 1966)

NBS has made substantive progress toward

carrving out this responsibihty.

Fulfillment of this responsibility is inherent

to the conduct of the technical program of the

Institute for Computer Sciences and Technology of XBS. Xew programmatic elements

have been introduced into the activities of the

Institute as a direct consequence of newstate-of-the-art developments in ADP technology'. Significant examples of new activities in- corporated since FY 1966 include:

• teleprocessing and computer networking.

• performance measurement.

• software management, and

• computer security.

Underlying the Institute's overall program

has been a modest effort in the computer sci- ences research (later identified as exploratorv'

development) which looked to the leading

edge of the state-of-the-art in this technology.

This activity was zero funded commencing in FY 1975 because of pressing priority requirements in other aspects of the Institute's pro- gram which required reprogramming of re- sources away from such exploratory development activity.

An important ongoing activity deriving from

the total technical program of the Institute is the continuing effort to keep agencies of the

Government abreast of new developments in ADP techniques and technology. XBS has ag- gressively undertaken to sponsor symposia

and workshops for this purpose, and has pro- vided qualified speakers to relevant scientific and professional assemblies. Certain of these

symposia have already assumed the stature of

"traditional"" meetings, for example, the

NBS-sponsored annual meetings on "MiniComputer and Micro-Computer Technology"

29
and the now annual "Simulation Conferences." Over the past 10 years the Institute

for Computer Sciences and Technology has

sponsored or participated in workshops and

colloquia on an average of almost one per

month. About half of these relate to the

state-of-the-art requirements of this responsibility.

The Institute program in technology as- sessment has been especially helpful to the

Office of Export Administration in determining the "exportability" of advanced design

computers. It has also provided direct support

to the determination of the U.S. position in NATO on technology to be released to the

Soviet Bloc countries. Currently, this effort is focused on the state-of-the-art to improve the

safeguards against diversion of the use of advanced computer technology with the hope of

broadening the export opportunities for U.S.

suppliers of computer technology.

(6) ASSIGNED NBS

RESPONSIBILITY: Befuly aware ofon-going

system developments,

whether performed inhouse or under contract for other Government

agencies.

0MB Policy Guidance

Letter to the Department of Commerce

(December 15, 1966)

NBS has undertaken to fulfill the requirement

to be fully aware of ongoing system developments in other Government agencies whether

being performed in-house or under contract. Although the Institute has undertaken to be- come familiar with major new system developments taking place within other agencies of the

Federal Government, and has explicitly made

its expertise available when requested by other

agencies, it has been found to be impractical to systematically review all system plants, extensions, or new implementations put forward by

other Federal agencies. Agency reporting re- quirements which were subsequently established under 0MB and GSA Circulars tended to minimize the urgency of this requirements.

(7) ASSIGNED NBS

RESPONSIBILITY: A study to be made and

reported to the Bureau of

the Budget soon after

January 1, 1967, to explore the feasibility of

developing a system by

which each Federal

agency would keep the

NBS informed of all ADP

system design study projects.

0MB Policy Guidance

Letter to the Department of Commerce

(December 15, 1966)

NBS has not undertaken to carry out the study

called for in the 0MB Policy Guidance Letter. Under the provisions of 0MB Circular A-83,

| all Federal agencies are required to report annually to 0MB regarding the ADP equipment

which they have in inventory. Additionally,

under the provisions of 0MB Circular A-54,

deahng with policies on selection and acquisition

of ADP equipment. Federal agencies are re- quired to report to 0MB concerning future plans

for ADP systems and system design plans

underway. Under the provisions of Executive

Order 11717, the responsibility for the collection

of such information was transferred to the GSA.

It is also noted that under the provisions of the

Brooks Act, responsibility with respect to the

establishment of systems requirements is explicitly retained by the head of each Federal

agency.

Discussions with individuals within ICST who

were present during the early years of the Center

indicate that the requirements of the above re- sponsibility were carefuUy discussed with 0MB,

and it was mutually agreed in light of the above,

and in consideration of the limited resources

available to the Institute, that it did not seem

appropriate for this responsibility to be pursued

as a priority item, if at all. The subsequent re- finement of the reporting procedures called for under the above cited circulars obviated further

need for NBS to carry out the study con- templated by the above guidance.

(8) ASSIGNED NBS

RESPONSIBILITY: Provide criteria to assist in evaluating software

and hardware developments that may be considered during the systems

studies. 0MB Policy Guidance

Letter to the Department of Commerce

(December 15, 1966)

Although NBS has not undertaken to provide

criteria specifically for consideration during the

referenced systems studies, NBS has made substantive progress toward providing criteria for use by Federal agencies in evaluating software

and hardware.

A substantial portion of the NBS Technical

Notes, Information Reports, and special publications issued by the Institute for Computer Sci- ences and Technology over the past ten year

period incorporate criteria to be applied by j Federal agencies performing systems studies or planning new ADP systems and facilities.

30
Illustrative of the numerous publications pro- duced by NBS over the 10 year period which

serve to fulfill the role of providing criteria to assist in evaluation of software and hardware

developments are the following recent ICST

publications:

A Technical Index of Interactive Information

Systems, D. Fife. K. Rankin, E. Fong, J. Walker

and B. Marron, (NBS Tech. Note 819) 1974.

Concepts in Quality Software Design, S. L. Stewart, (NBS Tech. Note 842) 1974.

Computer System Capacity Fundamentals, D. J. Kuck, (NBS Tech. Note 851) 1974.

The Service Concept Applied to Computer Networks, M. D. Abrams and I. W. Cotton, (NBS

Tech. Note 880) 1975.

These publications are aimed at ADP service

and facility managers for use in state-of-the-art assessments preparatory to system design and

selection processes and provide specific evaluation techniques designed to identify areas of possible improvement in both the hardware and

software portions of computer systems.

NBS was instrumental in bringing about the

establishment of the Federal Simulation Laboratory (FEDSIM) now being operated by the U.S.

Air Force. Through this facility the operation of

advanced and complex computer systems being

contemplated for procurement or implementation within the Federal Government can be simulated, and the results of the simulation used to assist in evaluating the software and hardware

proposed for use in such systems.

9) ASSIGNED NBS

RESPONSIBILITY: Provide technical guidelines for preparing solici- tations of proposals, in- cluding the specification

of system requirements.

0MB Policy Guidance

Letter to the Department of Commerce

(December 15. 1966)

NBS has made substantive progress toward

carrying out this responsibihty.

During the 1966 to 1970 timeframe a substantial portion of the other agency funded

work of the Institute for Computer Scieiu-es

and Technology was directed t(»ward assisting

agencies of the Federal Government develop

the specifications and requirements for either new computer systems or for expansions to existing systems. This included both direct

participation with those agencies and the (iSA

for the preparation of solicitations, as well as assistance in the evaluation of bid responses.

For example, the study of data base management systems, reported in NBS Tech. Note

887, Six Data Base Management Systems-

-Feature Analysis and User Experience was

used to help develop the Request for Proposal

(RFP) and subsequent proposal evaluations

leading to the final selection of a system for the Federal Aviation Agency.

A sampling of NBS reports and technical

notes reflecting NBS activity which was carried out in support of the preparation of sys- tems specifications or evaluations of proposals

follows:

Report of a Study of Requirements and

Specifications for Serial and Monograph Microrecording for the National Library of

Medicine, E. J. Forbes, et al, (NBS Report

9446) 1966.

Remittance Processing System, P. D. Shupe.

Jr., P. Meissner and J. R. Park, (NBSIR 74

577-1) 1974.

Effective Use of Computing Technology in Vote-Tallying, R. G. Saltman, (NBSIR" 75-

687) 1975. A Semi-Automated Single Fingerprint Identifi- cation System, J. H. Wegstein. (NBS Tech.

Note 481) 1969.

The M40 Fingerprint Matcher, J. H. Wegstein, (NBS Tech. Note 878) 1975. Benchmarking and Workload Definition: A

Selected Bibliography with Abstracts. J. L. Walkowicz. (NBS Sp. Pub. 405) 1974.

In addition, the Federal Information Processing Standards publications, which now in- clude some 27 Standards, are directly applicable to the preparation of specifications and

the evaluation of proposals, having been made

mandatory upon all Federal agencies for pro- curement purposes through incorporation into current Federal procurement management

regulations.

(10) ASSIGNED NBS

RESPONSIBILITY: Provide guidelines.

criteria and technique.s

for evaluating and select- ing equiftment and re- lated software, giving

priority emphasis to

criteria for measuring the effectiveness and effi- ciency of softivare. Data

on this subject will also

be furnished to CSA for

31
consideration in the procurement of computers.

0MB Policy Guidance

Letter to the Department of Commerce

(December 15, 1966)

NBS has made substantive progress toward

carrying out this responsibility. In 1971, the ICST program was reoriented

to give additional emphasis to developing a technical basis for the documentation, validation, correctness, quality control during development, and sharing of software, particularly that used within the Federal Government. This activity is carried out under the

software management program of the Computer Utilization element of the Institute's

overall program. The Institute has been working toward issuance of a "Software Engineering Handbook" which will provide to Federal

systems planners the most complete compilation of meaningful software design and per- formance measurement practices developed

through this technical activity.

Similarly, computer system performance

measurement was established as a specific

technical effort within the Institute and is currently being carried out under both the

Computer Utilization and Computer Networking elements of the Institute's overall program. Each year since 1973 the Institute has

co-sponsored with the Association for Computing Machinery a "Computer Performance

Evaluation Workshop" looking to the identifi- cation of the most appropriate criteria for use by the Federal Government. Close coordination and participation with the GSA has been

maintained in carrying out these activities. The following are representative examples

of NBS publications resulting from this technical activity:

Set of Debugging and Monitoring Facilities

for Improving the Diagnostic Capabilities of

a Compiler, E. Fong, (NBS Tech. Note 763)

1973 (concerned with the quality of

software and assurance that software is ef- fective and maintainable).

NBS FORTRAN Test Programs, Volumes,

1, 2, and 3, F. E. Holberton and E. Parker

(NBS Sp. Pub. 399) 1974.

Software Testing and Network Services, R.

B. Stillman and B. Leong-Hong, (NBS

Tech. Note 874) 1975 (provides an initial identification of effective software test and

measurement tools for use in an environment of computers which are networked to- gether).

In addition, the following Federal Information Processing Standards specifically responsive to the requirements of this responsibility

have been issued:

COBOL, (FIPS PUB 21-1) 1975.

Flowchart Symbols and Their Usage in In- formation Processing, (FIPS PUB 24) 1973

Standardization of Data Elements and Representations, (FIPS PUB 28) 1973.

Interpretation Procedures for Federal

Standard COBOL, (FIPS PUB 29) 1974.

Software Summary for Describing Computer

Programs and Data Systems, (FIPS PUB 30) 1974.

Guidelines for Documentation of Computer

Programs and Automated Data Systems,

(FIPS PUB 38) 1976.

Aids for Program COBOL Conversion (FIPS

PUB 21—21-1), (FIPS PUB 43) 1975. The GSA has incorporated these standards

into current Federal Procurement Management Regulations, as mandatory upon all Federal agencies for procurement purposes.

5.2. ADP Standards

5.2.1. Background

The Brooks Act directs NBS to develop "uniform Federal automatic data processing standards. " The 0MB policy guidance letter of December 15, 1966 spelled out 10 specific tasks pur- suant to this responsibility. NBS responses to these 10 tasks are addressed later in this section.

5.2.2. Definition of a Federal Standard The National Bureau of Standards defines a standard to be a prescribed set of conditions and

requirements, of general or broad application, es- tablished by authority or agreement, to be satisfied by a material, product, process, procedure, convention, test method; and for the physical, functional, performance, or conformance characteristics thereof. The essential ingredients for arriving at standards are defined to be:

• a set of alternatives,

• a method for agreeing upon a selection to be

used, • a group which agrees to abide by the selection, and

32
• a means tor insuring compliance (for a mandatory- standard).

In the United States, most standards are voluntary, except for those relating to public health and

safety and environmental effects or those used by

Government in its business activities. The Brooks Act in 1965 assigned a unique re- sponsibility to the Secretary of Commerce by authorizing him to make recommendations for the es- tablishment of uniform Federal "computer" standards. NBS went about satisfying the essential in- gredients for arriving at standards by:

• Setting up in 1968 the Federal Information

Processing Standards Coordinating and Advisory Committee (FIPSCAC). FIPSCAC was

formalized as a public advisory committee on January 3, 1973. FIPSCAC consists of between 15 and 30 members from U.S. Government agencies and other public and private

organizations. Standards developed under the

authority of the Brooks Act are called Federal

Information Processing Standards (FIPS).

The establishment of FIPSCAC satisfied the

second standards-making requirement listed

above, i.e., "a method for agreeing upon a selection to be used" from a set of alternatives

for any standard.

• FIPSCAC and its Task Groups develop the

set of alternatives to be considered in arriving

at each standard and thus satisfies the first ingredient listed above for arriving at standards.

• The Brooks Act specifies Federal agencies as the group to abide by the selection of each

FIPS standards.

• The Brooks Act satisfied the third essential in- gredient for arriving at a standard (see listing

above), i.e., "a group which agrees to abide by

the selection."

• There has never been a means for insuring compliance with FIPS standard.

0MB in its December 1966 policy guidance letter to the Secretary of Commerce directed NBS "to the extent feasible and desirable, develop and recom- mend means for measuring compliance with Federal

standards."

The only enforcement mechanism that exists is in the procurement process. For those FIPS standards

that are applicable to procurement and are implemented through the Federal Property Management Regulations (FPMR's) the enforcement

mechanism is the pertinent Federal procurement

regulation.

In other instances compliance requirements as they are now interpreted probably derive their only

explicitness from President Nixon's statement in his memorandum to the Director, 0MB, dated April 30,

1971 in which he stated.

"I expect that Federal agencies will apply these standards whenever their use will lead to greater operational efficiency and reduced costs."

The tradition established since 1968 has been that

all Federal agencies are expected to comply with each

FIPS standard unless they formally decide to waive

its provisions. In such instances of non-compliance

the waiver procedure as set forth in each published

FIPS standard required that agency heads coordinate

their proposed waiver with the NBS. Waivers should

not be made until a reply is received from NBS;

however, the final decision for granting the waiver is a responsibility of the agency head.

Recognizing that no means existed for insuring

compliance with standards and that hence an essential ingredient in standards-making was lacking, NBS

proposed to 0MB in 1971 that

• Each agency should be assigned responsibility

for ensuring compliance with FIPS standards,

and that,

• A reporting system should be established under

which agencies would regularly report to 0MB

the extent of standards implementation for each

of their individual systems and installations.

Such procedures would provide the first real measure

of agency compliance with FIPS standards. However, today in 1976 there are no means for insuring

compliance with FIPS standards.

5.2.3. Two Schedules for the Development of a FIPS Standard

There are two primary approaches that can be

followed in the development of Federal Information

Processing Standards: (1) Development of a standard

entirely within the Federal Government, and (2) Adoption of a standard developed by the American

National Standards Institute (ANSI).

Development of a Standard Entirely Within the Federal Government

In this case, experience shows that it takes an

average of about three years to develop the standard.

The process is started by the identification of the

requirements for a particular standard and the preparation of a statement of the scope of work. This is done by the Federal Information Processing Standards Coordinating and Advisory Committee

(FIPSCAC), a public advisory committee chaired by

NBS and having representation from Federal agencies and the private sector. FIPSCAC's identification of the requirements for a standard and preparation of

33
a work statement may span a period of some six months.

The actual development of a standard is carried

out by a FIPS Task Group made up of representatives of all interested Federal agencies and, as appropriate, representatives from the private sector. The development and drafting of the standard re- quires an average of 12 months of effort, depending upon the complexity of the standard and other

factors. Coordination of the standard and the resolution

of any differences involving it takes another five months of work. The draft standard is sent directly to the FIPS point of contact in each Federal

agency for review and comment. Concurrently, the

draft standard is published in the Federal Register

for review and comment by all interested parties

including industry and the private sector. The completed standard is forwarded to the

Secretary of Commerce who approves it in accord- ance with the authorities delegated to him by

Executive Order 11717 dated May 9, 1973. Upon

approval by the Secretary, the standard is published by the Government Printing Office as a FIPS Publication. Concurrently, the FIPS Task

Group that developed the standard collaborates

with the General Services Administration to develop implementation procedures if, as happens in many cases, the standard is to be implemented

through the GSA Federal Property Management

Regulations (see fig. 5).

Developing and Adopting an ANSI Standard as a FIPS Standard

The process of developing and adopting an ANSI standard as a FIPS standard is significantly

longer than that for developing a standard entirely

within the Federal Government. On the average,

this process takes about five years. This process starts with the establishment of a joint industry and Government group under the

ANSI X3 Committee (Computers and Information

Processing). This activity including the formulation

of requirements and scope of work takes an aver- age of 12 months to complete. The ANSI process

is oriented toward insuring that all interested parties are given an equal opportunity to participate

in the standardization process. Actual development of the ANSI standard usually spans a period of 35 months, again depending

upon the complexity of the standard and the general level of interest in the standard. Representatives of interested Federal agencies, coordinated

by the NBS, participate actively in the development of the standard. They insure that Federal

interests, requirements and objectives are ac- counted for in the development of the standard.

Once the ANSI standard has been developed,

NBS forms a FIPS Task Group to handle the

adoption of the standard as a FIPS standard. As

necessary, the Task Group modifies the standards

and makes the required adjustments to effect its adoption as a Federal standard. When this work

has been completed, the standard goes through the

THE FIPS PROCESS: ADOPTION OF ANSI

VOLUNTARY STANDARD

JOINT INDUSTRY/GOVERNMENT

COMMITTEE ESTABLISHES REQUIREMENTS & SCOPE

STANDARD APPROVED

BY SECRETARY OF COMMERCE

NBS PREPARES FIPS & COORDINATES WITH

AGENCIES & PUBLISHES

IN FEDERAL REGISTER

TIME (MONTHS)

CUMMULATIVE

TIME (MONTHS)

36 \

AGENCIES REQUEST

WAIVERS STANDARD

DISTRIBUTED

3 2 2 4 12

• 48-51 53-55

ANSI COMMITTEE

DEVELOPS STANDARD

NBS RESOLVES

DIFFERENCES

AGENCIES DEVELOP

INTERNAL IMPLEMENTING

INSTRUCTIONS STANDARD IS PRINTED & IMPLEMENTATION PROCEDURES ARE FORMULATED

Figure 5

34
THE FIPS PROCESS: STANDARD DEVELOPED

ENTIRELY WITHIN THE GOVERNMENT

FIPSCAC DETERMINES REQUIREMENT FOR STANDARD

TIME (MONTHS)* CUMMULATIVE

TIME (MONTHS) -6--

STANDARO IS PUBLISHED & IMPLEMENTATION PROCEDURES ARE DRAFTED

FIPS TASK GROUP NBS TASK GROUP

DEVELOPS STANDARDRESOLVES

DIFFERENCES

AGENCIES DEVELOP

INTERNAL IMPLEMENTING

INSTRUCTIONS

I 2^

20- -23-25- -27-

FIPS TASK GROUP

ESTABLISHED

NBS COORDINATES STANDARD WITH AGENCY POINTS OF CONTACT & PUBLISHES

IN FEDERAL REGISTER

31 32-34-

STANDARD

DISTRIBUTED

AGENCIES REQUEST

WAIVERS APPROVAL OF STANDARD BY SECRETARY OF COMMERCE

Figure 6

same process as that previously specified for the

standard developed entirely within the Government

(see fig. 6).

5.2.4. NBS Responses to ADP Standards Responsibilities

The Brooks Act assigned to the Secretary of

Commerce the authority to "make appropriate

recommendations to the President relating to the

establishment of uniform Federal automatic data

processing standards. The Secretary of Commerce

assigned the ADP standards function to the National Bureau of Standards. The Office of Management and Budget policy guidance letter dated

December 15. 1966 assigned 10 specific standards

related responsibilities to NBS:

(1) Participate in activities of the X3 Committee

on Information Processing of the American

National Standards Institute (ANSI), its subcommittees and task forces, and in activities of the International Organization for Standardization as requested by ANSI.

(2) Arrange and insure appropriate representation and active participation from other Federal agencies on the X3 Committee, subcommittees and task forces to complement

the Institute s participation with additional

expertise from the operating environment of

the Government.

(3) Mcmitor and coordinate all such participation

by all Federal agencies to assure its consistency with the Federal Government's objectives.

(4) Study and provide recommendations for

Federal ADP standards.

(5) Study and provide recommendations on the use within the Federal Government of each

appropriate United States Standard approved

by the American National Standards Institute

in the area of ADP equipment, computer lan- guages, and techniques and data elements and

codes.

(6) Provide for technical maintenance of Federal

ADP standards.

(7) Develop, issue and maintain a statement of

the Federal Government's standardization

objectives and needs.

(8) Recommend procedures to be used in the

Federal Government for adopting Federal

standards and developing and implementing

plans thereof.

(9) Provide leadership of an Executive Branch

program for standardization data elements

and representation.

(10) To the extent feasible and desirable, develop

and recommend means for measuring compliance witli Federal standards.

Descriptions of progress in carrying out each ot these responsibilities are provided in the tollowing.

(1) ASSIGNED NBS

RESPONSIBILITY: Participate in activities

of the X3 Committee on

35
Information Processing

of the American National Standards Institute, its subcommittees

and task forces, and in

activities of the Interna- tional Standards Organization as requested

by ANSI.

NBS, during the past 10 years, has actively

supported the voluntary industry standards

activities through sustained participation in the numerous technical groups established

under the auspices of the American National

Standards Institute, the Electronics Industry

Association and the National Microfilm Association. More than 35 professionals from

ICST have contributed to the voluntary standards efforts over the past 10 years. Although we do not maintain a precise accounting of

expenditures for participation on voluntary

standards activities, it is estimated that over

the past 10 years we have provided the equivalent of 80 man years or approximately $4M

to these efforts. NBS professionals currently are active on 39 technical groups which are involved in the development of voluntary in- dustry standards. Our last count identified some 60 industry-sponsored groups working

on computer standards.

During the past ten years, over 60 voluntary

standards have been developed. Of these, 20

have been adopted as Federal Information

Processing Standards. Of these, four were

developed by NBS and later became industry

standards. There currently are 66 proposed

voluntary standards in various phases of development.

We have recognized in the development of Federal standards that we need to interact

with the computer industry and other using

organizations. The voluntary industry standards activities provide the principal forum and

the mechanism for this interaction. We feel that our continued active support of these in- dustry groups is justified based upon the benefits enjoyed by the computer community at large. This is not only beneficial to the Federal Government, but also to State and local governments, other user groups and the computer industry.

As a result of our involvement in these activities, we have observed several weaknesses

in the voluntary standards process that deter

effective standards development and implementation. Principal among these are:

• Industry standard efforts are dominated

by the six major computer manufacturers

who can afford a full-time standards

staff. Most smaller producers and nearly

all users cannot afford the cost involved

in standards participation.

• The economic and operational benefits of standards have not been adequately identified and quantified in order to allow

proper management decisions in regard

to establishing priorities and allocating

standards resources. In most using or- ganizations, standards are considered as a marginal overhead expense and are not associated with contributing to the operational performance of the organization or contributing to increased profits. Accordingly, standards support is one of the first functions to be eliminated or reduced

during periods of recession or limited

funding resources.

• In the computer field, voluntary industry

standards are not as widely recognized or complied with as in other technical and

industrial areas. The marketplace standards continue to be the corporate standards of the major manufacturers and not voluntary industry standards. It is appar- ent within the computer industry that

marketing considerations take priority over standards. There currently is no

strong user influence to cause a change

in this practice. The Federal Government

has over 8000 computers and is the

largest single user. However, in terms of

market-place leverage, this is less than

10 percent of the installed computers. In terms of the largest manufacturer. Federal computer sales represent less than 1 percent of the company's total sales.

• The time required to develop approved

voluntary industry standards is unnecessarily long, running from a minimum of

three years upwards. This is due to several factors: (1) the volunteer nature of

participation and support; (2) the lack of

adequate management controls in a committee structured activity; (3) in- frequent meetings of technical groups;

and, (4) the absence of sense of urgency.

(2) ASSIGNED NBS

RESPONSIBILITY: Arrange and insure appropriate representation

and active participation

from other Federal agencies on the X3 Committee, subcommittees and

task forces to complement the Institute's participation with additional expertise from the

operating environment of

the Government.

36
The participation of other Federal agencies

in voluntary industry standards activities over

the past ten years has been of major signifi- cance to both the Federal standards program

and the voluntary industry efforts. Other Federal agencies currently have 156 professionals

involved in the work of 37 different voluntary

standards groups. Nineteen agencies provide

participants in these activities. The Department of Defense is the most active with over

81 participants.

As a result of our NBS standards efforts

and the close coupling we have with industry

and Government groups, we are able to identify those subjects and groups where there is a Federal interest or requirement. Depending

upon the availability of technical and administrative resources with individual agencies, we

encourage and support their participation in voluntary industry standards efforts. No centralized funding arrangements have been re- quested or made available for supporting

agency representatives participation. Accordingly, in regard to this function, NBS encourages standards participation by other agencies

and depends upon the individual resources of

each agency for their support of voluntary in- dustry standards efforts. In addition to the benefits obtained from the

contributions made by individual agency participants in the development of voluntary standards, NBS has been able to benefit from aug- mentation of the technical base for the Federal

standards program through the combined technical competencies of the participating Federal

agencies. Also, the sharing of user experiences

and problems with representatives from other

Government agencies and industry has usually

provided an effective environment for standards

development. Except in those instances where

the major computer manufacturers have not desired standards {e.g., device interface standards, operating system control languages standards and disk format standards) have there been

any major difficulties in the development phase

of standards. This does not mean that there have

not been technical problems and delays in- volved, but does mean that there has been sus- tained progress in meeting identified standards

objectives. The approval and implementation

phases of the standards process are indeed more

complex and require different competencies and

handling. In both the Federal and voluntary in- dustry standards programs, this important as- pect of standardization is recognized by appropriate separation of the technical and management functions and responsibilities.

(3) ASSIGNED NBS

RESPONSIBILITY: Monitor and coordinate

all such participation by

all Federal agencies to as- sure its consistency with

the Federal Government's

objectives.

NBS monitors and coordinates Federal participation on voluntary industry standards through

the official ADP standards point of contact designated by each Federal agency and through the

standards task groups established under the

sponsorship of the FIPSCAC, a public advisory

committee chartered by the Department of

Commerce to provide recommendations con- cerning the Federal ADP standards program.

NBS provides active participation in the planning activities of the voluntary industry groups

that are concerned with the assessment of additional standards that are needed by the computer community. This is a function of the

American National Standards Institute's Infor- mation Systems Standards Management Board

and the X3 Standards Planning and Requirements Committee (SPARC). As new standards

development projects are identified and initi- ated, a determination is made as to the extent the

subject is of interest to Federal users. If there is interest. Federal participation is afforded either

by the assignment of a participant from NBS,

arranging for participation from those Federal

agencies that have expressed a need for the

standard and can provide competent participants, or through the participation of a member

of an established FIPS Task Group considering

the same subject.

To promote more effective communications

concerning ADP standards activities at the Federal, national and international levels, NBS pro- vides in its FIPS PUB 12 (FIPS Index) a description of each standards development project and

a Usting of the Federal participation provided.

(4) ASSIGNED NBS

RESPONSIBILITY: Study and provide rec- ommendations for Federal ADP Standards.

To date, the ADP Standards Program has

produced 44 FIPS publications which include 27

standards, 11 guidelines and 6 management in- formation documents. President Johnson ap- proved the first three FIPS which were published in November 1968. The Director of the

Office of Management and Budget was later delegated the signatory authority for standards on

behalf of the President and he approved the next

18 FIPS. In August of 1973, OMB's responsibilities with respect to government-wide ADP

standards (including approval authority) were

transferred to the Secretary of Commere by

Executive Order 11717. Six FIPS have since

been approved by the Secretary under the provisions of the Executive Order.

In addition to the 27 FIPS standards published

since the establishment of the program, 11 guidelines have been issued. It became apparent

37.
early in the standards program that certain subjects did not lend themselves to the strict defini- tion of a standard. Where there were requirements for recommended practices, these were accommodated in the FIPS publications series as guidelines. Some of these technical guides

also serve to clarify and provide aids for implementing approved standards.

In September 1968, 0MB assigned to NBS

responsibility for establishing and maintaining a FIPS Register to serve as the official Federal

source of information pertaining to Federal ADP

standards. In addition to the 38 standards and

guidelines in the FIPS Register, NBS has published six management information documents.

These include a Federal Information Processing

Standards Index (FIPS PUB 12), a periodic

compilation of information concerning standards activities at the Federal, national, and

international levels; Objectives and Requirements of the FIPS Program (FIPS PUB 23); and

the Federal regulation for the Data Standards

Program (FIPS PUB 28).

It is anticipated that an additional 50 standards and guidelines will be developed during FY

1976 through FY 1978. In the telecommunications standards area, NBS collaborates with the National Communications System in the development of joint

standards that are common to computers and

communications applications. Similarly, NBS is cooperating with the Archivist of the United

States in the joint development of standards in the fields of micrographics and word processing.

The NBS ADP standards program is additionally augmented by the standards program of the

computer industry and trade and professional

associations including the Computer and Busi- ness Equipment Manufacturers Association

(CBEMA), the Computer Industry Association

(CIA), the Association for Computing Machinery

(ACM), the Electronics Industry Association

(EIA), the Institute of Electrical and Electronic

Engineers (IEEE), the American Bankers Association (ABA), and the National Retail Merchants Association (NMRA). As a result of these

associations, NBS is frequently called upon to provide assistance and inputs to standards problems that are common to the computer community.

(5) ASSIGNED NBS

RESPONSIBILITY: Study and provide rec- ommendations on the use within the Federal Government of each appropriate United States

Standard approved by the American National

Standards Institute in the area of ADP equipment,

computer languages and

techniques, and data ele- ments and codes.

During the past 10 years, NBS has actively

supported the standards activities of the technical groups established under the auspices of the

American National Standard Institute, the Electronics Industry Association and the National

Microfilm Association. More than 35 professionals from ICST have, on a continuing basis, contributed to over 60 of the voluntary standards

that have been developed to date. Of these, 20

have been adopted as Federal Information Pro- cessing Standards. Four of these were developed by NBS and later became industry

standards. There currently are sixty-six pro- posed voluntary standards in various phases of development, which as they are approved or in the final approval process, will be evaluated by

NBS to determine their applicability and further

adoption as Federal standards.

Not all ANSI standards meet the needs and

objectives of Federal Government users and

thus are not recommended as Federal standards. In certain instances, it has been deter- mined that there is no Government requirement

for voluntary industry standards relating to MICR, embossed credit cards, 200 CPI magnetic tape, etc. In other cases, it has been deter- mined that some ANSI standards cannot be

adopted for Federal use without modification,

because of certain technical incompatibilities or deficiencies (e.g., FORTRAN, magnetic tape

labels). Assistance is being provided by the Federal Government to correct these problems and

make these standards compatible with Federal

Government requirements so that they can be

adopted for Federal use. Agreement has been

reached between NBS and GSA that certain

standards, particularly those relating to media

will be implemented by GSA as Federal pur- chase specifications (e.g., ANSI standards deal- ing primarily with physical properties of media

including cards, magnetic tape, and disk media).

(6) ASSIGNED NBS

RESPONSIBILITY: Provide for technical

maintenance of Federal

ADP standards.

According to established procedures, voluntary industry standards developed and

adopted by the American National Standards

Institute are automatically reviewed every five years, and as a result are revised, confirmed,

or withdrawn. To date, 20 voluntary industry

standards have been adopted as FIPS. Concurrent with the ANSI review effort, action is taken to have the corresponding Federal

standard reviewed to assure that it continues

to meet the objectives and requirements of

the Federal Government. Through participation on ANSI committees, NBS and other

Federal Government participants are directly

involved in these reviews. Currently under re- view by both ANSI and the Federal Govern38
ment are the data communications standards

published in FIPS PUBS 16. 17. 18. and 22

and the ASCII standard in FIPS PUBS 1 and

7. Recent examples of maintenance activities include the revised ANSI COBOL adopted as revised FIPS PUB 21-1 and FIPS PUB 3-1 on

magnetic media.

We plan to review every five years or more

frequently, depending upon charging requirements or technical content, those Federal

standards which are not based on voluntary

industry- standards.

As each Federal standard is issued, a maintenance authority is identified. For the

current data standards, maintenance support

is provided on a continuing basis by the Department of State, the Office of Management

and Budget, the General Services Administration, and the Bureau of the Census. NBS

promulgates change notices as these are re- ceived from the maintenance authority and

publishes revised standards as necessar>'. For

example, we are publishing the fifth revision

to FIPS PUB 8 on Standard Metropolitan

Statistical Areas which is maintained by the

Office of Management and Budget.

In allocating resources to standards efforts,

it is essential to recognize that standards must

be maintained and provide the support neces- sary to be responsive to user requirements.

Maintenance functions, in addition to keeping

standards documents current, also include the

essential function of advising users on how to obtain standards information and provide

technical advice of their implementation as requested. In this regard, the ICST Office of

ADP Standards Management serves as the

focal point within NBS for answering and re- ferring queries received from the using agencies. Over 500 queries are processed by this

office each month.

(7) ASSIGNED NBS

RESPONSIBILITY: Develop, issue and maintain a statement of the

Federal Government's

standardization objectives and needs.

As an early step in carrying out its responsibility for the Federal Information Processing

Standards Program. NBS established an inter- agency committee comprising representatives

from the Federal departments and agencies

that are major users of computer systems.

The first undertaking of this committee, the

Federal Information Processing Standards

Coordinating and Advisory Committee was to draft a statement containing the objectives

and requirements of the FIPS Program.

In March 1970. the draft statement prepared by FIPSCAC was officially coordinated

with all Federal departments and agencies

and in November 1972, the Office of Management and Budget approved the objectives

for the standards program which were issued

by NBS in February 1973 as FIPS PUB 23.

The objectives of the FIPS Program are categorized into six major areas: (1) Data.

Programs, and Components, (2) Data Communications, (3) Computer Performance: (4) Applications and Data, (5) Personnel and Environment, and (6) Acquisition and Reassignment of ADP Products.

In December 1975, FIPSCAC initiated a re- view of the current objectives and requirements of the FIPS program to identify further

items for standards based upon changing

technological and operational conditions. In

particular, the Privacy Act of 1974 caused new constraints that needed to be considered

in the design and use of computer systems in- volving personal data. Extended use of

minicomputer, intelligent terminals, data

communications, and computer output on

microfilm have created new needs for standards. The increase in use of computers in manufacturing, business and medical systems

has also surfaced the need for standards that provide their effective use in these application

areas. A revised statement of standards objectives is expected to be available for official agency review and comment in June 1976. The Office of Management and Budget re- tained responsibility for the management of

the Data Elements and Codes program from

1966 until August 1973. when OMB's responsibilities with respect to Government-wide au- tomatic data processing standards were trans- ferred to the Secretarv of Commerce bv

Executive Order 11717 dated May 9. 1973.

While the approval authority for all Federal

Information Processing Standards remains

with the Secretary of Commerce, the management of the Data Standards Program was

delegated to the NBS Institute for Computer

Sciences and Technology. In assuming this new responsibility. NBS amended Subtitle A

of Title 15 of the Code of Federal Regulations

by adding a new Part 6 which implements the

provisions of Section III (f) (2) of the Federal

Property and Administrative Service Act of

1949. as amended (70 Stat. 1127). This new

Part 6, effective December 5. 1973 (also republished as FIPS PUB 28) provides policy and

identifies responsibilities of Executive Branch

departments and independent agencies for a Government-wide program for the standardization of data elements and representations used in Federal automated data

systems.

(8) ASSIGNED NBS

RESPONSIBILITY: Recommend procedures

to be used in Federal

Government for adopting

39
Federal standards and

developing and implementing plans therefor.

Procedures for the development, coordination and implementation for data standards

have been issued as Part 6 Title 15 of the

Code of Federal Regulations and promulgated

in FIPS PUB 28. Procedures governing the operation of inter- agency and public advisory committees that are established to consider standards matters

are provided in Department of Commerce

Administrative Order 201-2.

In the cooperative development of voluntary

standards with industry, the operating procedures of ANSI and other industry standards

groups are followed.

Currently, we are preparing operating pro- cedures for the FIPS program based upon

those for data standards in Part 6 Title 15 of

the Code of Federal Regulations. The major

issues still remaining to be resolved in prepar- ing these procedures are (1) an effective

mechanism for determining standards

priorities and (2) an effective mechanism to monitor the implementation of standards and

to assess the significance of their use in improving Federal ADP services. In this regard, NBS has recommended to 0MB that a reporting procedure be established, wherein each individual system and

installation would report to 0MB on a regular

basis the extent that standards have been or

will be implemented.

(9) ASSIGNED NBS

RESPONSIBILITY: Provide leadership of an

executive branch program for standardizing

data elements and representations.

The Office of Management and Budget was

responsible for the Federal data standards

program from the implementation of the

Brooks legislation in 1965 until May 1973

when, by Executive Order 11717, the President transferred to the Department of Commerce those ADP standards functions performed by 0MB. Specifically, this transfer au- thorized the Secrutary of Commerce to approve standards on behalf of the President,

and transferred to NBS the program responsibilities for data standards.

In November 1973, NBS prepared and obtained Secretary of Commerce approval of a Federal Regulation, codified as Part 6, Title

15 CFR, Code of Federal Regulations, which

established a Federal program for the standardization of Data Elements and Representations and replaced the earlier 0MB in- structions in their Circular A-86. This Regulation assigns to NBS the leadership role in the

management of Federal Government activities relating to the development, implementation,

and maintenance of data standards. The Secretary of Commerce approves standards for Federal-wide use in behalf of the President.

In support of this new responsibility, NBS

requested an additional $308K in its 1976

Budget submission to establish the data

standards program. Congress authorized

I154K of this request which has been allo- cated to NBS for the data elements and codes

program.

One of the more significant efforts being

undertaken in support of this new initiative was the establishment of an interagency task

group (FIPS Task Group 17) charged with the

development of standards and guidelines for use in constructing and maintaining data ele- ment directories and to develop performance

standards for the automated process required

to maintain and utilize such directories. The

use of data element directories is needed as an essential adjunct in providing effective se- curity to data files as prescribed by the Privacy Act of 1974. NBS provides advisory, technical, and administrative support to this task group effort which is expected to produce, within this

calendar year, an Executive Guide on Data

Element Directories in Managing Data Resources, a guide for constructing and maintaining data element directories, and a technical guide that provides performance standards

for automated data element directories.

NBS also arranges for the development of

data standards with Federal agencies having

assigned mission responsibilities. In FY1975,

the first program assignment was arranged

with the Civil Service Commission for the development of data element and representation

standards used in the exchange of data for au- tomated civilian personnel systems. These

standards are intended to improve the effec- tiveness of civilian personnel support systems

in all Federal departments and agencies. Ar- rangements are in process from DHEW to take the leadership role in developing data

standards for defining and coding ethnic

groups. Other arrangements for the development of standards in selected program areas

will be made with appropriate Federal agencies. Data standards used in statistical reporting systems, freight movement systems and

highway-traffic safety systems are planned

and are under consideration with 0MB and

the Department of Transportation.

Before the end of FY1976, NBS will publish technical guidelines for the use of Federal

departments and agencies in the development,

implementation, and maintenance of standards for the representation of computer pro- cessed data elements.

Six Federal data standards have been established as FIPS. Five of these are for coding

40
geopolitical entities (e.g., countries, states,

countries. Standard Metropolitan Statistical

Areas (SMSA's) and Congressional Districts),

and are widely used in statistical reporting

systems of the Federal Government and by

State and local governments and the public.

Two of these Federal standards (i.e., codes

for states and counties) have been adopted by

ANSI as voluntary industry standards. Four

additional data standards for representing

cities, map coordinates, time and measure- ment units are expected to be approved and

published during FY1976 and FY1977.

(10) ASSIGNED NBS

RESPONSIBILITY: To the extent feasible

and desirable, develop

and recommend means

for measuring compliance with Federal

standards.

COMPLIANCE REPORTING

Measuring compliance with approved standards is a major concern of NBS. It is recognized

that the effectiveness of the standards program

cannot be assessed based simply on the

number of standards that are approved and

published, but must include data on the extent

that the use of standards has effectuated sav- ings or increased performance in the Federal use of ADP. NBS has highlighted the need to identify and implement feedback mechanisms

that allow our assessment of the impact of standards. NBS recommended to 0MB in NBS

Report 10608 of September 1971 that a reporting system be initiated in which Federal agencies provide information on the extent of standards implementation and the benefits or problems that have been experienced in the use of standards. This has not yet occurred.

There has been an expected, resultant,

long-standing confusion and uncertainty as- sociated with the lack of any compliance

mechanism in the implementation of Federal

Information Processing Standards within the

Federal Government. This disquieting situation has existed since the first FIPS standard was issued in 1968. The Brooks Act, which

established the FIPS program, does not ad- dress the issue of mandatory compliance or enforcement, nor do the 0MB policy guidance

papers or Executive Orders issued since 1965.

Its only direct mention is a letter dated December 1.5, 1966, from the Acting Director of 0MB to the Secretary of Commerce in which

NBS was directed to, among other things, "the

extent feasible and desirable, develop and rec- ommend means {ar measuring compliance with

Federal standards."

Since 1971, NBS has continually cited the

confusion surrounding the lack of an explicit

compliance mechanism as a significant factor

in the degradation of the creditability and effec- tiveness of the FIPS program—a deficiency

which impacts on both NBS and the Secretary

of Commerce. Individuals within 0MB have in 1976 expressed to NBS the informal view that Executive Order 11717 dated May 9, 1973,

gives the Department of Commerce all needed

authority to enforce compliance or use, as ap- propriate, with its FIPS standards and

guidelines. No formal assurance of this has

been given: presently, by memorandum dated

April 23, 1976, NBS has asked the staff of the

DOC General Counsel to resolve whether the

Secretary of Commerce has the legal authority

informally intimated by 0MB staff. Certainly, any Federal standards program in- tended to meet legislated requirements, such

as those of the Privacy Act of 1974, needs an accompanying explicit compliance and en- forcement mechanism. NBS has been keenly aware of, and has many times documented, its concern over the resulting lack of elfectiveness

within the Federal Government of its FIPS pro- gram.

When the legal authority of the Secretary of Commerce has been determined, NBS will either undertake the establishment of an

adequate comphance mechanism or will for- mally notify 0MB of the need for clarifying

policy guidance.

5.2.3. Standards Assessment

The NBS 1974 study on the impact of ASCII as a Federal standard was the first attempt to make an assessment of a standard. Other means such as sampling techniques and selected studies are" being in- vestigated for obtaining information on the effects of the implementation of standards.

5.2.6. Standards Validation, Testing and Calibration Services NBS also developed and initiated testing techniques for determining the extent that marketplace

products and services meet approved standards. In the software area, COBOL compher testing is now

operational and is being performed on a Federal-wide

basis through the cooperation of the Department of

the Navy. FORTRAN compiler test programs have

been developed by NBS and are being tested by in- dustry prior to the establishment of a formalized

FORTRAN testing service in parallel with the Federal adoption of the revised FORTRAN standard.

NBS also provides basic references and calibration

services for ADP products designed in accordance

with standards. These standard reference materials

and calibration services are used by the computer

industry for quahty control tests during the production phase and by Government agencies in the pro- curement of ADP products.

41
Magnetic computer tapes and disks acquired for Federal use are tested by GSA for compliance

with standards. NBS provided technical assistance to GSA in initiating this testing service in the design

of test equipment and test methods. NBS also pro- vides the basic references for measuring signal

quality amplitude for magnetic media. These ref- erence materials are recognized in both national

and international standards and have been of significant value in improving the overall quality of

magnetic tape available to the worldwide community of ADP users.

5.3. Research

The 0MB Policy Guidance Letter to the Department of Commerce of December 15, 1966, as- signed the following responsibilities to NBS:

• To supplement agency research efforts when

necessary to meet Government-wide requirements or to provide solutions to problems of concern to several different agencies.

• To initiate efforts to solve large-scale and dif- ficult problems sufficiently unique to special

needs of Government that outside interests are not likely to undertake vigorous and

timely action.

• To evaluate and apply advanced concepts to the development, organization and implementation of automatic data processing, computer

and related systems, including the innovation

or extension of techniques needed for improved cost effectiveness in the conduct of

agency programs through the use of computers and related techniques.

• To conduct exploratory research in order to provide the technological bases for future

standardization activities and to maintain the

competence of the technical staff engaged in technical advisory services, testing and evaluation, and standardization activities.

• To identify continuing research and development requirements for use by the Center,

other agencies, academic and other organizations and industry in planning and coordinating R and D programs in the area of computer

and information sciences and technology.

• To participate in the conduct of an annual re- view of the accomplishments of a programs

for research in computer sciences and techniques.

To the limit of extent that resources have permitted, NBS initiated research efforts in response

to thses assigned responsibilities. Some of these

activities were initiated prior to FY1970 on a very

limited scale. From FY1970 through FY1973 a

slightly expanded "exploratory development" pro- gram was conducted. Illustrative projects performed during these periods are provided below in section 5.3.2.

5.3.1. Background

During the early years of NBS activity and re- sponse to the Brooks Act, only a few specific topi- cal research projects were identified. These proj- ects often supplemented specific other agency re- search efforts and were conducted in cooperation

with these other agencies. In FY1974, all directly

appropriated funds were reprogrammed from this exploratory development area to other higher priority areas so as to concentrate the limited available resources on current, high priority requirements.

Although the nature of the more specific program

activity presently performed does involve, from

time to time, developmental aspects, it is not currently possible to devote any resources directly to the performance of these assigned responsibilities.

NBS does not now and has never been able to devote the resources necessary to conduct exploratory research in order to provide the technological

bases for future standardization activities and to maintain, in an organized and systematic manner,

the competent staff engaged in technical advisory

services, testing and evaluation, and standardization activities, in part because of the lack of resources, and also the lack of a willingness to participate by 0MB, and the Office of Science and

Technology when it existed, NBS has never participated in the conduct of an annual review of the

accomplishments of and programs for research in computer sciences and techniques as assigned in the 0MB PoHcy Guidance Letter.

5.3.2. NBS Response to Assigned Responsibilities

The following short project summaries illustrate the types of research activities that were carried

out on a very limited scale during the first several

years following Brooks Act enactment (prior to fis- cal year 1970):

(1) Research in Pattern Recognition

Objective: This project was concerned with

the study of techniques for utilizing computers and other special electronic and optical

devices in the analysis and manipulation of

information found in patterns of both natural

and artificial origin in practical applications

of interest to the Government. Included in the applications was the identification of in- dividuals through fingerprints, footprints,

voiceprints, and handwriting. The research was directed toward the use of electronic

computers, graphic display equipment,

electro-optical sensors and readers, teleprocessing, and large-scale file manipulation

42
techniques. Research was conducted in the

automation of pattern recognition and identification and included the definition of arti- ficial languages capable of describing and

manipulating the information contained in

patterns. Methods were studied for automatically intercomparing patterns and for determining whether a given pattern belonged to an established set of patterns.

Impact on succeeding program entity: On the

basis of this research effort, a request was

received from the President's Special Action

office on Drug Abuse Prevention, seeking a unique method of identification for use with

drug addicts to be treated under the

Methadone program. This resulted in a successful technique for identification based on

the use of prints from the soles of the feet. As another consequence of this effort, a re- quest was received from the FBI for a study

of the feasibility of automating the identifica- tion of fingerprints. This exploratory study was supported with NBS funds for about one

year, after which it was concluded that the

automation of this process should be feasible, and an approach was developed. Accordingly, a joint effort was initiated under

FBI sponsorship.

This effort has led to a major successful pro- gram in cooperation with the FBI in which

NBS has developed fingerprint matching al- gorithms and techniques that are key to the

current major FBI fingerprint automation

project. In addition, NBS continued to pro- vide primary engineering consultative ser- vices to the FBI on this fingerprint automation program.

Research outputs: One Technical Note on

footprint identification. One paper on the

feasibility of automating fingerprint identification.

(2) Research in Techniques for Manipulating

and Organizing Chemical Information

Objective: This project was an outgrowth of

earlier research performed by NBS in the

automatic storage, manipulation, and retrieval of chemical information. The project was jointly supported by the Army Research

Office, the National Institutes of Health, and

the National Science Foundation. The proj- ect was concerned with an examination of

the characteristics of large files, and the development of structures for large files of

heterogeneous scientific and technical in- formation including chemical structure rep- resentations. Techniques were studied for manipulating information in either formatted

or amorphous form, building of files with in- complete data, with provisions for adding

additional data in the future, creation of

multilevel files with provisions for generic in- formation and varying degrees of specificity,

and the interstructuring of files which may

be part of larger files but geographically

separated therefrom. List processing was

studied as a means of maintaining flexibility,

providing for file maintenance, and overcoming the constraints associated with fixedlength and formatted files. Techniques were

investigated for organizing and manipulating

files in order to achieve systems of subfiles,

special files, and keying and crossreferencing as required for a system of multilevel, multisubject files. Techniques were

explored for formulating queries of varying

specificity and for responding to such

queries.

Representative information files were computerized and programs were prepared for a variety of experimental investigations in file organization and manipulation. Alternative

ways of representing structures of chemical

compounds in digital form were explored.

Computer algorithms were devised for the

compaction of numeric and alphanumeric in- formation in order to achieve significant savings in storage space and search times.

Research Outputs: One NBS Report on techniques for manipulating chemical information.

Interagency Report on one file organization

for a large chemical information system.

The following project summary illustrates the

types of research activities that were performed

from FY1970 through FY1973 as a part of the "exploratory development " program.

(1) Methods of Software Quality Control

Objective: Explore the problem of the pro- duction and effective utilization of reliable,

high quality software. Develop new approaches and techniques for large scale pro- gramming development, including project

management, programming metiiods. languages, and mathematical analysis of

software.

Impact: This research provided the basic

techniques and tiiorough understanding es- sential to the Institute s current program in software engineering. For example, tiie current effort to develop a "Software Engineering Handbook"" is based in part on the results of tills research project.

43
Research Outputs: STAPLE FORTRAN

Pre-Compiler implemented and used experimentally, demonstrating feasibility of struc- tured programming in present environment.

Two Technical Notes, 13 papers.

(2) Controlled Accessibility

Objective: To develop the software and

hardware technology which is essential to ef- fective control of data access.

Impact on Succeeding Program Entity: This

early research and development work in the

computer security area resulted in Institute

staff obtaining an essential headstart in developing the products of the current computer security program. For example, as a part of the research two workshops were

held involving key private sector and

academic experts in this area. The results of

those workshops were incorporated in the initial guidelines issued as a part of the computer security program, which were prepared

with very short lead time after initiation of

the formal program in computer security.

Research Outputs: Data encryption algorithm

to be used as a standard. Three FIPS PUBS

were produced.

6. Case Studies

The following case studies depicit NBS fulfill- ment of its Brooks Bill responsibilities in selected

technical areas of highest visibility and interest.

6.1. Computer Systems Performance

Measurement

Assigned Responsibility Addressed By This Effort:

(1) P.L. 89-306 (Brooks Bill)

P.L. 89-306 provides that the Secretary of

Commerce is authorized: (1) to provide agencies, and the Administrator of General Services in the exercise of the authority delegated with scientific and technological advi- sory services relating to automatic data pro- cessing and related systems; and (2) to make

appropriate recommendations to the President relating to the establishment of uniform

Federal automatic data processing standards.

The Secretary of Commerce is authorized to undertake the necessary lesearch in the sci- ence and technologies of automatic data pro- cessing computers and related systems as may be required.

(2) Office of Management and Budget Policy

Guidance to the Department of Commerce

(National Bureau of Standards in the Implementation of P.L. 89-306)

—Basic Policy

The provisions of P.L. 89-306 will be

administered in a manner that is consis- tent with the prime objective of en- couraging the use of ADP by Government agencies to achieve greater productivity and reduced costs in the dis- charge of their respective agency pro- gram responsibilities. —Initial Guidelines

• Provide criteria to assist in evaluating software and hardware developments that may be considered

during the system studies.

• Provide technical guidelines for

preparing solicitations of proposals,

including the specification of system

requirements.

• Provide guidelines, criteria and

techniques for evaluating and

selecting equipment and related

software, giving priority emphasis

to criteria for measuring the effec- tiveness and efficiency of software.

Data on this subject will also be

furnished to GSA for consideration

in the procurement of computers.

• Provide guidelines for evaluating in- stallation and systems performance

on a continuing basis.

(3) Office of Management and Budget (Office of

Federal Procurement Policy)

Assigned NBS the lead responsibility for implementing the Commission on Government

Procurement's Recommendation D-14, development of standard programs for use by

Federal agencies as benchmarks for evaluating automatic data processing equipment

(ADP) proposals.

Executive Summary: The complexity of today's

computer operations presents a considerable chal- lenge to the Federal installation manager responsible for the effective and efficient operation of his

ADP inventory. To help Federal managers meet

this challenge, NBS first mounted a program of

surveillance and support for the emerging technology which enabled NBS to provide technical advisory services in computer performance measure- ment and evaluation and which contributed significantly to the maturing of the technology. Recent

program effort has been oriented toward serving

the Federal ADP community directly through as- sessment, adaptation and transfer of computer sys44
tern performance measurement technology, and

the corresponding development of technical re- ports, handbooks, and guidelines to facilitate the

introduction of performance programs at all Federal ADP installations.

Date Initiated: July 1969

Date Terminated: Continuing

Goals and Objectives: The goal of this program is to improve the effectiveness and efficiency of Federal computer installations through the definition

of performance measures and the development of

a technology for measuring and evaluating both in- stalled and proposed computer systems. Program

objectives include: (1) assessment of new and

existing performance measurement technologies,

and conceptual approaches to performance metrics: (2) adaptation of the more promising concepts

and techniques to the unique requirements of Federal installations; and (3) transfer of pertinent concepts and techniques to Federal installation managers in the form of technical reports, handbooks

and guidelines.

Products:

(1) Guidelines for Benchmarking ADP Systmes

in the Competitive Procurement Procurement Environment (FIPS PUB 42), December 15, 1975.

(2) Benchmarking and Workload Definition: A

Selected Bibliography with Abstracts, J. L. Walkowicz, (NBS SP-405), November 1974.

(3) Benchmarking and Computer Performance

Measurement, /i Survey Report, (NBS-IR),

August 1975.

(4) Computer System Capacity Fundamentals,

Kuck, D. J., (NBS TN-851), October 1974.

(5j Report on Computer Performance Evaluation for the FIPS Coordinating and Advisory Committee, Federal Information Processing Standards Task Group 10, March

1973.

(6) Computer Performance Evaluation: Report

of the 1973 NBS /ACM Workshop, Bell,

Thomas E., Barry W. Boehm and S. Jeffrey, (NBS SP-406), September 1975.

(7) Computer Performance Evaluation. Proceedings of the Ninth, Tenth and Eleventh Meetings 1974-1975, Highland, Harold J. (Ed.),

FIPS Task Group 10, Computer Perform- ance Evaluation Users Group (CPEUG),

.September 1975.

(8) Computer Performance Evaluation. Proceedings of the Eighth Meeting of Computer Per- formance Evaluation Users Group (CPEUG),

Highland, Harold J. (Ed.), December 4-7,

1973, (NBS SP-401), September 1974.

(9) Papers Presented at the Fifth Meeting of the Computer Performance Evaluation Users

Group, (L. G. Hanscom Field, Bedford,

Mass., April 18-20, 1972).

(10) Symposium on the Simulation of Computer

Systems, (National Bureau of Standards,

Gaithersburg, Md., June 4-6, 1974), Highland, Harold J. (Ed.;, SIGSIM (Special

Interest Group in Simulation) of the Association for Computing Machinery, N.Y.,

1974.

(11) Symposium on the Simulation of Computer

Systems, (National Bureau of Standards,

Gaithersburg, Md., June 19-20, 1973),

Highland, Harold J. (Ed.), SIGSIM (Special

Interest Group in Simulation) of the Association for Computing Machinery, N.Y.,

1973.

(12) The Exec-8 Log System . Part 1 —Description,

Maryland Univ., College Park, Md., Rept.

No. TR-434, prepared under NBS Grant

5-9017 by J. M. Mohr, A. K. Agrawala and J. F. Flannagan, January 1976.

(13) Analysis of the System Management Facilities

of IBM Operating System MVT, Tesseract

Corp., San Francisco, Calif., prepared under

NBS Contract 5-35929 by Gary Durbin, Peter Lamasney, Edward Newman and Edward

Syrett, 1975.

(14) Validation of the System Management

Facilities of IBM Operating System MVT,

Tesseract Corp., San Francisco, Calif., pre- pared under Contract 5-359929 by Gary Durbin, Todd Kinney and Edward Syrett, 1976.

(15) Validation of Teleprocessing Networks in the Competitive Procurement Environment, Mitre

Corp., Bedford, Mass., Rept. No. MTR-3012,

prepared under NBS Contract 4-36062 by M.

J. SuUivan, April 1, 1975.

(16) ADP System Procurement: Concept and

Feasibility of an Application Benchmark Library, Mitre Corp., Bedford, Mass., Rept.

No. MTR-3013, prepared under NBS Contract 4-36062 by P. L. Loring, March 28, 1975.

(17) Data Management System Selection: An In- termediate Data Base Representation, Mitre

45
Corp., Bedford, Mass., Rept. No. MTR-3014,

prepared under NBS Contract 4—36062 by W.

Amory, March 1975.

Recipients of Products:

• Managers of the 6,981 Federal computer instal- lations

• Federal procurement and selection officers

• System designers (both hardware and software)

• State and local governments

• The computer industry

• All ADP users both in the Federal Government

and in the private sector.

Relevant Circumstances: The NBS program in computer performance evaluation began in 1969 as a di- rect response to the measurement challenge pre- sented by complex systems whose effectiveness depends to a large extent on the type and number of

tasks (the workload) they process, many of them concurrently, in the course of daily operations. In new

procurements, neither the system nor the workload

exist in quantifiable form, yet the planned application

must be translated into an actual workload for comparative testing and evaluation for a variety of computer systems. To deal with such complexities in the

Federal community, the NBS program in computer

measurement and evaluation was established when

much of the technology of computer performance

measurement was still in its infancy.

Involvement in the early development of CPME

has been a significant factor in determining the cur- rent state of the technology. Through direct sponsorship, technological counsel and organizational support, NBS has been instrumental in the establishment of a Federal center for CPME consulting ser- vices (FEDSIM), the formation of Federal users groups in CPME (CPEUG) and Simulation (SSCS),

the definition of Federcd pohcies with respect to benchmarking and simulation in ADP procurements

(SICS), and in providing forums for the free exchange

of ideas and information among recognized authorities in the field (e.g.. Computer Capacity Conference).

An event that has had considerable impact on the

NBS computer system performance measurement

program was the establishment of the Federal Computer Performance Evaluation and Simulation

Center (FEDSIM) by GSA and the Air Force on March 3, 1972. While organizationally an operating

component of the U.S. Air Force's Data Automation

Agency, FEDSIM is financed by GSA's ADP fund;

GSA bills agencies using FEDSIM services to reimburse the fund, making direct appropriation unnecessary. Under FPMR 101-32.1403, FEDSIM was

designated as the mandatory source for Federal

agencies wishing to procure either simulation and

performance evaluation services or tools. FEDSIM

either provides the service itself, contracts for the

service for the agency, or authorizes the agency to procure the services. Because agencies tend to be more familiar with FPMR requirements than with the

provisions of P.L. 89-306, the creation of FEDSIM

has greatly reduced the number of agencies requesting NBS consultation in the area of PM&E and has

impaired NBS' abihty to interact directly with Federal agencies in understanding their specific problems and requirements and in finding test-beds for developmental standards and technical guidelines.

Since NBS does not perform service work of the type

reserved for FEDSIM, a reasonable solution would be

to delineate the respective functions of both organizations in the same section of the current FPMR. It is believed that this would clarify any existing confusion on the part of Federal agencies.

The creation of FEDSIM has had a second, more

direct, impact on the NBS program in computer per- formance measurement and evaluation. Historically,

FEDSIM was conceived by GSA on the premise that simulation would replace benchmarking as the major

basis for comparative evaluation in computer

procurements—a function in which GSA has a vested

interest. The rationale for having the Air Force run

the Center was that the Air Force owned a computer

simulator package, and had many personnel experienced in applying it to computer performance problems. Meanwhile, major questions had been raised by

the Computer and Business Equipment Manufacturers Association's (CBEMA), at that time Business

Equipment Manufacturer Association (BEMA), Data

Processing Group (DPG) concerning the use of computer simulators in the procurement process, and

NBS was already involved with the technical issue of

the use of simulator packages for comparing computers for selection. By August 1971, this issue was

absorbing a principal portion of NBS/ICST's PM&E

program resources. This was followed chronologically by: (1) the issuance of FPMR E-23 on June 6, 1972 prohibiting for all practical purposes the use of

simulator packages for comparative evaluation of computers in procurements; (2) the "activation" of FEDSIM on July 1, 1972; and (3) a GSA meeting on

July 21, 1972 which resulted in agreement for FEDSIM to chair a study group to formulate a plan for developing a methodology for simulation in computer

selection.

The impact of this series of events was to engage a

large portion of the NBS computer system perform- ance measurement resources in assisting the GSA

and FEDSIM and in interacting with CBEMA and the

computer vendor industry interests over the better

part of FY1971, 1972, and 1973. While this diversion

to the problem of the moment was appropriate and

necessary, it occurred during a critical phase in the

emergence of computer system performance meas- urement and evaluation technology. Its effect was to put NBS program production well behind Federal

requirements for technical guidelines and standards

in this area. With the support of the 1972 and 1974

GAO reports calling for PM&E guidelines, and lead

46
agency designation to implement the Commission on Government Procurement s recommendation to develop standard programs for general Federal use as benchmarks. XBS program resources have increased

to the current level of approximately 3 man-years per

year for the computer system performance meas- urement program.

In the light of a maturing technology" and new Federal regulations that require evidence of CPME activities before additions may be made to existing

computer inventories, recent XBS program effort has

been directed to the assessment, adaptation and

transfer of existing performance measurement

technology" to the managers of Federal ADP installa- tions in a form that is immediately applicable to their requirements. One product of the current program

has already been published as FIPS PLB 42.

Guidelines for Benchmarking ADP Systems in the Competitive Procurement Environment. In preparation are other guidelines concerned with the establishment of effective computer performance meas- urement and evaluation programs at Federal computer installations. In a parallel effort, the XBS pro- gram is conducting technological assessments of developmental methods for measuring, evaluating and

controlling the selection and utilization of modern

computer systems.

Impact: Twice within the recent past the GAO has

reported to Congress on the "opportunities for greater efficiency" provided by CPME technology"

and recommended that every Federal computer in- stallation take appropriate steps to initiate CPME

programs. The GAO reports cited substantial dollar savings actually reaUzed at many industrial and Government installations with CPME activities. Yet. ac- cording to XBS estimates, fewer than 5 percent of all Federal computer installations have established such

activities. The most important reason for the limited

penetration of performance programs into the Federal ADP community is the fact that the evaluation of

computer systems remains more art than science.

What is needed is a technological center to test, organize and disseminate techniques that are already

in use at many locations throughout the country, and

to provide guidance to individual ADP installation managers who may be both unequipped and unmotivated to make such determinations for themselves.

The X^S program is directed toward establishing

such a capability —at ICST—within the Federal Government.

The economic impact of the XBS program can be

estimated in terms of the total 6.981 installations valued at .S4 billion and whose operating and capital

expenses for FY 1974 were S2.8 billion. The introduction of uniform practice in the measurement and control of Federal computer installations can yield substantial savings in equipment utilization as well as in new procurements. Second order effects will be re- flected in better management and significant reductions in the operating expenses of Federal ADP

facilities. The products of the XBS program are completely transferable to state and local governments as

well as to the private sector.

FY 1Q72 $155, 000^

FY 197'^ 122.000

FY "1974 1 =>2 000

FY 1975 190.000

F^^ 1976 197.000

Funding Profile:

6.2 Adoption of the American Standard Code for Information Interchange (ASCII) as a Federal In- formation Processing Standard

Assigned Responsibility Addressed by this Effort: The Brooks Act specifies that "The Secretary of Commerce is authorized ... to make appropriate

recommendations to the President relative to the establishment of uniform Federal automatic data

processing standards.*" The ASCII code is an important data processing standard in its ow"n right

and in addition serves as a principal building block

for many other data processing standards.

Executive Summary: The ASCII code. American

Xational Standard X3.4. was published by the

American Xational Standards Institute in 1963 and

revised in 1965. 1967. and 1968. It was adopted as a mandatory" Federal Information Processing Standard by a memorandum from President Johnson to Heads of departments and agencies on March 11. 1968. and was subsequently issued as FIPS PUB 1. Specific instructions for its employment in the

Federal Government were published in FIPS PL B

7 on March 7. 1969. ASCII was the first Federal Information Processing

standard iFlPS) to be approved and also was the standard wherebv the implementation policv was es- tablished by OM'B for all subsequent FIPS' i.e.. [D

Heads of agencies can waive the use of standards

after advance coordination with XBS. (2) standards

are implemented in new acquisitions and applications, and (3) there are no retrofits for standards.

In the fall of 1972. an evaluation of ASCII as a Federal Information Processing Standard was

undertaken by a new FIPS Task Group, organized

specifically for that purpose. The Task Group con- cluded, among other things that: (1) Federal agencies have made significant progress in the acquisition of ADP equipment having an ASCII capability, and (2) ASCII is used extensively in the tele- communications environment (i.e.. in the elec- tronic transfer of data between different computers, and among computers and terminals), but very

little elsewhere, considering the capabilit\ that exists.

The Task Group tinilings were tonnally reNit>wed

by the FIPSCAC. the ICST Evaluation 'Paiu>l. ami

an ad hoc panel of five senior ICS T staff menilu'i s. All of these groups felt tluit the TG-li findings

understated the impact of ASC^ll. In support of this point ()f view it may be noted that: (1) virtually all ot

*S«iflwar*' lianl\*ari* la;iks. hit-liitlcd in \h\> lunilitii: fijiurr. jn- no i^npT pan <•! ihi- Coiiipiilcr S\slfni!i t*rrtitrinaiuT Nirasurfuu'ul l^ri'[;fdiii.

47
the Federal Government's 7,830 computers (1974

inventory) have the capability for processing

ASCII data using vendor supplied software; (2) an

estimated three-fourths of the Federal Government's new minicomputers and some of its large scale computers supplied by Digital Equipment

Corporation (DEC) and National Cash Register

Company (NCR), over 1,500 computers in all, use ASCII as an internal code; (3) ASCII is the dominant

code for Federal telecommunications and is used

by almost all of the Federal Government's 26,007

terminals (1974 inventory); and (4) both the General

Accounting Office and the National Archives and

Records Service require the use of ASCII in their reporting procedures.

Task Group 12 and all three of the reviewing bodies

felt that FIPS PUB 7 should be rewritten to provide more specific guidance to Federal agencies. This

has been done. The rewrite is contained in pro- posed FIPS PUB 1-1 which will supersede both

FIPS PUB 1 and FIPS PUB 7. The new FIPS PUB

will (1) reaffirm the continued use of ASCII as a Federal Information Processing Standard, and (2) provide more definitive instructions for its use. The new FIPS PUB is in the coordination phase and will be issued by NBS after issues concerning standards compliance have been resolved.

Date Initiated: Fiscal Year 1966

Date Terminated: Continuing

Goals and Objectives: The principal goal of the

adoption of the ASCII Code is to provide a standard

for interchanging information between and within

Government computer systems without having to translate from one character code to another. A

secondary goal is to facilitate the exchange of computer software among Federal agencies and to the extent appropriate between Federal agencies and

State and local governments and industry and the

public.

Continuing objectives are to reduce the cost of data

interchange within and between Federal computer

systems and between Federal computer systems

and those of State and local governments and to improve the reliability of data interchange.

Products: The direct products of the Federal Government ASCII effort are the following four FIPS

PUB's:

( 1) Codefor Information Interchange, (FIPS PUB

1), November 1, 1968;

(2) Perforated Tape Code for Information Inter- change, (FIPS PUB 2), November 1, 1968;

(3) Recorded Magnetic Tapefor Information Inter- change, (FIPS PUB 3), November 1, 1968; and

(4) Implementation ofthe Codefor Information In- terchange and Related Media Standards, (FIPS

PUB 7), March 7, 1969. The first three FIPS PUBS declare the ASQII

Code and related paper and magnetic tape

standards as defined in American National

Standards X3. 4-1968, X3. 6-1965, and X3.22-

1968 respectively, to be Federal Information

Processing Standards. The declaration is based

on a White House memorandum to Heads of departments and agencies, dated March 11, 1968,

signed by Lyndon B. Johnson, then President of the United States.

The fourth FIPS PUB gives instructions for implementing ASCII and the related media standards in the Federal Government. It consists of

two parts—a copy of the White House

memorandum of March 11, 1968, referred to above, and a memorandum to Heads of departments and agencies from the Secretary of Commerce titled "Application of Federal ADP Code

and Media Standards" dated March 7, 1969.

Indirect products of the Federal Government

ASCII effort are the other Federal Information

Processing Standards based on ASCII. These

include: (1) standards for the representation of

data on other media, (2) data communications

standards, (3) standards for code extension and

code expansion, (4) optical character recognition

standards, and (5) standards for programming

languages. ASCII continues to be the basic code

for the continued development of related

hardware, software and media standards, both

National and International.

Recipients of Products: The principal users of

ASCII standards are Federal Government computer users. There are, however, three other

populations that are affected by them—nonFederal Government U.S. computer users, U.S.

vendors of computer products and services, and

the international ADP community.

• Federal Government Computer Users

Federal Information Standards in general,

and the FIPS dealing with ASCII in particular, are addressed to the Federal ADP

user. The ASCII standards are mandatory , upon him, unless waived by his agency.

They are applied for the most part, when ! computers and related equipment are pro-

| cured, or otherwise brought into the Fed- ! eral Inventory.

Federal procurement, including the pro- curement of computer products, is managed

by the General Services Administration.

GSA has issued a Federal Property Man- I

48
agement Regulation requiring that the mandatory provisions of FIPS PUBS be implemented in Federal solicitation documents. This applies to FIPS PUBS in general including the ASCII related FIPS

PUBS referenced above.

Thirty-five waivers of the ASCII standard

have been granted to date.

Non-Federal Government U.S. Computer

Users

Liaison with State and local government

computer users in the implementation of

ASCII is effected in several ways. First, new standards based on ASCII are coordinated with representatives of state governments prior to being approved. Second,

state governments are on the automatic dis- tribution list for completed ASCII standards. Third, State and local government

computer installations are represented on

the FIPSCAC and on some of the FIPS

Task Groups where ASCII is considered

through their professional associations. National Association of State Information Systems (NASIS), and Government Management Information Systems (G-MIS). Many

State and local governments have adopted

ASCII as a standard for their own use.

Vendors of Computer Products and Services

The Federal Government is the largest

single computer user in the United States.

It possesses about 4.5% of the nation's

computers. If these were combined with

State and local governments and other

computer users who employ ASCII and

used as a single purchasing block, considerable marketplace leverage could be exercised.

International ADP Community

The international ADP community also is influenced by the U.S. Government adoption of ASCII. The influence is exerted in several ways. First, many copies of the

ASCII FIPS PUBS are purchased abroad.

Second, many American producers of computer products that reflect the ASCII

standards sell their wares abroad. Third,

many of the U.S. companies that are influ- enced by the Federal Government ASCII

Standards are, in fact, international companies that do business with the U.S. Government.

Relevant Circumstances: Byte oriented, as contrasted with pure binary, computers were intro- duced in the early 1950's. In such computers,

each byte (group of bits) represent a character.

The set of all such characters, together with

their associated bit patterns, are referred to col- lectively as a character code or simply a code.

• Pre-ASCII Codes

A character code used extensively in computer design in the 1950's and early 1960's was binary coded decimal (BCD). This code

has 6-bits permitting the representation of 2^ or 64 different characters. The BCD

characters consist of the letters of the al- phabet (upper case only), the decimal digits, punctuation symbols, and special symbols such as parentheses, plus and minus

signs and asterisk. For historical reasons,

the bit patterns assigned to these symbols

are related to the way in which the symbols

are coded on punch cards.

BCD is still in use today, and there are sev- eral versions of it differing from one

another. The differences affect even the bit patterns associated with the 51 characters

used in American National Standard FORTRAN. These differences cause difficulties in transferring programs from one BCD

computer to another even when standard

FORTRAN is used.

Other 6-bit codes that were used extensively were FIELDATA and XS-3, and at least one of these, FIELDATA, is still in use today.

In order to transfer information (data, pro- grams, files and character coded control

signals) from one computer to another using

a different character code, it is necessary to translate from one code to the other. The

translation may be simple or complex depending upon whether the elements of the

two character sets correspond in a one-to- one manner.

Programs written in higher level languages

are generally expressed in terms of characters, and are intended to be independent of

just how those characters are coded on particular computers. There is a difficulty with

this, however, since the results of a program comparison depend on the collating

sequence of the character set employed,

and this in turn is determined by the

character code. Thus, unless special precautions are taken in writing comparisons, a program in a higher level language will not run correctly on a machine with a different

49
character set, even when character-bycharacter translation is performed correctly.

• Voluntary Standardization of ASCII

The difficulties caused by differing character codes have been recognized in voluntary

standards making bodies in both Europe

and the United States, and efforts to develop a standard code were begun in the

early 1960's.

In the United States it was felt that the demand for a code that would accommodate

both an upper and a lower case alphabet was so compelling that the standard code

should have at least 7 bits. Such a code

could be used in the new 8-bit computers

then being designed. Moreover, if the code were restricted to 7 bits, it could be used

also in the new telecommunications systems

which were then beginning to proliferate.

Thus, a 7-bit code was agreed upon. Since

the trend for new computers was from 6 to 8-bits, it was considered unnecessary to standardize a 6-bit code in addition.

The result of the U.S. voluntary standardization effort was the ASCII code. It was issued by the United States of America

Standards Institute (USASI), the predecessor of ANSI, in 1963 and revised in 1965,

1967, and 1968.

ASCII is a 7-bh code with 2^ = 128 characters. Ninety-four of the characters are graphic symbols (upper and lower case al- phabet, decimal digits, punctuation and

special symbols), 32 are used for control

functions, and the remaining two are "space" and "delete."

The adoption of ANS X3. 41-1974 (Code Extension Techniques in 7 or 8-bits) made

ASCII fully compatible with 8-bit computers and also provided an extension capability for ASCII that is non-existent with any

other widely used code.

An alternate assignment of the 128 ASCII

bit patterns is known as an extended set, and the assignment of a complete table of

256 8-bit patterns as an expanded set. Extended sets suitable for use with ASCII in special applications are being registered.

Provision is made, through the ASCII control characters SO (Shift Out), SI (Shift In) and ESC (Escape) to employ such character

sets with a minimum of inconvenience.

The representation of the ASCII Code on 9

channel magnetic tape was standardized at

the same time as the code itself. There is no standard way of representing ASCII on

the 7 channel magnetic tape commonly

used with computers employing 6-bit codes, nor is one expected.

The International Organization for Standardization (ISO) issued standard codes at about the same time. There were two of

them—the ISO 6-bit code and the ISO 7-bit code. ASCII is identical with the English

language version of the ISO 7-bit code.

• Federal Government Action

One of the first actions undertaken by NBS

in fulfilling its responsibilities under the

Brooks Bill was to adopt the ASCII Code as

a Federal Information Processing Standard.

Implementing instructions for the use of the standard are given in FIPS PUB 7. Its principal provisions are:

• All computers and related equipment

configurations brought into the Federal

Government inventory on and after July

1, 1969, must have the capability to use

the Standard Code for Information Irp

terchange and the formats prescribed

by the magnetic tape and paper tape

standards when these media are used.

• The ASCII character set and implementing input/output media standards

shall be used whenever data is interchanged between two installations

which have equipment conforming to the standard.

• When a system conversion of any magnitude is planned (new or more powerful hardware, machine-independent

software or, especially, remote-access

operation), an agency must not only

acquire the prescribed hardware or

software capability, but must include in

its plans the actual introduction of

ASCII character set, code, media, and

j sequence standards as soon as considerations of economics and personnel

permit.

If instances arise in which an agency cannot comply with the provisions of the standard, the head of the agency is authorized to waive application of these instructions.

Generally, two conditions apply in those ex- ceptional cases which would warrant waivers:

(1) Significant, continuing cost or effi- ciency disadvantages will be encountered by the use of ASCII,

50
(2) The interchange of information with

other systems is minimal and is ex- pected to remain minimal.

All waivers and the reasons, therefore, will be coordinated with the National Bureau of

Standards sufficiently in advance of final

agency authorization that NBS may consider the impact of the decision on the Federal standards program, and the signifi- cance of the action with respect to future

national standards participation.

• IBM Action

IBM had originally intended to use ASCII

as the internal code for system 360, and a preliminary announcement had been made

to that effect. When the computer finally

appeared, however, the 8-bit 264 character

Extended Binary Coded Decimal Inter- change Code (EBCDIC) was used in its place. IBM subsequently offered a data in- terchange software package that translated

between ASCII and EBCDIC.

The failure of IBM to support ASCII as its corporate standard has had a major impact on the marketplace and users, both government and non-government. This action

by the dominant manufacturer has kept

ASCII from achieving the maximum benefits as foreseen in the objectives of its early

development.

Impact: ASCII was the first standard issued

under the Federal Information Processing

Standards Program having been approved by

President Johnson on March 11, 1968. It is also perhaps the most fundamental since a character

code underlies all computer hardware and

software, and a character code standard serves

as the basis for many other standards. Accordingly, in the fall of 1972, after four years experi- ence with ASCII it was decided to evaluate it as

a Federal Standard. This was the first time the

Department of Commerce had attempted to evaluate systematically and comprehensively the

significance and impact of a Federal Information

Processing Standard since the Congress as- signed the responsibility for developing such

standards to the Secretary of Commerce in 1965. ASCII was the only Federal Information

Processing Standard with which there liad been

enough experience up to that time to warrant

such an evaluation.

It was decided that the evaluation should be

carried out by a new FIPS Task Group, luiinber

12, organized as a public advisory committee

and having representation from non-Federal

Government computer users, computer

hardware and software vendors and professional ADP societies as well as Federal Government

employees.

The starting point of the evaluation was the

FIPS TG 12 Charter. In the charter the Task

Group was given the general objective of advising the Secretary of Commerce on matters re- garding:

• The effect of ASCII as a means for increasing the efficiency of Federal computer utili- zation, and

• The extension of the implementation of

ASCII required to enable it to meet its in- tended objectives as stated in FIPS PUBs

1, 2, 3, and 7.

In addition, the charter identified six specific is- sues for the Task Group consideration as fol- lows:

(1) FIPS PUB 7 provides implementation in- structions for ASCII and its representation on perforated paper tape and 800 cpi

magnetic tape. These instructions state

that all computers and related equipment

configurations brought into the Federal

Government on or after July 1. 1969. must

have the capability to use ASCII and be

able to receive and generate data on 800

cpi magnetic tapes and perforated paper

tape recorded in ASCII. Federal departments and agencies have already been

queried for an initial determination of tlie extent of ASCII implementation. Later

queries will address associated conversion

difficulties and other related problems.

(2) FIPS PUB 7 also states that ASCII shall be used whenever data is interchanged be- tween two installations which have equipment conforming to the standard. The extent that ASCII is specified in these inter- change situations will be identified.

(3) FIPS PUB 7 specifies those ASCII related

character sets that are permissible for Federal use (i.e.. basic set. subsets, ex- tended sets, and expanded sets). Flie pre- sent use of these allowable sets and re- lated standardization or implementation

problems will be determined.

(4) FIPS PUB 7 provides procedures fi)r obtaining waivers on implementing ASC^ll

standards. The effectiveness of these pro- (•edures for standards management will be

ascertained.

51
(5) FIPS PUB 7 states that existing computer

systems would be converted to ASCII on

an evolutionary basis as equipment is re- placed, reprogrammed, or redesigned. The

extent to which this has occurred will be

determined.

(6) ASCII is a fundamental standard in that it provides a base line for the derivation of a family of uniform standards. Other standards necessary to achieve increased compatibility will be decided.

The Task Group approach to carrying out its re- sponsibilities under the charter was to survey

Federal Government computer users, nonFederal Government computer users, and computer vendors. To this end three working groups were established—one to survey each of the

three target populations. As a result of the sur- veys, TG-12 developed the following comments

on the six specific points listed in its charter:

(1) Federal agencies have made significant

progress in the acquisition of ADP equipment having ASCII capability.

The actual use of ASCII, however, appears to be proportionately less than might

be expected from the capability that

exists, except in the telecommunications

environment.

(2) The fraction of active data interchanged

between installations is small. Whenever

data is interchanged between two installa- tions which have equipment conforming to the standard, the use of ASCII is very low

except for telecommunications.

(3) With the exception of the telecommunications environment, the present use of

ASCII character sets in active data is negligible. Of those allowable subsets, the 64

character set has more frequent use. EBCDIC (the IBM Code) appears to be

used more extensively than ASCII. Insufficient tables and guidelines exist to assist agencies in converting to and from a vari- ety of non-ASCII codes and ASCII. There

are insufficient graphics to meet all user requirements; definition of this requirement is a limiting factor.

(4) The waiver procedures are subject to broad interpretation and allow each

agency to determine its own course of ac- tion with respect to ASCII implementation. The effectiveness of these procedures could be improved by providing more specific policy/guidance.

(5) The evolutionary conversion to ASCII as equipment is replaced has made some

progress, i.e., hardware capability is being

acquired. There has been very little conversion as a result of reprogramming and

redesigning of systems.

(6) Subsequent to the Secretary of Commerce

Charter for FIPS TG-12 a new Federal In- formation Processing Standard "Objectives

and Requirements of the Federal Information Processing Standards Program" was

issued dated February 15, 1973. This publication identifies standards and guidelines

that may be essential for implementation

of ASCII. TG-12 findings did not reveal

additional areas for standardization.

In addition, the Task Group developed a list of

five findings which it identified as "Advice on

Matters Regarding ASCII":

(1) The multi-code environment is here and

will remain for some time;

(2) Modern technology facilitates continuance

of the multi-code environment;

(3) There is a valid mono-code environment of undetermined extent;

(4) There are national and international standards to support the mono-code environment; and

(5) The impact of economic versus innovative

technical growth is not adequately known.

The Task Group Report was reviewed by the

FIPSCAC, the ICST Evaluation Panel, an ad

hoc panel of five senior ICST staff members es- tablished specifically for the purpose, and many

individuals.

All of the reviewing bodies and most of the indi- viduals felt that although the data developed by

TG-12 was valid, its interpretation as given in the findings understated the impact of ASCII. In support of this point of view, the following observations have been made.

• ASCII is the dominant code used in tele- communications (TG-12).

• Three-fourths of the new minicomputers

being offered use ASCII as an internal

code (Auerbach report). Most new Government mainframes acquisitions are minicomputers.

52

{
• Two of the manufacturers on large scale

computer mainframes (NCR and DEC)

use ASCII as an internal code. The re- mainder read, write and process ASCII

using vendor supplied software.

• In connection with its Standard Forms

Program and National Archives and Records Service requires that applicable

Federal Information Processing Standards including ASCII be used.

• In reports from the regulatory agencies,

the General Accounting Office requires

that Federal Information Processing

Standards including ASCII be used.

All reviewers agreed with TG-12 that FIPS PUB 7 should be rewritten to provide more specific guidance to Federal agencies.

More specific guidance has been written. It is contained in proposed FIPS PUB 1-1 which will super- sede both FIPS PUB 1 and FIPS PUB 7. This

proposed FIPS PUB was submitted to Federal

agencies for information and comment on November 25, 1975, and was published in the Federal Register to solicit the views of members of the private sector on December 29, 1975. It reaffirms

the continued use of ASCII as a Federal Standard

and provides revised implementing instructions.

Funding Profile: FY 1966 $50,0003

FY 1967 50,0003

FY 1968 50,0003

FY 1968 50,0003

FY 1969 50,0003

FY 1970 41,0003

FY 1971 41,0003

FY 1972 41,000

FY 1973 20,000

FY 1974 20,000

FY 1975 14,000

FY 1976 14,000

^ Estimaled figures. Thefigures include ICST funded work with ANSI

and ISO that directly supports the Federal Government ASCII effort.

6.3. Computer Peripheral Interface Standards

Assigned Responsibility Addressed By This Effort: Public Law 89-306 (the Brooks Act) provides NBS

with responsibility for establishing uniform Federal

standards enabling the economic procurement and

efficient utilization of ADP facilities.

Executive Summary: This project is primarily in- volved with the establishment of Federal standards

that define the interfaces between peripheral devices

and their controllers as well as between controllers

and data channels or central processor units. These

interface standards will enable the independent

competitive procurement of ADP peripheral components as well as the configuration of ADP systems

employing peripherals drawn from the Federal inventory. In support of the standards development effort, this project is also involved with the conduct of technologic and economic analyses. Examples of

these analyses include: (1) evaluating computer sys- tem architectural trends to forecast the location and

nature of future interface points, (2) assessing the

Government's continuing experiences in the pro- curement, operation, utilization, and maintenance of

ADP systems furnished by multiple suppliers, and (3) analyzing the comparative life-cycle costs associated

with single-versus multi-vendor ADP installations. Date Initiated: FY 1966

Date Terminated: Continuing

Goals and Objectives: The goal of this project is to minimize the overall life-cycle costs associated with

the procurement and utilization of ADP systems

within the Federal Government by enabling the configuration of central processing units and peripheral

components from independent and competitive

sources. The objectives include the establishment of

a family of device specific and device independent

peripheral interface standards.

Products:

(1) Report by the Center for Computer Sciences and

Technology, National Bureau of Standards entitled Means of Achieving Interchangeability of Computer

Peripherals, dated March 1972.

(2) Guideline for Planning, Selection, Installation,

and Operation of Multi-Vendor Computer Systems,

scheduled December 1976.

(3) Standard for Minicomputer—Device Level Inter- face, scheduled September 1977.

(4) Standard for Computer Channel Level-Device

Controller Interface, scheduled September 1977.

(5) Standard for High Performance Disk Drive/

Controller Interface, scheduled July 1978.

Recipients of Products:

• Government ADP installation managers.

• Government ADP procurement specialists. • ADP industry (major system suppliers and independent suppliers of peripheral components).

Relevant Circumstances: Conferences were held in September 1969 at Charlottesville, Virginia, and in July 1970 at Myrtle Beach, South Carolina, to for- mulate Federal Government policies and priorities

with respect to ADP procurement, standards, and

53
other timely critical issues. Both conferences were

attended by over 40 top management officials from

a dozen Government agencies, the Interagency

Committee on ADP, the General Accounting Office, and various segments of the computer industry, including system suppliers and independent

peripheral suppliers. Both conferences

confirmed "the continuing urgency for appropriate I/O interface standards that would provide

the flexibility needed by users for the selective

configuration of computer systems to achieve re- quired performance at least cost and facilitate

multi-vendor procurements."

In spite of these clear expressions of Government

(and other user) interests and ignoring repeated

pressures from NBS over the next several years, the major ADP system suppliers recognized that

the establishment of peripheral interface standards

would lead to erosion of their markets; they successfully avoided making progress in the development of standards.

Among the more significant findings of the 1972

NBS report entitled "Means of Achieving Inter- changeability of Computer Peripherals" was that

". . . The Federal Government should increase its support to voluntary national and international

standards development activities." Acting in support of this recommendation, NBS has increased

the commitment of resources and directed concurrent efforts at several levels within the voluntary

standards development arena.

During 1973, for example, largely in response to NBS urging, both X3 and X3T9 were encouraged

to solicit broader representation and to include

Computer Industries Association (CIA) and

peripheral equipment suppliers among their re- spective memberships. Similarly, through direct contacts with the CIA constituency, NBS encour- aged increased participation by the peripheral

suppliers in ANSI standards activities. As a result of these and other NBS efforts at both the X3 and

X3T9 levels during early 1974, the U.S. position

with respect to the Japanese proposed international channel level interface standards was re- versed; X3T9 focused attention on technical issues

and began to work constructively on the development of an international standard. Technical

evaluation of the Japanese proposal, followed up

by a meeting with the Japanese in July 1974 (arranged for by NBS) led to the development of a number of minor improvements to the Japanese

proposal that were accepted by ISO/TC97/SC13 at

its meeting in October 1974. During 1975, at the

instigation of the Computer Industries Association

participants on X3T9 (and with NBS support), the

committee initiated action to draft a proposed

American national channel level interface standard

based upon the IBM System 370 channel-tocontroller interface specification. This document is presently the subject of an X3T9 letter ballot—for

consideration of being forwarded to X3 for further

processing.

In addition (also in response to earlier NBS efforts), X3T9 initiated work on minicomputer inter- face standards by constituting a task group

(X3T92). At its first meeting during February 1975,

this task group determined that it would focus on

the development of device level interface standards and established a program of work that identified some 12 candidate device types for consideration.

As a normal activity associated with standards

committee participation, NBS has drafted and

submitted a number of technical memoranda and

proposals for resolving various issues at the

X3T92, X3T79, and X3 levels.

While the results of these ANSI and ISO interface

standards activities are as yet incomplete, it appears clear that the increased level of NBS par- ticipation in these activities over the past two

years has been a significant factor in determining

their present direction. ANSI X3 approval of the

proposed American national channel level interface standards appears likely within the next year

and this should be suitable for adoption as a Federal standard. The channel level interface standard

is one member of the family of standards recognized by the 1972 NBS report as being needed for achieving interchangeability of computer peripherals. Other members of this necessary family of

interface standards appear likely to result from the . effort of the X3T92 task group in its approach to the development of device level standards for

minicomputers. Whether or not the entire family

of required standards will eventually be approved

as American National Standards is of course criti- cally dependent upon the willingness of the major

U.S. computer mainframe manufacturers to accept

and voluntarily build to such standards; it is not

presently clear that a sufficient industry-wide con- sensus exists to accomplish the necessary degree

of voluntary standardization. Meanwhile, the Government may employ those interface standards

that are produced with increasing leverage toward

the objective of successfully procuring and using

the least expensive ADP facilities that satisfy its requirements. In addition, the Federal Government

may develop or adopt interface standards at its own initiative, coordinating such development

through the FIPS Task Group on ADP Interface

Standards identified below.

Although the major ADP system suppliers have

consistently opposed and until recently successfully prevented the development of peripheral

interface standards, it appears that efforts of the consumers (including NBS) and lately the CIA may

produce some meaningful results. Meanwhile, beginning in about 1972, and in part as a result of

| technical assistance provided by NBS, the Gov- / ernment has accrued savings of about $120 million

54
by procuring plug compatible replacement (tape,

disk, and memon i peripheral components employing the mandator)" requirements contract as a pro- curement vehicle.

During early 1975 additional resources were made

available to XBS. making it possible to formulate a renewed four task program to provide a better

focus for both the ( internal i Government and (external) industr>" efforts to achieve peripheral inter- face compatibibty. The first two parts of this XBS

program estabUshed a FIPS task group to provide

a mechanism for assessing the Government ex- periences ^\ith multi-vendor ADP installations and

produce a FIPS Guideline clearly stating the means for avoiding or resolving frequently reoccurring problems. The third part of this XBS program

estabhshed a contractor effort leading to the identification of the degree de facto interface standardization already achieved in the manufacture of high performance disk drives. The results of this contract effort should be useful in the documentation of a device level standards proposal for consideration by AXSI. The fourth part of this XBS

program proposed the conduct of several specific

economic and technological efforts—namely, life- cycle cost comparisons for single versus multivendor ADP installations and ADP system ar- chitectural trend analyses to identify future inter- face points amenable to standardization and to clearly understand the architectural impact of pro- posed standards.

This effort was designated as a joint XBS/GSA

Interface Program, and GSA enthusiastically

agreed to provide support in accomplishing two

parts of the four-part program—participating in the

FIPS task group and performing the life-cycle cost

analysis.

The GAO report on the "Study of the Acquisition

of Peripheral Equipment for Use with Automated

Data Processing Systems" issued on June 24.

1969. recommended that immediate steps be taken

by agencies of the Executive Branch—"requiring

replacement of leased components that can be re- placed with more economical plug-to-plug compatible units. " Supporting this recommendation, it was estimated that the Government could potentially save as much as SlOO million. The report

recognized that the establishment of computer

peripheral interface standards would be an important step in promoting additional competition in the computer industn.

As noted previously, even without the establishment of interface standards, but by employing the

mandator) requirements contract, the Government

has accrued savings in excess of S120 million since

1972. Xow. it is anticipated that some degree ot industry standardization may be achieved and that within the next year at least two ANSI standards

can be produced. Thus, it appears that future savings far in excess of those originally estimated by

GAO may be possible.

Funding Profile:

FY 1966

FY 1967

FY 1968

FY 1969

FY 1970

FY 1971

< 5.000

35.300

32.600

32.000 est. 32.000

2.000

FY 1972

FY 1973

FY^ 1974

FY 1975

FY 1976

S15.000

9.600

45.100

96.300

97.100

6.4. Remittance Processing System

Assigned Responsibility Addressed by this Effort:

This work involved the application of computer

science and technology in meeting specific operational needs for furthering the economy and effi- ciency of essential Governmental functions and was clearly under the purview of P.L. 89-306 as directed by 0MB guidance.

Executive Summary: Every year nearly a hundred

million Federal tax returns are processed at the

ten Regional Internal Revenue Service Centers. ^ bile many steps are involved in processing each

return, those steps associated with depositing tax- payer remittances have a high sense of urgency as prompt deposits save interest costs on money that the Treasury would otherwise have to borrow.

Necessary functions included computer entry and

subsequent verification of data from tax documents, printing an audit trail number and amount

on remittances, endorsing the remittances, preparing deposit listings and marking the original documents with a locator number to facilitate future retrieval.

Internal IRS studies had indicated potential advantages could be realized through consolidation and

additi(uial automation of some of these functions.

When solicitation of the private sector proved un- successful. IRS requested that the Institute for Computer Sciences and Technology undertake the

development of a prototype Remittance Processing

System that would interface with the existing IRS

data processing system and would consolidate a number of the required steps at a single work station, eliminate duplicate transcription, speed posting time and facilitate reconciliation of listings.

The prototype was to be installed and tested at an IRS Service Center, and if successful, would serve

as the basis for preparing specifications lor the

competitive procurement ot production equipments

in sufficient quantities for all ten Regional Service

Centers. A prototype Remittance Processing System was

developed througli the integration of a number of

((unmercially available components and subsystems and was installed at the Pliiladelphia Regional IRS Service Center during the summer of

55
1973 for test and evaluation. These tests extended

over many months and encompassed the regular

quarterly IRS load peaks. During this period, a number of design improvements were implemented

by ICST, while routine maintenance was provided

by a private sector contracting arrangement.

At the end of the test period the IRS response was

so overwhelmingly favorable that NBS was re- quested to continue the contracted maintenance so that the prototype system could continue to be

used operationally until it could be replaced by

production equipments. NBS agreed and undertook the preparation of procurement specifications

in close cooperation with the sponsor. A procurement action followed and it is anticipated that

ICST will continue to provide technical assistance

in connection with contractor selection, contract monitoring and acceptance testing of the production Remittance Processing Systems.

Date Initiated: August 1971

Date Terminated: Project not terminated; esti- mated termination date: September 1977.

Goals and Objectives: To develop and fabricate a prototype Remittance Processing System to prove

a new IRS "concept" for the processing of tax- payer remittances and provide a basis for the development of technical specifications for the commercial procurement of sufficient devices to equip

all ten IRS Service Centers.

Products: A functional work station reflecting ex- tensive human engineering that interfaces to the

IRS Direct Data Entry System (DDES) computer

complex as a terminal. Tax documents are delivered to the terminal operator in batches which are termed blocks. For each document, the operator

keys in a small amount of selected information.

The DDES computer responds by displaying at the

terminal the full set of data fields which had been

originally entered at an earlier processing step.

The operator verifies the accuracy and, if necessary, corrects the original entry data. Upon receipt

of the verification signal, the computer transmits a number of data elements to the terminal printing

mechanisms and notifies the operator to proceed.

The operator inserts the remittance in a slot where

it is transported to a printing mechanism which

prints the amount on the face of the remittance

and an audit trail and endorsement on the back.

The remittance is then transported to an output

stacking hopper. The operator then inserts the tax document or package of documents in another slot where a label carrying a printed Document Locator

Number is affixed in a prescribed location. Concurrently, another printing mechanism prepares a multiple copy listing of the remittances

which serves the function of a deposit slip. The

processing speed is approximately five remittances

per minute.

Recipients of Products: IRS Regional Service Centers are the primary recipients of this product. All taxpayers are indirect beneficiaries as a result of

the reduction in processing costs to IRS. In addition, NBS gained valuable experience in interfacing a complex computer terminal system on an al- ready existing computer and terminal complex in such a manner as to preclude any electronic inter- ference in or with the existing complex.

Relevant Circumstances: There were a number of

particularly challenging technical problems in- volved in the development of the Remittance Pro- cessing System. Of these, the more significant were problems involving the printing of the Document Locator Number on tax documents, interconnecting the system to the existing complex,

and, finally, human engineering the work station. Tax documents to be handled by the Remittance

Processing System may range from a single small

sheet of paper to a thick stack of large sheets.

Each must be assigned a permanent 14-digit

Document Locator Number which serves as an

identifier and facilitates retrieval. Impact printing was considered, but the difficulties associated with

the variable packet thickness made this approach

unattractive. Ink jet printing could accommodate

the required range of packet thickness but did not provide the necessary permanence and smear re- sistance when used on some types of paper. The

solution finally adopted was to print the number on

a strip label which was then cut and attached to the document using heat sensitive adhesive. The

implementation of this approach required the design of special electromagnetic, thermal and

pneumatic mechanisms which ultimately provided

a viable solution to the problem.

In interconnecting the Remittance Processing System to the existing IRS computer and terminal

complex, it was mandatory that under no cir- cumstances, including catastrophic failure of the

prototype, should the normal operation of the

existing complex be impaired. In order to provide

the necessary degree of electrical isolation and

protection, optical coupling was used to connect to the data communication links of the computer

complex. This proved to be completely effective

and no prototype malfunctions have adversely af- fected other system functions.

For the operators' work station, it was necessary

that there be convenient access to a keyboard and

a number of special controls and access to the

mechanisms for printing remittances and document locator numbers. In addition, good operator

visibility was required for both a soft display ter- minal, special status displays and the outputs of

three printing devices. Finally, space had to be

provided to accommodate the blocks of working

documents. Numerous mock-up arrangements

were configured and one was selected which has

proved to be near-optimum as judged by operator

acceptance.

56
Impact: The Remittance Processing System has

proved to be a highly successful project. The RPS

combines what were formerly six individual pro- cessing procedures. Tests on the prototype have

demonstrated that the productivity of IRS personnel using this system is increased by a factor of

six. Processing time and error rate have both been

reduced by a factor of two. Its use permits a full audit trail for the first time and facilitates the pro- cessing of any necessary tax return related corre- spondence. Full implementation of this system

with approximately 300 terminals distributed

nationwide in the 10 IRS Regional Service Centers

will result in annual cost avoidance of over

$3,000,000. For the private sector, it was a prerequisite to issuance of a commercial contract es- timated to exceed $5,000,000 in value.

Funding Profile:

FY 1972 $400,000

FY 1973 524,000

FY 1974 348,000

FY 1975 236,000

FY 1976 186,000

6.5. Performance Measurement of Computer

Networks

Assigned Responsibility Addressed By This Effort: Advisory and Consulting Services. Research on Computer Sciences and Techniques.

Executive Summary: This project is directed to- wards developing an acceptable method of evaluating computer networks and network services. The

principal outputs are tools and techniques for per- forming this evaluation, and guidelines for Federal

agencies to assist them in using these or other

available techniques for their evaluation.

Performance evaluation is approached from the

point of view of the service delivered to the end

user of the system or the customer for the service.

New models of this type of performance have been

developed, and new measurement tools and techniques have been produced to implement these

models. Procedures have been developed both for empirical measurement and measurement under

controlled conditions.

Assistance has been provided to a number of

agencies in applying these and similar procedures

to the measurement of systems and services for the purposes of procurement or service improvement efforts. The first in a series of FIPS

Guidelines in this area has been circulated to agencies for comment. A cooperative program with

GSA in the area of remote terminal emulation

(measuring systems and services under controlled

conditions) is underway and expected to provide

the foundation for new Federal procurement policy.

Date Initiated: May 1971

Date Terminated: Currently active

Goals and Objectives: The objectives of this project

is the development of guidelines for Federal agencies on the measurement of computer network sys- tems and services to provide a basis for the or- derly selection, procurement, and improvement of

such systems and services. Source selection techniques for comparing and predicting the perform- ance of large teleprocessing computer systems will be developed, within the overall objective of reducing the time and costs of comparative evaluation

for system source selection.

Products:

(1) Performance Measurement of Remote Access

Computer Systems, M.D. Abrams, (NBS Report 10 381) 1970.

(2) Performance Measurement of Remote Access

Computer Systems, published in Bui. Electrotech. Lab. (Tokyo), 1970.

(3) Paper describing NBS work presented at IEEE Workshop on System Performance

Evaluation held at Argonne National Laboratory, 1971.

(4) A presentation was made to a plenary session

of the Computer Utilization Group at the Organization for Economic Cooperation and Development, Paris, on the state-of-the-art of

computer performance evaluation in the

United States. March 1972.

(5) A paper, "Measuring and Modeling ManComputer Interaction," was presented at and

appears in the Proceedings of the First Annual SIGME Symposium on Measurement

Evaluation. March 1973

(6) A special connection to the MEDLINE system

at the National Library of Medicine (NLM)

was installed with the full cooperation oiF NLM

staff. This connection employs the "data

coupler," a new hardware device for full duplex recording that has been designed, constructed and installed by ICST staff. The

Network Measurement Machine has also been

used to collect data related to the use of MEDLINE by terminal users at the University of Hawaii and other locations on the ARPA Net- work who access MEDLINE on a regular basis

through the NBS-ARPA Network node. June

1973.

(7) Preliminary resuhs of the MEDLINE Measurements were reported in a paper entitled

"Performance Measurements of Computer57
Communication Networks" given at the

NATO Advanced Study Institute on Computer Communications Networks held at the

University of Sussex in England. September

1973.

(8) The special facilities for connecting the NMM

to the NBS Univac 1108 were installed. March

1974.

(9) A paper describing the NMM was delivered at the Annual Meeting of the American Association for the Advancement of Science. March

1974.

(10) A paper "Computer Comrriunications Network

Performance Measurement" was accepted for EUROCON '74 and appeared in the proceedings of that conference. March 1974.

(11) A paper "Measuring Service Delivered in In- teractive Computing" apppeared in the Pro- ceedings of the Second Jerusalem Conference

on Information Technology. March 1974.

(12) A paper, "A New Approach to Performance

Evaluation of Computer Networks," was pre- sented at the NBS IEEE Symposium, Computer Networks: Trends and Applications.

June 1974.

(13) A series of internal papers documenting the

design of the Terminal Environment Simulater (TES) was completed. A working baselevel TES was demonstrated by interconnecting the Network Access Machine (NAM) with

the Network Measurement Machine (NMM) in order to access a remote system and control

the dialogue sent to that system. September

1974.

(14) A meeting was held with NBS/ICST, the Air

Force, ESD/MCS, (Hanscom Field), and

CBEMA regarding use of the Air Force's Remote Terminal Emulator systen in procurements in an attempt to resolve technical and

policy issues on the use of the Air Force RTE

in computer procurement. September 1974.

(15) Following several meetings with personnel

from GSA, an ad hoc committee was formed

with the objective of gaining GSA acceptance

of application of measurement drivers (of

which the Terminal Environment Simulator is a sample) in teleprocessing network procurement. An outline for a position paper was

prepared. A draft was completed by ICST

technical staff and used for subsequent dis- cussions. December 1974.

(16) A paper, "Consumer-Oriented Measurement

of Computer Network Performance," was

presented at the National Telecommunications Conference and was published in the

proceedings. December 1974.

(17) Validation of the NMS Data Analysis Package was completed. Validation procedures for the

NMM were designed, implemented, and

tested. March 1975.

(18) Summary statistics for 69 interactive (demand)

conversations with NBS Univac 1108 were

produced and presented to the Computer Services Division. June 1975.

(19) The Service Concept Applied to Computer

Networks, M. D. Abrams and I. W. Cotton,

(NBS Tech. Note 880) 1975.

(20) The prototype Terminal Environment

Simulator was applied to two time-sharing

services, include the NBS UNIVAC 1108. A

script was executed on each system 100 times

during different user loading and times of

day. An internal report describing the procedures and resulting statistics was written.

September 1975.

(21) A meeting was held between the research as- sociates and Dr. Paul Oliver of the Navy's

ADPE Selection Office ADPESO). The pros"

and cons of using a remote terminal emulator

(RTE) in the selection of large teleprocessing

systems were discussed. September 1975.

(22) A predictive response time algorithm for computer network services was designed and

tested by a series of experiments employing

the DEC System-10 and the Network Access

Machine. September 1975.

(23) Interpretation of Data in the Network Measurement System, S. W. Watkins and M. D. Abrams (Tech. Note 897), 1976.

(24) The Network Measurement Machine—A Data

Collection Device for Measuring the Perform- ance and Utilization of Computer Networks,

R. Rosenthal, D. E. Rippy, and H. N. Wood

(Tech. Note 912), 1976.

(25) A draft of the FIPS Guideline to the Selection

of Interactive Computer Service Delivered

Through Computer Networks was released for external review. February 1976.

Recipients of Products: This project was initiated

under the Brooks Act mandate to provide scientific and technical advisory services to other agencies

in the efficient and effective selection and use of

ADP equipment. These agencies, through direct

contact with NBS and through the technical re- ports and guidelines issued, and to be issued, are

the primary recipients of the products of this project.

58
GSA is a direct recipient of NBS technical expertise in this area. As confirmed by a letter from Dr. Ruth Davis to Mr. Theodore Puckorius, dated May

4, 1976 NBS is supporting GSA's Project Plan for incorporating the use of remote terminal emulation

in the Federal EDP procurement process.

Relevant Circumstances: It is well recognized that one of the critical leverage points in ensuring the

effective and efficient use of ADP equipment by

the Federal Government is at the procurement

stage. At this point, the Government is best as- sured that it procures the systems and services

meeting its needs at least cost. This requires some means of measuring the performance of alternative

systems and services, in order to compare them

with each other and with Government requirements. However, there is currently not a satisfactory method for live-testing or predicting the per- formance of computer network systems or services

satisfactory to both the vendor and the Government in the competitive procurement environment.

This problem area has been mutually identified by

both computer system and service vendors and the

Federal Government as a critical issue, solution to which would enhance the rational decision making

process in the procurement process. Such a capability could also be applied to system improvement

efforts.

Impact: A minicomputer-based Network Measurement System has been developed in support of the

development of guidelines and assistance to Federal

agencies. Terminology is being defined and

employed to identify acceptable criteria which per- formance measurement tests should meet. A FIPS guidehne has been prepared on the selection

of interactive computer services delivered through

computer networks. It is currently being circulated

for comment among Federal agencies prior to being

formally issued. Specific assistance has been pro- vided to a number of agencies in preparing for the procurement of improvement of network systems or

services. Technical inputs are currently being pro- vided to GSA to be used in the formulation of new

Federal procurement policy for such systems and

services.

This work will provide sufficient measurement techniques and guidance to implement existing policy

concerning procurement of ADP according to functional capability.

Funding Profile: FY 1971 $ 11,000

FY 1972 73.100

FY 1973 104,300

FY 1974 119,100

FY 1975 212,200

FY 1976 244,400

6.6. Data Encryption Standard

Assigned Responsibility Addressed by this Effort:

• Organic Act: Promote strength in science and

technology for the public benefit

• Brooks Act and 0MB Implementation Guidance: —Provide scientific and technological advisory

and consulting services to executive agencies on

automatic data processing —Recommend Federal standards related to au- tomatic data processing equipment —Make ongoing research and development known

and available to Federal agencies

• Executive Order 11717: Set Government-wide

standards

• 0MB letter (12 March 1972): Work with industry on

Federal computer security requirements and solu- tions

• 0MB Circular A-108: Issue standards and

guidelines on computer and data security.

Executive Summary: A Federal Information Processing Standard has been recommended for the cryptographic protection of computer data. The end product

of this effort will be a uniform method for protecting

transmitted or stored data which can be utilized by

Federal agencies and others according to guidelines

developed by NBS for use of the standard. Encryption may be used to protect against threats of computer fraud, accidental or intentional undetected

modification of data, and invasion of personal pri- vacy. High interest in and need for the standard has

been expressed in both Government and the private

sector. Electronics manufacturers are planning to produce the encryption devices implementing the al- gorithm when it becomes a standard.

Date Initiated: February 1971

Date Terminated: Continuing

Goals and Objectives:

Goal: To develop standards and guidelines for the protection of data processed in cuinputer systems.

Objective: To protect confidential and valuable data

and protect individual privacy tluougii application ot technological measures for controlling access to data

and protecting its integrity, specifically:

(1) to provide a cryptographic algi>rithm which l an

be used to encrypt and decrypt data in many applications and environments:

59
(2) to establish a standard for the cryptographic

protection of unclassified computer data while it is being communicated in computer systems and net- works;

(3) to provide guidelines for the use of that al- gorithm; and

(4) to provide a service for validating commercial

implementations of the standard algorithm.

Products:

(1) A data encryption algorithm to cryptographically protect data;

(2) A proposed data encryption standard for consideration by Federal agencies;

(3) A finalized Federal data encryption standard;

(4) Guidelines for implementing and using the

standard;

(5) Experimental hardware testbed for the data

encryption algorithm used:

(a) in the operation of an NBS validation ser- vice which determines the compliance of commercial encryption/decryption units

with the proposed Federal standard

(b) in the preparation of Federal guidehnes for use of the proposed data encryption standard in computer systems and network.

Recipients of Products:

• Federal agencies which have valuable or sensitive information requiring crytographic protection.

• Prospective suppliers of crytographic devices.

• Public ADP organizations requiring cryptographic protection.

Relevant Circumstances : NBS initiated an effort lead- ing to a proposed data encryption standard after identifying an urgent need for a method for protecting

computer data during transmission and in storage.

There were several commercial devices available

which provided some level of security but these had

not been analyzed for adequate security. A pubUc

solicitation for cryptographic algorithms was initiated by NBS and submitted algorithms were evaluated for their adequacy. The proposed algorithm satisfies the

requirements which were established for a standard.

Major emphasis was placed on making all information

regarding the standard equitably available to all in- terested parties.

Comments from Federal agencies and the pubhc

were solicited first on the encryption algorithm before

it was proposed as a standard and then on the pro- posed standard incorporating the algorithm. The is- sues of competition in the anticipated marketplace,

the methods of implementing the standard, and the procedures for effectively utilizing the standard were

addressed in the comments and the responses. The

issue of manufacturing devices implementing the

proposed standard by foreign and domestic companies outside the United States for use within the

United States has been raised by the Department of

Justice. IBM, the developer and submitter of the

algorithm, holds foreign and domestic patents which

may cover devices implementing the algorithm. The

Department of Commerce requested and IBM agreed

to grant nonexclusive, royalty-free licenses under the

patents to make, use and sell apparatus which complies with the standard. The legal staffs of the Department of Commerce, the Department of Justice

and IBM are presently preparing the wording for a revised license agreement acceptable to the parties

concerned.

The issues of implementation costs for the Data Encryption Standard and the security provided by the

standard in various application environments are

continuing to be addressed by NBS. A workshop is being convened to assess technology as it relates to the proposed standard. The results of the workshop

will be utihzed in preparing guidelines for implementing and using the standard. The guideUnes will pro- vide potential users of the standard, particularly Federal ADP organizations, the information necessary to assess the security risks which may be alleviated by

using the standard and the potential cost/risk ratios to be expected in the near future.

Impact: A recent survey of 2940 Federal general pur- pose computer systems showed that 27 percent of

them were utilizing networking or remote access. Encryption has been recommended by NBS as the means of protecting data in such an environment.

The proposed standard has already had a significant

impact in both the public and private sectors: nearly

1600 copies of the algorithm, as published in the

Federal Register, have been requested from NBS.

Both the Federal Reserve Board and the American

Bankers Association have already taken specific actions with respect to the proposed data encryption

standard. The Federal Reserve Board is testing it between several nodes of its network. The American

Bankers Association Subcommittee on Bank Cards

has recommended the adoption of the proposed

standard. Crytographic systems utilizing the data en- cryption standard may now be designed and

employed which give a significant increase in the

security of computer data. Without such a standard,

this development work would be difficult if not impossible.

60
Thus, the standard provides a universal means for secure communication of data between users of the

standard algorithm, who have estabUshed a mutual

secret encrsption key for a specific communication.

Cost sa^ings and ease of communication wiU result from the standardization and reduction of research

and development required in each agency. Agencies

exposure to fraud, costly accidents, and conse- quences of the revelation of confidential data will be

reduced.

Funding Profile: The foUowng figures are approximate, as the encry ption project involves the participation of different parts of ICST. and as no cost centers are exclusively assigned for the encryptionrelated activities within the computer security pro- gram.

FY 1973 S 7.000

FY 1974 33.000

FY 1975 52.000

FY 1976 144.000

6.7. COBOL Standards and Validation Routines

Assigned Responsibility Addressed by this Effort: This effort meets Brooks Act requirements to develop

Federal standards and comphance measures: and to support voluntan" national standards in business, fi- nancial, and administrative computer appUcations.

Executive Summary-: The National Bureau of Standards has actively participated in the development and

standardization of COBOL since its inception in 1959. COBOL was established as the first Federal

standard programming language in 1972 and was re- vised in December 1975 to adopt the revised and

improved national standard. Working with the General Services Administration and the Department of Defense, XBS estabhshed in April 1973 the Federal

COBOL Compiler Testing Service to do the first Government-wide quahty control testing of compilers.

Date Initiated: January 1966

Date Terminated: Continuing

Goals and Objectives: The NBS objectives are to in- sure that all Federal agencies achieve maximum benefits from COBOL in effective computer utihzation

and interchange through Government-wide coordination, evaluation and cooperation to advance the lan- guage development, standardization and utiUty. NBS

provides the initiative for the availabihty and dissemination of quahty control techniques to be appUed to products conforming to the standard.

Products:

(1) Federal Standard COBOL (TIPS PUB 21), 1972.

(2) Federal Standard COBOL (FIPS PUB 21-1), 1975.

(3) Interpretation Procedures for Federal Standard

COBOL (FIPS PUB 29), 1974.

(4) Aids for COBOL Program Conversion, FIPS

PUB 21 to FIPS PUB 21-1 (FIPS PUB 43), 1974.

(5) Standard COBOL Coding Form, (FIPS PUB 44

(FIPS PUB to be pubhshed).

(6) Validation of COBOL Compilers, Federal Property Management Regulation 101-32. 1305-la;

1975.

(7) The CODASYL Approach to Data Management,

Symposium, Apnl 1973.

(8) Untangling the COBOL Standards Maze, Seminar, 1974.

(9) Structured Programming in COBOL, Seminar,

1976

(10) Apprisal ofFederal Government COBOL Standards and Software Management: Survey Results,

(NBSIR to be pubhshed)

Recipients of Products: AE Federal agencies.

Relevant Circumstances: Neither the Federal Government nor NBS control COBOL development or standardization; rather, that process is ac- complished through voluntary industry efforts. NBS, however, by legislative intent, does promote

"the development and testing of voluntary commercial standards" which can be adopted as Federal standards. This NBS role is manifested by the

active participation of NBS staff members in the

industry efforts from the start of the development

of COBOL in 1959 (prior even to P.L. 89-306) and

continuing in the current NBS program. Although

no one person, agency or company has dominated

the broad-based development and standardization

of COBOL, NBS has an effective role in the process, for it was largely NBS that provided technical guidance, financial support for publications,

and—most important, perhaps—a continuing re- solve to see to completion the first attempt at a common, business-oriented language standard.

Impact: Federal computer installations using

COBOL are not hmited to a small special-interest

group of users; more than 61% of the domestic

Federal installations which have general management classification computer systems use the lan- guage. The Bureau's impact on COBOL and

COBOL usage is difficult to isolate, as its pervasiveness makes it ill-suited to measurement. During the recent history of Federal COBOL compilers testing, an order of magnitude decline in dis- crepancies has been measured. Early NBS chairmanship in key committees was a seminal factor in COBOL development. Because of the NBS resolve

to extend the Federal COBOL standard, significant

61
influence was generated to cause timely pursuit of

national and international COBOL development

and standardization.

Funding Profile: FY 1973 $69,600

FY 1974 79,700

FY 1975 141,000

FY 1976 80,000

6.8. Mechanical Translation

Assigned Responsibility Addressed by this Effort:

Research in two categories of mechanical transla- tion by computer, namely translation of artificial languages and translation of natural languages, was carried out by the Applied Mathematics Division.

Executive Summary: From experience in using one

of the first stored-program computers, SEAC, NBS

mathematicians found very early that it would be

advantageous to prepare computer programs in higher level languages and require the computer

itself to translate these into its own language. Accordingly, NBS undertook research in this field

and made early contributions to the art of compiler

and assembler design.

As computer development mushroomed during the

1950's and early 1960's there were massive efforts to automatically translate natural languages, such

as Russian into English, sponsored by both Government and the National Science Foundation.

NBS participated in this research and maintained

cognizance of other efforts.

Date Initiated: Research was started on a small

scale in 1952.

Date Terminated: Research was discontinued in 1971.

Goals and Objectives: The first NBS goal in the

mechanical translation of artificial languages was

the development of assemblers to translate symbolic language to machine language for the SEAC

and PILOT computers. A subsequent goal was the

development of compiler-level languages. In

natural language translation, the first goal was to develop a computer program to translate Russian

into English. However, as the magnitude and diffi- culty of this overall task became apparent, the

goal shifted to solving only a few of the technical

problems in translating Russian, as well as Chinese, into English.

Products: An assembler called SEBBE was developed and used by NBS programmers in solving

many problems on the SEAC. NBS personnel published key technical papers that contributed to the

development of compilers and assembly-language

libraries, and chaired working committees that

designed the COBOL and ALGOL languages. In

natural language translation, NBS published a few

technical papers as well as surveys of work in the

field that contributed to cooperative efforts

throughout the country.

Recipients of Products: The emerging computer

industry was the major recipient of NBS contributions to artificial languages. Other Government

agencies benefitted from NBS assistance and consultation in areas related to mechanical translation

and artificial languages.

Relevant Circumstances: As manufacturers began

to build compilers it became apparent to them that

to be competitive they must provide assemblers

and compilers, and some soon developed excellent

translators for symbolic languages and higher level languages such as FORTRAN and COBOL. By the

time of the Brooks Act there was no justification

for NBS to compete with the very advanced

technology in the private sector, and no further

work was undertaken. However, it soon became

clear that the standardization of artificial languages

and the validation of translator performance could

produce economies in computer utilization and this became a major NBS endeavor under the Brooks

Act.

Impact: Through technical contributions and

membership in the SHARE organization beginning

in 1957, NBS assisted in establishing a common

symbolic assembly language known as SAP. This

in turn led to libraries of high quality subroutines

and a major advance in the field of computer

software: The same subroutine could be used by

many different computer laboratories throughout

the country with great savings in programmer ef- fort. This experience validated the concept and

lent impetus to the establishment of higher level

compiler languages as standards. In part through

NBS contributions, the COBOL language was

adopted and implemented by most major computer

manufacturers and one large computer series was

designed completely around the ALGOL language.

However, in spite of its technical excellence and

support by NBS, ALGOL yielded to FORTRAN as the standard language for mathematical computations. NBS made a further significant impact on the

compiler field in that many people with early ex- perience at NBS on its computers and their languages went out to manufacturers, universities,

and user installations where they distinguished

themselves and contributed to the advance of

computer science.

In natural language translation, it became apparent that computer speeds and memory capacities were inadequate to deal with the problem. Problems with idiom, the need for encoding extensive

exceptions to the rules of grammar, and required

62
massive, fast-access. memor>" for storing vocabulary were major contributions to the difficulties. Then in 1965 an automatic Language Processing

Advisorv- Committee reported to the National Research Council that immediate practical applications of machine translations were not encouraging.^ However, the Committee did recommend

National Science Foundation support for research

in computational linguistics. Lnder other agency

support. NBS continued with a small ongoing re- search project in mechanical linguistics that re- sulted in four publications on Chinese character

analysis and two papers on chemical structure

diagrams. Since this research did not have the

needed priority for continuation in terms of Brooks

Act responsibilities, and since other support was

not adequate, it was discontinued in 1971. Funding Profile: Over the period 1958-1971. a total of approximately S345.000 was spent on au- tomating natural language translation and mechanical hnguistics. Over the period 1952-1967 approximately S220,000 was spent on the development

and translation of artificial languages.

6.9. FORTR-\> Standards and Validation

Routines

Assigned Responsibility Addressed by this Ef-

/orf: Under provisions specified by the Brooks Act

the Secretary of Commerce is authorized:

• to promote the development and testing of

voluntarv" commercial standards for automatic

data processing equipment, and

• to recommend Federal standards related to automatic data processing equipment, techniques, and computer languages

in order to increase compatibility in automatic data

processing in the Federal Government.

Executive Summary. The FORTRAN programming

language is the universal language for expressing

numerical calculations. NBS has actively participated in the development and standardization of

FORTRAN since 1966. The language specifications have been expanded to meet the needs of

both Government and industry, necessitated by

both the advances in hardware, programming

techniques and classes of scientific and engineering problems to be solved. These proposed revised

F0RTR_\N specifications are currently undergoing

public review and comment. Techniques for val- idating the FORTRAN language compilers have

been formulated, implemented and tested by NBS

using the 1966 FORTRAN standard as I lie model.

' NationaJ Research Council. Language and Machines, Computers in Translation and

LutguUtics, NationaJ Academy of Sciences. 1%6.

and an updated validation system to meet the

specifications of the revised FORTRAN Standard

as a Federal FORTRAN standard is in the process

of implementation.

Date Initiated: April 1966

Date Terminated: Continuing

Goals and Objectives: To develop the FORTRAN

programming language into a meaningful, workable

and testable Federal Standard for use by Federal

agencies and their contractors for the purpose of

assisting in the:

• Compatibility of program interchange across computers.

• Development of computer program libraries.

• GSA computer sharing exchange.

• Training and retraining of FORTRAN language users, and

• Preparation for more use of computers by sci- entists via terminal devices.

Products:

(1) NBS Special Publication 399. Volumes 1. 2 and 3: XBS FORTRAX Test Programs and

magnetic tape containing the programs, for sale by NTIS and NBS Magnetic Tape #5.

and documents only, available through the

L.S. Government Printing Office.

(2) Draft proposed American National Standard

FORTRAN issued March 1. 1976. for the

four-month public review and comment, as a proposed replacement for X3. 9-1966 FORTRAN and X3. 10-1966 Basic FORTRAN.

Recipients of Products:

• Federal agencies.

• FORTR_\N compiler vendors, and

• FORTRAN user c ojii nui n i t y (national and

international).

Relevant Circumstances: Because the American

National Standards FORTRAN \3. 9-1 966 and

X3. 10-1966 lac ked sutlicient and non-contlic'ting

specifications, this document was not promulgated

as a Federal Standard. In 1967. at the rcciuost of

NBS. THE ANSI technical c-omniittcc tliat developed tlie standards was rcinstigattMi to i larify

these spec i 1 icat ion s . Alter i>suing t vso sets ot clarilication reports in 1969 and 1971. it was deemed necessary to undertake a i'oni[ilete revision

ol the standard to repair the mimerous taults and

63
omissions in order to bring the FORTRAN lan- guage specifications to a state required for an economic solution to program portability. Although

the FORTRAN language development and standardization is a process accomplished through vol- untary industry effort, NBS took a leading role in defining and promoting technical concepts of the

language to insure easier program interchange ac- ross computers of different architecture. The fact that NBS intends to specify this standard as a Federal FORTRAN standard, develop and perform

validation programs to measure compiler compliance to this standard, significantly contributed

to the development of a firm set of language

specifications.

The NBS FORTRAN Test Programs developed between 1966-1974 to measure compliance to the

1966 FORTRAN standard and used by both Government and industry, set the style, organization

and documentation for programming language

compiler testing acceptable to both vendors and

users, and these methods have been copied for

other language validation programs. The lack of

funds caused this effort to be spread over an eight

year period.

Impact: An estimated investment in FORTRAN pro- gramming in existence in 1963 was over two biUion

dollars. Today, a conservative estimate of over 25

billion dollars could be made. Most of the scientific and engineering endeavor in the U.S. is performed by

private industry with a significant part of this effort paid for by pubhc funds. Therefore, except for the

Government scientific laboratories, most of the

FORTRAN programs created for the benefit of the

Federal Government are written by organizations

sponsored by the Government, such as contractors

for NASA and AEG. These programs are either contracted by the Federal Government for use on Government collected data, or created by the Federal

Government for use on Government collected data, or created by the contractor for contractor use in the testing and construction of a Federally procured

product such as an aircraft or a nuclear weapon. It has been stated that more FORTRAN programs are interchanged than those of all other programming

languages combined. Almost twice as many different

hardware systems have FORTRAN compilers as its nearest competitor, COBOL. The FORTRAN lan- guage is most universally employed to teach pro- gramming in schools and has superseded ALGOL as the language for numerical work in both the European

countries and Japan. The revised FORTRAN standard, containing a proper subset to be implemented on

small and minicomputers, is a specification of user and supplier requirements within the framework of an economic compiler development and efficient program execution, thus enabling the language to be

effectively used to build preprocessors, in process

control and realtime applications as well as for scientific and engineering calculations, for which the lan- guage was originally intended.

The proposed Federal FORTRAN Standard together

with the vahdation system, to test FORTRAN compiler conformance to the standard to be required in a Federal procurement, will ensure uniform interpretation of the language, promote easier FORTRAN pro- gram interchange, and less specific hardware dependency.

FY 1967 $15,800

FY 1968 40,400

FY 1969 40,400

FY 1970 52,500

FY 1971 50,600

FY 1972 41,500

FY 1973 59,800

FY 1974 53,100

FY 1975 83,200

FY 1976 79,400 to date

Total $516,700

expenditures

to date

6.10. BASIC Standards and Validation Routines

Assigned Responsibility Addressed by this Effort: Under the Brooks Act, this effort is assigned to pro- vide recommendations for a Federal computer lan- guage standard on BASIC and to develop a compilervalidation routine to measure whether a Federally

acquired BASIC compiler has been properly implemented on Federally owned or leased computers.

Executive Summary: In order to provide uniform Federal BASIC language standards and compiler validation routines NBS initiated this effort in June 1973. The goal was to provide a common language base for the many dialects of BASIC available on the proliferating number of minicomputers and time sharing

facilities available to Federal BASIC users. Federal

Task Group 16 was formed to work in conjunction

with the ANSI X3J2 committee on BASIC Standards.

Furthermore, NBS in parallel with the language

standardization effort, made the commitment to develop a BASIC compiler validation program. As soon

as ANSI X3J2 has completed its work, the parallel

Federal effort will then be able to promulgate the

Federal BASIC Standard and validation routines.

Date Initiated: June 1973

Date Terminated: Continuing

Goals and Objectives: The ultimate aim is to provide

Federal BASIC users with a uniform, reliable high

level language oriented toward time sharing and

minicomputer environments in order to reduce pro- grammer costs by increasing productivity. In order to do this the specific objectives of this effort are to provide uniform language specifications for Federal

Government adoption and use during acquisition of

BASIC computers and to provide an automated vali64
dation tool to test conformance of the compiler w ith the Federal Standard.

Products:

(1) Federal Standard BASIC (FIPS PUB) (to ap- pear soon after ANSI adopts a BASIC standard)

(2) NBS BASIC Test Programs (Preliminan,- Version to appear mid-1976)

Recipients of Products: BASIC compiler vendors.

Federal software purchasing agents. Federal ADP

installations. Federal BASIC programmers.

Relevant Circumstances: \^'ith the increase of the

number of dialects of BASIC and increasing

minicomputer utilization. NBS initiated the development of a BASIC standard with the award of contract 3-35965 on June 4. 1973, to Professor J. A.N.

Lee at the University of Massachusetts. Professor

Lee proposed a nucleus standard aimed at small

minicomputers. The final report contained a pro- posed set of language specifications and validation

routines for Federal adoption. Since ANSI had not formed a standardization committee for BASIC,

FIPSCAC approved FIPS Task Group 16 in September 1973 to respond to Federal Government needs in BASIC and to complement any national ANSI effort established by X3. TG-16 was also charged to develop

and recommend to NBS a Federal BASIC standard

responsive to Governemnt users. ANSI formed the

BASIC subcommittee X3J2 in January 1974. Mter

establishing liaison with X3J2, TG-16 voted not to develop a separate standard but to provide the ANSI

effort with input of Government requirements. TG-16

would also recommend or not to NBS the final ANSI

standard. In February 1975, TG-16 and NBS pro- posed a structure for future BASIC language en- hancements and in November 1975 began discussion

of the preparation of a FIPS PU B on a Federal Minimal BASIC standard. In conjunction with the lan- guage standardization effort NBS has been in the

process since 1974, of preparing a comprehensive set of BASIC compiler validation tests. In general, stan- dardization of the language BASIC is a voluntary

industry effort. NBS, through TG-16, has provided

direction to the ANSI X3J2 committee on structuring

of the BASIC language extensions and has maintained active staff participation in the X3J2 language

standardization process since its inception in 1974. However, the adoption of a Federal standard for BASIC, along with the validation routines, can provide

leverage so that the BASIC compiler developers not only provide a standardized BASIC to Federal agencies but because of developer cost considerations

provide the same compilers on a national basis.

Impact: From Federal ADP equipment inventories

and industry surveys it is possible to identify that

approximately 60 percent of the Federal government's 4,000 special managment classification computers provide BASIC as a principal high level lan- guage. Most Federal minicomputers fall into this cat- egory. One industry survey has estimated that for general purpose computation BASIC programs comprise approximately 2 percent of the total number of programs. Therefore, a Federal standard for BASIC

and associated validation routines would directly impact software utilization on Federal minicomputers.

Since there are a great number of dialects and en- hancements for BASIC as shown in a recent ACM

survey (April 1976) this effort would provide the

necessary standard and measurement tool in order to assure at least a common core of language features

for Federal BASIC users in order to assure program

transportability on smaU CPU machines, the utiliza- tion of which is increasing as indicated by industry

sales figures.

Funding Profile: Standard Validation

FY 1974 S10,000

FY 1975 25,000 95,000

6.11 Computer Technology Transfer in Medicine

Assigned Responsibility Addressed By This Effort: Provide advisory service as required under the

Brooks Act.

Executive Summary: In 1967 the Department of

Health. Education, and Welfare (DHEW) began to sponsor the development of a computer programming tool for use in medical automation. Over a period of several years, certain processing

capabilities had been singled out as desirable in a medical environment. These "translated" into a

set of machine functions that would help technicians to manage massive files of variable length,

unformatted strings of data (an important but not uniquely "medical" problem). Virtually all of the

functions identified had been successfully implemented before, some on large computers, some

on small ones, but never had they all been done in an integrated fashion on a single computer. As a

result, existing systems were deemed inadequate

for this class of medical application. The tool was named MUMPS (for Masschusetts General Hospital Utility Multi-programming System), a computer

programming language and operating system designed for rapid access to patient and other

health-related information. By 1968 a prototype

system was operational. DHEW continued to fund

development of the tool and began to fund various

medical institutions to use it in their development

of clinical laboratory information systems. By early

1972 it was estimated that $5 million in DHEW re- search funds had been spent in defining and con- structing the tool and in developing medicallyoriented computer programs in the new language.

Futhermore, it was estimated that by 1977 DHEW

would have spent an additional $5 million in re65
search funds alone. No estimates were given re- garding operational expenses that might be in- curred by DHEW's Public Health Service hospitals

and clinics, those of the Veteran's Administration,

those of the three military services, or of the Nation's remaining 7,000 non-Government health care

facilities. By 1972 the language was being used in some 200 medical institutions. In response to its increasing usage and varying user requirements,

seven "dialects" of the original language had been

developed. This gave rise to the feeling within

HEW that immediate attention should be given to developing a standard language that would embody

the most useful features of each of the dialects

and would be able to grow in an orderly fashion. If this were done, it was argued, future investments

in both systems and applications could be protected, to the benefit of all cooperating health care

institutions.

Unique capabilities of ICST personnel were in- depth knowledge and practical experience relative

to the specification, implementation, standardization and use of high level computer programming

languages and processors. It was in April 1972 that the ICST was asked to study various alternatives

and recommend a future course of action. By October 1972 a general plan had been formulated and

ratified, and from January of 1973 until June of

1975 an intensive development and standardization

program was carried out.

Date Initiated: April 18, 1972

Date Terminated: June 30, 1975

Goals and Objectives:

• To establish an environment conducive to the

transfer of MUMPS-oriented medical automation technology, • To plan and play a lead role in the execution

of a detailed development, standardization

and technology transfer program, in accord- ance with the sponsor's direction.

Products:

(1) Administrative Reports and Directives

• MUMPS—A Preliminary Study

• Constitution of the MUMPS Development

Committee

• Minutes and various reports for nine meetings

of the MUMPS Development Committee

• Summary Proceedings of the Task Group on MUMPS Standardization • Various articles published in the trade press

(2) Technical Reports

• A Comparative Analysis of Six Dialects of the

MUMPS Language

• MUMPS Automated Documentation Aids

• A MUMPS Implementation on the NOVA

Computer

• MUMPS Language Specification • MUMPS Transition Diagrams

• MUMPS Portabihty Requirements

• MUMPS Primer

• MUMPS Programmers' Reference Manual

• MUMPS Translation Methodology

• MUMPS Int erpreter Validation Program User

Guide

• MUMPS Globals and Their Implementation

• Design of a Multiprogramming System for the

MUMPS Language

• Implementation of the MUMPS Language

Standard

• MUMPS Documentation Manual

(3) Computer Programs

• MUMPS Programmed Translator • MUMPS Interpreter Vahdation Program

• MUMPS Automated Documentation Programs

Recipients of Products:

• Trade Press Publications: Approximately

10,000 medical institutions, research centers,

and commercial service organizations

• Technical Reports: Approximately 500 institu- tions • Computer Programs: Approximately 50 institu- tions

Relevant Circumstances:

• Market forces in 1972 ideal for cooperative effort in the part of Government, industry, and

academic communities

• Promised availability of a wide range of products

motivated users and suppliers to cooperate

• During the final year, partly because of changes

in the sponsor's organization and program emphasis, funding was applied in inverse proportion to the work at hand. This necessitated drastic cutbacks in the production and dissemination

of publishable material.

Impact: There are three principal indicators of the success of a specification project such as this,

namely, the extent to which commercial interests implement the specification, the extent to which

users avail themselves of the resulting products, and

the relative quality and completeness of the products

in comparison to products developed by a similar process. Regarding the first point, in April 1976 there were known implementations of the language specification available on machines produced by five differ66
ent computer manufacturers; in addition, implementations were known to be in process on machines

produced by an additional six manufacturers. Regarding the second point, usage information is very

difficult to come by, since much of it is treated as

privileged. It is, however, becoming increasingly

clear that manufacturers and users are treating the

specification as one that is pertinent to nonmedical as well as medical applications. This is evidenced in a recent ANSI X3 SPARC resolution to make the

specification available to its constituency for ballot- ing upon as an American National Standard, and in the system's increasing application outside the health

records area, in such areas as reservation systems

and inventory control systems.

On the third point, quality is somewhat difficult to judge. The resulting products (1200 pages of technical manuals and several hundred computer routines)

comprise a fairly complete package of documentation

and support software.

Funding Profile: FY 1972

FY 1973

FY 1974

FY 1975

I 17,100

88,500

346,200

141,000

6.12. APT

Assigned Responsibility Addressed By This Effort: Recommendation of uniform Federal automation data processing standards, as required under the

Brooks Act.

Executive Summary: APT is the most widely used

higher level language for programming numerically

controlled machine tools. The Federal Government

uses APT as the major language for programming

2,400 such machine tools valued at over $350 million. This language is judged as the highest priority standard in the application of computers to manufacturing.

A draft standard is expected in 1977.

Date Initiated: March 11, 1975

Date Terminated: Continuing

Objectives: To develop a Federal Information Pro- cessing Standard on APT that is responsive to Federal needs; to establish a dialogue with the Government APT community that insures a wide spectrum

of user participation in the work of the task group; to maintain a Federal APT standard consistent with

Government users needs; and to maintain a dialog

with ANSI and other standards efforts in the private sector relevant to Government use of APT.

Products:

(1) Symposium assessing Government need and

use of APT, March 11, 1975

(2) Coordination of Federal inputs to ANSI committee on APT 1975/76

(3) Draft Standard expected 1977

Recipients of Products: Government users of APT

Relevant Circumstances: APT is the most widely used

language in computer aided manufacturing applications in the Federal Government. Despite extensive

efforts at standardization in EIA and ANSI committees on NC and APT, in the APT Long Range Pro- gram at Illinois Institute of Technology Research Institute, and in Computer Aided ManufacturingInternational, it is still impossible to exchange either

APT source code or output tapes between Federal

agencies. This is particularly aggravating for the pro- duction of spare and repair parts in the facilities of the

Department of Defense. This problem also impacts

NASA, ERDA, NBS, and other users of APT and its subsets and users of products that produce APT-like

outputs, such as many interactive graphics design

systems. The GAO has criticized DoD for lack of standardization in the use of numerical control (NC).

Impact: Representatives to the first APT symposium

unanimously agreed that a Federal standard was

needed for APT. At least 32 different facilities using

APT have been identified. The Navy has identified that the Government would save $3.8 million per year

in programming costs from an adequate language

standard. In addition, APT is a key to the whole area

of interface and language standards for computer

aided manufacturing systems. The overall magnitude

of impact is measured by the fact that Federal Government has over 200,000 employees in manufacturing operations and procures over $50 billion in manufactured goods each year. Improved standards will lead to the improved diffusion of numerical control

and computer aided manufacturing technology which

will reduce these operating and procurement costs. A

Federal APT Standard is a first step.

Funding Profile: FY 1975 $10,000

FY 1976 20.000

FY 1977 75.000

6.13. Computer Iiiforniatioii Services

Assigned Responsibilities Addressed by this Effort: The Brooks Act. authorized the Secretary of Commerce to provide agencies with scientific and teclmical advisory services relating to automatic data pro- cessing and related systems. The Policy Guidance

paper from the Bureau of the Budget to the Secretary

of Commerce on December 15. 1966. recognized as- signment of tliese responsibilities to the National

Bureau of Standards* Center for Computer Sciences

and Teclinology and in the initial guidelines called tor the Center to maintain awareness of "state-ot-the-art developments in ADP equipment, techniques, and

languages"; and to evaluate these developments "in

terms of their current or potential impact upon the

Government s use of equipment and software and its ADP management policies." The guidelines further

called for the maintenance of a "reference index

67
computer programs to minimize the need for the development of programs already developed, tested,

and in use elsewhere."

The Policy Guidance points out that it is essential for NBS staff to be fully aware of on-going system developments and suggests that "in addition to the possibility of NBS maintaining a current index of projects

in progress, consideration should be given to requiring agencies to provide NBS, for a central reference

file, copies of the reports of such information systems

studies."

Executive Summary: The Computer Information Ser- vices were initiated, as a response to the requirement

included in P. L. 89-306, for provision of advisory

services in ADP, in May 1966 and are continuing

today. The organizational unit primarily responsible

for these services was first called the Technical In- formation Exchange, later the Office of Computer

Information, and now the Computer Information Section (CIS), ICST. Information and technical advisory

services are supported by the computer sciences and

technology information resources of the CIS. These

resources include over 70,000 documents: technical

reports and journals, trade press and news bulletins,

commercial up-date services and a reference index to computer programs. Indexes to these materials are prepared using a computer-based information management system developed by the CIS. Services pro- vided include preparation and compilation of statisti- cal data on computer use, technical analyses and

reports on trends and emerging technologies that will impact computer applications, and state-of-the-art reviews of particular aspects of computer sciences

and technology. Support is also given to other Federal

agencies in the application of the CIS information

management system for compiling indexes to their own collections.

Computer Information Services face problems in managing limited resources, due to rapid increases in the amounts and costs of computer literature and

documentation, and in the complexity and scope of the field itself. The CIS is seeking to make more

effective use of the resources available through online access to commercial search services, to effect more extensive cooperative arrangements with the

NBS Library and other sources in the area, and to produce and disseminate more analytical studies and

reports to extend its provision of advisory and infor- mation services more widely in the Federal community.

Date Initiated: May 1966 as Technical Information

Exchange, later the Office of Computer Information, now the Computer Information Section.

Data Terminated: Continuing.

Goals and Objectives: The goal of the Computer In- formation Services is to provide current and complete

information and technical advisory services to ICST,

NBS, other Federal agencies, and the private sector

as appropriate, in the area of automatic data processing and related subjects. The objectives of the activity are to: (1) maintain a reference index of computer

programs already developed or in use, to advise Federal agencies of their availability and utility; (2) collect, organize and maintain specialized information resources in computer sciences and technology, and

Inaintain current awareness of state-of-the-art developments in the ADP area; and (3) analyze and

evaluate information and data from the specialized

collections, to provide technological assessments of

trends and impacts of ADP on Government applications. These objectives respond to the mandate of the

Brooks Act cited above.

The Computer Information Services includes a specialized information collection of over 70,000 documents: technical reports and journals, trade press and newsletters, conference proceedings, and commercial up-date and alerting services. The reference

index to computer programs comprises over 80 directories of software developed or in use, and available

for sharing and exchange. CIS constantly reviews this collection for currency and completeness. The re- ference service on computer programs will supplement the services of the Federal Software Exchange

Center being estabhshed by the General Service Administration.

The technical reports in the CIS collection include

accounts of ADP applications and system design

studies in other Federal agencies. Materials as re- ceived are cataloged, and indexes prepared using a system developed and operated by the Computer In- formation Section, ICST. The indexes are of personal

author, keyword, keyword-out-of-context (KWOC),

corporate author, and report number. Sets of indexes

are accompanied by a bibliography where all the data

for each document indexed is listed in its citation." The indexes produced in-house are supplemented by

access to data bases offered through commercial

search services and by subscription to other relevant

reference tools. The collection of the CIS is also supplemented by use of the materials in the NBS

Library and other computer-related collections in the

Metropolitan Washington, D.C. area.

Products:

(!) Indexes, such as the Annual Indexes to the

Computer Literature; "Computer Literature

Bibliography, Vol. 2, 1964-1967," W. W.

Youden, NBS Special Publication 309 (1968);

"AFIPS Conference Proceedings Index, Vols. 1-37," AFIPS Press (1971).

(2) State-of-the-art reports, such as Automatic

Typographic-Quality Typesetting Techniques:

A State-of-the-Art-Review, M. E. Stevens and

J. L. Lhtle, NBS Monograph 99 (1967); Automatic Indexing: A State-of-the-Art Report,

M. E. Stevens, NBS Monograph 91 (1965)

68
(3) Literature reviews, such as Research and Development in the Computer and Information

Sciences, M. E. Stevens, NBS Monograph 113, Vols. 1-3 (1970); Cooperation, Convertibility,

and Compatibility Among Information Systems, A Literature Review, M. Henderson et.

al., NBS Misc. PubHcation 276 (1966)

(4) Technological assessments, such as Standardization, Compatibility and/or Convertibility Requirements in Network Planning, M. E. Stevens NBS Report 10252 (1970)

(5) Bibliographies, produced by ICST programmatic areas with support from the Computer In- formation Section or by the CIS directly, such

diS Controlled Accessibility Bibliography, S. K. Reed and M. M. Gray, NBS Tech. Note 780

(1973); Annotated Bibliography of the Literature on Resource Sharing Computer Networks,

NBS Special Pub. 384 (1973); Evaluation of

Information Systems: A Selected Bibliography

with Informative Abstracts, M. M. Henderson,

NBS Tech. Note 297 {1967); Annotated Bibliography on Technological Forecasting, M. M.

Gray and D. A. Nagy, NBSIR 74-463 (1974);

Bibliography on Magnetic Bubble Technology, R. B. J. Warnar (1975); Bibliography on Charge-Coupled Devices, R. B. J. Warnar

(1975)

Recipients of the Products: In operating the highly

specialized computer information system, the Computer Information Services activity responds to specific inquiries from users in ICST, NBS, other

Federal agencies, staff members of independent of- fices and organizations (including quasi-official) of

the Federal Government, staff members of state and

local governments, and users in the various segments

of the private sector (industry, academia, foundations, etc.).

Computer Information Services are available to these

users and form an important base for advisory and

consulting activities, technological developments,

and report preparation. The approximately 1,500 in- quiries received each year from the variety of users

listed above are for such diverse informational needs

as data on specialized programming concepts, on

software packages for management and allocation of

fire fighting resources, and manufacturers producing

optical character readers.

In addition to these recipients of computer information services, the entire computer community has

access to the reports listed above and other similar ones scheduled for early completion. These are made

widely available through GPO and NTIS channels, as

well as in answer to specific requests.

Another class of recipients of Computer Information

Services products includes those agencies and of- fices who have requested support in adopting and

adapting the information handling system of the

Computer Information Section to their own needs.

These agencies include DHUD managing its international housing information files, SESA using the sys- tem for survey methodology data, and the Engineering Standards Information Service at NBS producing

indexes to their collection of engineering information.

Relevant Circumstances

The provision of technical advice and information, as required by the Brooks Act, is directly supportive of

NBS programmatic objectives relating to regulation

and to productivity and quality of working life. There

has been a growing need for relevant technical advice

and information on the part of those Federal agencies

and commissions responsible for the formulation and

implementation of public policies relating to computer technology. Also, the growing body of

computer-related scientific and technical information requires and provision of products and services

attuned to the needs of users and customers of computer applications.

In order to supply technical information and advisory

services more effectively and efficiently, Computer

Information Services activities will stress the preparation and dissemination of statistical reports on computer applications in Government and the private

sector, of technical analyses of trends and emerging

technological developments of the computer field,

and of overview reports on particular computer applications and their societal and economic impacts. In

addition, the CIS is increasing its use of outside in- formation resources by on-line access to data bases

available through commercial searching services.

Impact: The major commodities of the Computer In- formation Services activities are information and

technical advisory services. The assessment or measurement of the value of such services and their

impact on users are difficult. Survey of users shows

that the services saved both time and money for a

large majority of them, but we lack specific quantified data on the amount of time and money saved.

The ranges for such savings, where we could get

quantifiable data, were from several hours to several

weeks of time, and from a few dollars to over $500

saved by a user.

Examples of money saved by NBS users responding

to the survey were avoidance of the purchase of a

special reference resource costing $385, which the

Computer Information Section had, and a savings of more than $500 on equipment selection and purchase

based on information made available through these

services.

The users of the Computer Information Services generate about 1,500 requests per year for information

and technical advisory services. Some 87 percent of these requests are from Federal organizations, covering nearly all the existing departments, offices, and

independent agencies. These represent a consider69
able investment in computer acquisitions and utiliza- tion. Computer Information Services contribute significantly to the effectiveness of such use by responding to the needs of Federal agencies for current and

comprehensive information on computer developments.

Funding Profile: Funding from internal sources for the period FY 1967-FY 1976 are as foUows:

Congressional

Appropriated Other Agency

Funds Funds

FY 1967 $105,000

FY 1968 202,000

FY 1969 225,000

FY 1970 249,400 $ 30,000

FY 1971 220,400 44,000

FY 1972 233,700 84.000

FY 1973 203,000 86,000

FY 1974 170,000 109,000

FY 1975 220,000 62,000

FY 1976 220,000 20,000

6.14 NBS PILOT Multiple Computer System

Assigned Responsibility Addressed By This Effort: The PILOT multiple computer system was developed by the Data Processing Systems Division,

which was assigned the reponsibility for experimental data processing research and development.

Executive Summary: The development of digital

computing machinery at the National Bureau of

Standards started in 1946 because of the interest of

the Bureau of the Census in the possible use of elec- tronic digital techniques for tabulating purposes. The

outgrowth of this effort led to the development of the SEAC computer which became the nucleus of the

NBS data processing activity. SEAC was followed by

the development of SCOOP and DYSEAC. After

several years of extensive use, it became evident that these machines lacked the speed and flexibility to carry out the Bureau's increasingly diverse program

of experimental data processing. Consequently, the Bureau undertook to develop a new PILOT data pro- cessor with the necessary features for this work. During the period from 1958-1962, the PILOT multiple

computer system was designed and built. This initial configuration became operational in 1962 but could

not meet its intended uses without expansion of its peripheral capabilities. It was used extensively for other applications in number theory, chemical patent

searching, and engineering calculations.

Passage of the Brooks Act in 1965 led to a restructur- ing of program efforts at NBS. The establishment of a Center for Computer Sciences and Technology led to an evaluation of the experimental data processing

program at NBS. The rapid development of commercial hardware and software and the changing role of

NBS led to the decision to decommission the PILOT

multiple computer system in favor of more advanced

alternatives.

Date Initiated: Appropriation request submitted to Congress in FY 1957.

Date Terminated: The PILOT project was terminated

in April 1967.

Goals and Objectives: The Bureau of Standards be- came involved with data processing in 1946 at the

request of the Bureau of the Census. Development of

the SEAC computer attracted the interest of the Air

Force and other agencies. Within NBS, the Data

Processing Systems Division was formed and given

the mission of research and development in elec- tronic data processing.

As the experimental data processing programs ex- paned, new objectives were identified. One objective was to devise an effective experimental

tool for investigating large-scale problems in the pro- cessing of business data for management use.

Another objective was to simulate the characteristics

of different kinds of existing data processors so that equipment characteristics most suited to the needs of each particular agency could be selected.

A third objective was to provide a facility to investi- gate techniques applicable to the control of aircraft on the civil airways.

A fourth objective was to provide a system for assis- tance in laboratory experiments.

To meet these objectives; a system was required

which could accommodate a wide range of analog and

digital devices. It was also to be capable of concurrently performing multiple tasks and its programs

had to be controllable by external means with

minimum effect on machine operations.

The design which was developed to meet these objectives envisaged three computer systems. The primary computer would handle the bulk of the calculat- ing workload, the secondary would handle instruction

sequencing and indexing operations; and the third

would handle all input and output transfers. All three

computers would operate concurrently in this pilot

data processor.

Products: Hardware was acquired and the basic sys- tem built and debugged during the period 1958-1963.

Concurrently with the construction of PILOT at NBS; a nearly identical machine was built at the

Ballistics Research Laboratory (BRL) in Aberdeen,

Maryland. This machine used the logical and

mechanical design concepts of the PILOT computer

system.

70
Although the NBS PILOT data processor was never

fully implemented for its intended purposes; it was

used extensively from 1964 to 1967 for other applications. The development in 1965 of transistor component

boards to replace the vacuum tubes produced a machine of much greater reliability. This design was

adopted by BRL and incorporated into their computer facility.

Recipients of Products: Over 5,000 machine hours were logged by the Applied Mathematics Division in number-theoretic calculations. These programs used

large amounts of computer time but required little in the way of peripheral devices.

The Patent Office sponsored a project in which the

PILOT was used for computer-assisted chemical patent searching.

Engineering calculations were made using the OMNITAB compiler which was written for the PILOT

computer system in 1964.

Relevant Circumstances: PILOT was the last of the

large-scale vacuum tube digital computers. Commercial computers developed in the late 1950's were

built with transitor circuitry. Extensive development

of software made computers much easier to use than

before.

The development of large mass storage devices and

business languages such as COBOL and PERT enabled commercial machines to offer powerful solutions

to business data and management problems.

Simulation became possible when two simulation

languages, GPSS and SIMSCRIPT, were written for commercial equipment.

Expansion of facilities by the FAA and other agencies

to investigate techniques for air traffic control re- sulted in a deemphasis of this activity at NBS.

The emergence of the minicomputer provided

laboratories with an economical tool for assisting in laboratory experiments.

Thus, most of the intended uses for the PILOT sys- tem were fulfilled by commercially produced equipment during a period of rapid technological advancement in the early 1960's.

Finally, the passage of the Brooks Act in 1965

changed the role NBS had been performing in tlie field of electronic data processing

A study made by Dr Werner Leutert in 1966 recom- mended that the PILOT system be shut down and

surplused before the NBS relocation to its new Gaithersburg site. It was concluded that it wouhl be more

cost effective to use the newly acquired MOBIDIC

computer as the basic research computer and aug- ment it with the core memories and disk files which were part of the PILOT computer system. Use of the MOBIDIC, coupled with the Bureau's CDC 3100 and

the IBM 7094, would then adequately meet the data

processing requirements.

Impact: The PILOT design, as incorporated into the

Ballistics Research Laboratory computer at Maryland, resulted in a powerful data processor which was

in constant operation from 1961 to 1972. This facility

operated on a three-shift, seven-day week to calculate ballistic tables for military projectiles and missiles. Many features of the PILOT system, such as multiple

index registers, multiple computers, separate I/O

computers have been adopted and exist in modern

day data processing systems.

Funding Profile: Over the period 1957-1966. a total of $2,252,000 was allocated to the PILOT project. Of

this amount, $1,852,000 was actually obligated.

6.15 Development and Use of A Computer-based

Grapliical Display Terminal (MAGIC 11)

Assigned Responsibility Addressed By This Effort: To

provide advisory services to Federal agencies and

perform research on advanced computer technology

for use by Federal agencies.

The MAGIC II intelligent graphics terminal was developed as a testbed facility to investigate and demonstrate to Federal agencies concepts and tech- niques of design and use of a computer-based

graphics terminal and the tradeoffs involved in pro- viding local data storage and computing capability

with the graphics terminal; based on the current technology (1965). As such. MAGIC II represents one

of the early successful intelligent graphics terminals

but was quickly obsoleted due to rapid advances in both computer and graphics technologies which in the industry in the mid and late 1960*s. Through this effort (1965-1973) Federal agencies received technical awareness, advice, and guidance to enable them

to better utilize computer graphics. MAGIC II has

recently been superseded by a state-of-the-art intelli- gent graphics terminal and is being surplused.

Date Initiated: November 1965

Date Terminated: November 1973

Goals and Objectives:

(1) to increase the feasibility of use of computer

graphics by Federal agencies:

(2) to increase the exposure and awareness of Federal agencies to the utilization of computer graphics;

(3) to develop a research tool for investigating and

71
demonstrating computer graphics concepts and

techniques, particularly with regard to the distribution of data storage and computational capabilities

between central processor and graphics display ter- minal and the tradeoffs involved.

Products: Federal agencies received technical advice

and guidance to enable them to better utilize computer graphics.

Recipients ofProducts: Federal Operating Agencies.

Relevant Circumstances: The state-of-the-art in computer-based graphics in 1965 was such that few,

if any, interactive, intelligent graphics display terminals existed. Little had been done to investigate the

concepts and techniques involved or to investigate

the tradeoffs in distributing data storage and processing capabilities between a central processing facility

and a remote graphics terminal. Most graphics

facilities in existence at that time relied wholly on a

large, expensive central processor dedicated to driv- ing the display. From the hardware standpoint, inte- grated circuits were beginning to appear commercially. Advances in transistor and CRT were beginning to appear commercially. Advances in transistor

and CRT technologies were beginning to produce

CRT displays with promising capabilities.

Based on these considerations and fundamental con- cepts previously developed through MAGIC I (the

immediate predecessor of MAGIC II), it was felt late

in 1965 that significant contributions could be made

concerning intelligent graphics terminals. Manpower, funding and opprtunity were available, and

concepts were developed and decisions made during

a period when the need appeared greatest. However,

despite development using current state-of-the-art technology, the nearly-concurrent advent of

minicomputers, cheap integrated circuits, cheap

core memory, and rapid advances in CRT display and

related technologies coupled with utilization constraints imposed by the antiquated MOBIDIC B central computer facility, combined to quickly obsolete

the architecture and utility of the testbed facility.

Consequently MAGIC II has not been used to any

significant extent since October, 1973 and is presently acting only as a backup facility for the recently

acquired state-of-the-art, IMLAC full graphics, CRT

display terminal. It is our plan to surplus MAGIC II by the end of FY 76.

Description

MAGIC II contains a general-purpose display console with full hardware vector, character and circle generation capability and includes a beam-port CRT

with which a random-access slide projector can be

used to combine optically and electronically gener- ated images on the display screen. Interactive accessories available to the operator include light pen,

joystick, alphanumeric keyboard, a set of programmable function buttons, and temporarily, a graphical

tablet. A special-purpose digital computer containing a small core memory (6,000 characters) and a drum

memory (approximately 300,000 characters) was designed and constructed to drive the display console.

A specially configured hardware list processor is used, optimizing and expanding list processing tech- niques developed using MAGIC I. Such hst functions

as insert, delete, block transfer of lists, hst scanning,

and list arithmetic and logical operations are incorporated for efficient display data manipulation and for minimizing the number of instructions necessary to perform typical display functions. The processor in- corporates both high speed character-parallel and

low speed bit-serial data communications

capabilities for connections with a central system.

Paper design of MAGIC II was initiated in late 1965

and continued through 1966. By early 1967, the basic

hardware design had been frozen and procurement of major components was initiated. Construction of the

system began in the spring of 1967 and the system

became operational on a stand-alone basis in June of 1968. From this time through early 1969, the optical

hardware was installed for rear-port slide projection

and a high-speed data Hnk was designed and installed for data communications with the MOBIDIC B computer facility. Through the remainder of the lifetime of MAGIC II, minor hardware corrections and improvements were made as the need arose.

Throughout the operational lifetime of MAGIC II, numerous utility programs were developed for both

stand-alone and interactive use, including low level language assemblers, debuggers, and diagnostic pro- grams. Notably, a cross assembler for MAGIC

(GRAS-GRaphical ASsembler) was developed to run on the MOBIDIC B computer and an interactive

Graphical Text Editor was developed for combined

MAGIC/MOBIDIC use.

The most sophisticated application of MAGIC II was

the development of a Thermal Design program package which functioned interactively between the

operator, MAGIC II, and MOBIDIC. The program

enabled designers of electronics packages to model

the thermal flow and heat load at various points

within a selected volume of electronic equipment.

Impact: The development and utilization of MAGIC

II satisfied the goals and objectives stated earher. As

an early predecessor of modern minicomputer driven

CRT display terminals, it demonstrated the viability

and desirability of providing local storage and profcessing capabilities within the graphics display. At

least 40 Federal agencies presently using computer

graphics received an introduction to computer

graphics through this effort.

72
Funding Profile:

Other Congressional

Agency Appropriated

Funds Funds

FY 1966 $105,000 $110,700

FY 1967 59,000 119,900

FY 1968 102,200 139,300

FY 1969 79,500 50,800

FY 1970 74,300 40,800

FY 1971 58,700 29,500

FY 1972 38,700 37,500

FY 1973 13,000 0

FY 1974 8,600 0

FY 1975 0 0

$539,000 $528,500

Total Funds $1,067,500

References

6.16 Computer Magnetic Storage Media

Assigned Responsibility Addressed By This Effort: Based upon the Brooks Act, the NBS Magnetic Media

Group:

• Provides the Government agencies in general

and the General Services Administration in particular with scientific and technical advisory

services related to the quality, procurement, and

specification testing of magnetic storage media.

These services include the design and construction of specialized and unique reference meas- urement systems and the production of refer- ence materials needed for comparative specification testing.

• Engages in the necessary research which leads

to the development of standard reference materials, calibration services, and guidelines. These

enable the users of computer magnetic media in Government automatic data processing operations to perform in an efficient and cost effective manner.

The following list of reports detail the hardware configuration and

the major utilizations of MAGIC II:

(1) MAGIC II, A Remote Graphical Display Terminal, D. E. Rippy, (NBS Report 9956)

(2) MAGIC-A Machine for Automatic Graphics Interface to a

Computer, D. E. Rippy and D. E. Humphries (Proc. FJCC,

Vol. 27) 1965. (Describes MAGIC I, the predecessor to MAGIC II)

(3) GRASS a Graphical Assembler for MAGIC II, J. A. Hudson,

(NBS Report 9955) 1968.

(4) Man-Machine System Organization Final Report-Phase I, T. N. Pyke, Jr., (NBS Report 10 051) 1968.

(5) Performance Measurement ofInteractive Graphics Systems in Support of Computer Aided Design and Engineering, T. N. Pyke, Jr., et al, (NBS Report 10 451) 1971.

(6) An Experiment for the Study ofSystem Design and Instrumentation for Remote Computer Graphics Utilizing a Graphical

Text Editor, J. A. Hudson, et al, (NBS Report 10 143) 1969.

(7) Data Structures for Computer Graphics, M. D. Abrams (NBS

Report 10 144), 1969.

(8) Computer/Display Interface Study, Quarterly Report # I, 1 April 1966—.30 June 1966, Technical Report, ECOM-95829-1,

July 1966.

(9) Computer/Display Interface Study, Quarterly Report # 2-3, 1 July 1966—31 December 1966, Technical Report, ECOM9.5829-2, January 1968.

(10) Computer/Display Interface Study, Quarterly Report #4-5, 1 January 1967—30 June 1967, Technical Report, ECOM9.5844-4

(11) ComputerlDisplay Interface Study, Quarterly Report # 6, 1 July 1967—.30 September 1967, Technical Report, ECOM9.5844-4, July 1967.

(12) ComputerlDisplay Interface Study, Final Report, April 1969,

'l c<:hnical Report, ECOM-9.5844, April 1969.

Executive Summary: The media program was initi- ated in response to requests from both industry and

Government that NBS develop and provide them with

benchmarks and measurement bases in the form of NBS Standard Reference Materials (SRM's) and disk

cahbration services. These NBS products were developed and are now used by all manufacturers of

computer magnetic media and associated equipment

and by Government procurement and specification

testing laboratories. These products are issued in the

form of magnetic tapes, cassettes, and cartridges and

disk calibration services and assure the media manufacturers of product uniformity. This leads to improved data interchangeability and more efficient operation by Government and commercial ADP sys- tems. These benchmarks also improve the testing

capability of Government procurement and specification laboratories such as GSA Magnetic Surfaces

Laboratory (MSL).

Date Inititated: Fiscal Year 1966

Date Terminated: Continuing

Goals and Objectives: To develop benchmarks and

measurement bases in the form of SRM's and disk

calibration services through the following sequence

of program objectives:

• Develop reference magnetic media measure- ment and calibration systems,

• Develop reference magnetic media surface re- spository groups,

• Develop calibration techniques,

73
• Calibrate candidate surfaces and product

SRM's, and,

• Document the preceding processes and issue the

products through the NBS Office of Standard

Reference Materials and the NBS Office of

Measurement Services.

To continue with the development of new meas- urement systems and calibration services as re- quested by the industry and Government whenever

feasible.

To continue to engage in the American National

Standards Institute and International Standards

Organization media standards committee activities and to produce documentation such as FIPS

PUBS.

To research various areas of the computer magnetic storage media phenomenology and to improve

measurement capabilities where possible.

To offer consultant services and to document or publish the results of all of the preceding activities.

Products: The following products were developed

by the Magnetic Media Group based upon the objectives listed in item 6:

(1) Reference signal amplitude measurement sys- tems were developed and constructed by the Group

for the calibration of SRM's and disk surfaces. These

systems are also in use at the GSA Magnetic Surfaces

Laboratory.

(2) In cooperation with the media industry, the

Magnetic Media Group has assembled into its re- pository the primary groups for the 12.7mm (0.5 in) computer tapes, the 3.2mm (0.125 in) digital cassettes, the 6.3mm (0.25 in) digital cartridge, and the low,

medium, and high rigid disk reference surfaces.

(3) The following SRM's and disk calibration ser- vices were developed by the Magnetic Media Group.

• Secondary Standard Magnetic Tape (Computer Amphtude Reference) SRM 3200. This

SRM was first issued in 1969.

• Secondary Standard Magnetic Tape Cassette

(Computer Amplitude Reference) SRM 1600. This SRM was first issued in 1974.

• Secondary Standard Magnetic Tape Cartridge

(Computer Amplitude Reference) SRM 3216.

This SRM was first issued in 1976.

• Low density disk calibration service. This

service was made available in 1973.

• Medium density disk calibration service. This

service was made available in 1974.

• High density disk calibration service. This

service was made available in 1976.

(4) The following products are under development

or consideration (based upon personnel and budgetary constraints):

• A computer-based measurement system for calibrating new flexible magnetic disk SRM's

is under development. Estimated completion

date: FY 77.

• A system for calibrating a high density magnetic reference computer tape SRM for 6250 bpi

applications is under development.

• A measurement system for calibrating refer- ence magnetic stripe cards is under consideration. This will be a minicomputer-based

system.

• The potential for producing a reference bubble device measurement system and SRM is under consideration. This will be a minicomputer-based system.

(5) The Group has been issued a patent on a signaP

dropout measurement system which is in use at both

NBS and GSA (MSL) It has also published papers

relative to archival factors in data storage and to the

effects of various devices and fields on stored data.

(6) The following descriptive publications have

been produced by the Group:

• Calibration ofNBS Secondary Standard Magnetic Tape (Computer Amplitude Reference) Using

the Reference Tape Amplitude Measurement

''Process a;' S. B. Geller, P. A. Mantek, and N.

G. Cleveland (Spec. Pub. 260-18) 1969.

• Calibration ofNBS Secondary Standard Magnetic Tape (Computer Amplitude Reference) SRM

3200 Using the Reference Tape Amplitude Measurement "Process A" Model II, S. B. Geller

(Spect. Pub. 260-29) 1971.

• Calibration of Secondary Standard Magnetic

Tape Cassettes (Computer Amplitude Reference) Phase I, S. B. Geller and P. A. Mantek

(Tech. Note 731) 1972.

• A Universal Dropout Testerfor Magnetic Storage

Media, S. B. Geller (Tech. Note 739) 1972.

• Calibration of Unrecorded Low and Medium

Density Type Magnetic Disk Pack Surfaces, N.

P. Goumas (Tech. Note 884) 1975.

74
• The Effects of Magnetic Fields on Magnetic

Storage Media Used in Computers, S. B. Geller

(Tech. Note 735) 1972

• Erasing Myths About Magnetic Media, S. B. Geller (Datamation), 1976

• Archival Data Storage, S. B. Geller (Datamation)

1974.

• NASA Feasibility Study on reference in- strumentation tape, July 1974.

Product Impact:

(Millions of

dollars)1970 1971 1972 1973 1974 1975

drives $185 $210 $276 $342 $407 $500

Disk

drives 370 480 522 640 772 920

(7) Reels of Magnetic Computer Tapes Sold (1973-

1975): (Controlled by NBS SRM 3200)—(Millions

of units)

1973 - 19M

1974 - 23M

1975 - 28M

1975 1976 1977 1978 1979 1980

(1) Cassettes" (ControUed by NBS-SRM 1600)

Millions of units sold 4.8 7.1 9.6 12.9 15.2 18.1 Millions of

doUars 16.7 23.0 28.9 38.7 45.6 54.2

(2) Cartridges (3M (ControUed by NBS-SRM 3216)

Millions of

units sold .153 .24 .442 .649 .857 1.05

Millions of

doUars 2.2 3.3 5.8 7.8 9.5 11.5

(3) Flexible Disks (SRM under development)

Millions of units sold 1.42 2.44 3.7 4.9 6.5 7.89

Millions of doUars 8.4 13.4 18.6 23 29 34

(4) Cassette Drives (ControUed by NBS-SRM 1600)

Thousands of

units

MiUions of

doUars

172 218 235 302 343 366

97 117 140 155 173 182

(5) Rigid Computer Disk Spindles Installed (1972-

1975)

1972 - 130,000

1973 - 155,000

1974 - 175,000

1975 - 190,000

1976 - 225,000

(6) Plug Compatible U.S. Equipment Installed

(1970-1975)

(ControUed by NBS SRM 3200 and Disk Calibration Services)

' Venture Corporation

(8) Disk Packs Sold (1973-1975): (ControUed by NBS

disk calibration services)

1973 1974 1975

Low Density

Packs 200,000 220,000 210.000

Medium Density

Packs 700,000 800,000 1.100.000

High Density

Packs 120,000 210,000 400.000

To date, the following quantities of SRM's and disk

calibration services have been sold at the following

costs: No. of Cost per

Unit Units Unit

SRM 3200 120 $705

SRM1600 45 144

SRM3216 10 165

Low density disk calibration

service 8 240

Medium density disk

calibration service 12 300

High density disk

calibration service 2 312

Relevant Circumstances: At the present time, tliere are no feasible techniques available for maintaining

magnetic media reference measurement bases other

than through reference signal levels which are derived from actual media surfaces on SRM's or dedicated disks. Attempts at the electronic simulation of

the levels have been unsuccessful due to the multivariable and nonlinear nature of the magnetic re- cording processes. The need for and use of these SRM's and calibration

services is an unquestioned and integral part of

magnetic media industry operations. The contii\ued

high demand for NBS standard reference niaterials and calibration services are evidence that the computer industry recognizes ijie NBS magnetic media

program as a necessary means of providing the refer- ence standards and measurements for the whole in- dustry, a service which the industry (1) expects from an objective Government laboratory. (2) finds unprofitable to provide for itself, and (3) would accept with

75
more reluctance and less trust from an industry competitor. In fact, considerable pressure had been

exerted by industry for NBS to institute the media

program.

NBS magnetic media work is mandated under the

Brooks Act, providing standards and guidelines di- rectly to Federal agencies as well as to GSA which

controls the procurement of magnetic media for Federal agencies.

The continuing worldwide need for precise meas- urement standards for magnetic storage media is evi- denced by the fact that ADP standards committees of

both the American National Standards Institute

(ANSI) and the International Organization for Standardization (ISO), have specifically requested that NBS continue to develop measurement and calibration techniques in support of magnetic storage media

standards.

Impact: The directly measurable indicators of the

effects of SRM's and calibration services are technical in nature and appear as definite improvements in product signal quality. For example, it has been

found in the case of the 12.7mm (0.5 in) magnetic

computer tape, that since the advent of the reference

computer tape-SRM 3200 (120 sold to date) that the

variation of the average signal amplitudes as measured from random samples of commercially avail- able computer tapes has decreased from 50 percent

(in 1969) to less than 15 percent about the established

reference levels. This reduced signal level variation

from tape-to-tape improves Federal ADP applications which incorporate these media. This is due to the potential for improved data interchangeability

among installations. It is important to note that a

single SRM 3200 controls the quality of many millions

of reels of computer tapes.

The SRM 3200 has also been adopted by the magnetic

stripe card industry as their magnetic reference

media.

In the case of the SRM 1600 reference cassette, the

NBS Group made an important decision which re- solved a dispute between Japan and European countries over the final cassette signal amplitude refer- ence level which is now maintained by the NBS SRM

1600.

Since the SRM 3216 digital cartridge is now used to control a relatively new storage device, this device

will be easily and well controlled at the outset. Pro- duction and compatibility problems for digital car- tridges will be minimized because of the early activities of the Magnetic Media Group in producing

SRM 3216.

The NBS Magnetic Media Facility is presently the

worldwide source for the SRM 3200, the SRM 3216,

and the high density disk calibration services. The

German PTB offers a digital cassette which is compatible with the SRM 1600. The group was instrumental in establishing the final reference signal amplitude levels for the rigid disks.

The operations of the Magnetic Media Group are

essential to the improved economic and technical

operations of the very large media industry which has

both domestic and foreign bases. The following is a summary of the sales volume of some of the products

which are or will be influenced by the Group operations. Of the three low cost storage devices (the cassette, the cartridge (3M), and the flexible disk), the cassette appears to have the greatest sales volume at present.

STRS OA

Funding Profile: FY 1972 $197,799

FY 1973 180,450

FY 1974 155,376 $ 100,000

FY 1975 188,322 19,649

FY 19765 146,170 15,000

' As of 5/12/76.

APPENDIX A

Since the passage of the Brooks Act, the General

Accounting Office has conducted many studies, sur- veys and audits on opportunities for savings in the use

of computers in the Federal Government and on the

implementation of the Brooks Act. Twelve of the

reports issued by GAO contain comments or findings

about NBS. NBS has found the GAO Reports to be

fair, accurate and helpful. These reports generally

found NBS not having adequate resources or not doing an adequate job. AU of them found that NBS

needed to do more just to minimally meet Government needs and its own Brooks Act responsibilities.

This appendix contains a listing and synopsis of

GAO reports issued over the past decade that com- ment on the NBS program relevant to its mission

under the Brooks Act.

GAO REPORTS COMMENTING ON NBS RESPONSIBILITIES UNDER BROOKS ACT

Study of the Acquisition of Peripheral Equipment for Use with Automatic Data Processing Systems

June 1969

Federal agencies should replace leased components with Piore economical plug-to-plug compatible units. Specific guidelines for the evaluation and

selection of plug-to-plug compatible equipment

should be provided.

76
Acquisition and Use of Software Products for Automatic Data Processing Systems in the Federal Government

June 1971

0MB should arrange for the formulation of a master plan for the acquisition and use of software.

0MB should provide coordinated management and

central policy direction to users for determining the

most economical and efficient means for obtaining

computer software. GSA should employ singlepurchaser concept, use advertised procurement

contracts, arrange non-restrictive contractual ar- rangements for software, consider buying software

products outright and maintain an inventory of

computer software. NBS should establish and

maintain an inventory of computer software. NBS

should establish and maintain a reference index of

computer programs, make detailed technical

evaluations of computer programs for use of all Federal ADP installations, and promulgate Federal

standards for computer languages and program

documentation.

Opportunity for Greater Efficiency and Savings

Through the Use of Evaluation Techniques in the

Federal Government's Computer Operations

August 1972

0MB should encourage the development of computer performance evaluation techniques. Techniques suggested included: agency consideration

of computer evaluation techniques to improve the

efficiency of computer performance; development

of productivity and performance criteria; periodic

reports on agency efforts to evaluate the efficiency

of computer operations.

Means for Increasing the Use of Defense Technology

for Urgent Public Problems

December 1972

0MB should establish a government-wide policy

for technology transfer and issue guidelines for formal active transfer efforts. A way to achieve an

active technology transfer process is to establish a centralized interdisciplinary team to serve as consultants to agencies seeking information and guidance concerning the availability of technology and

resources relevant to their needs and advise

technology developers of potential secondary applications. NBS would be an appropriate agency

for this role.

Emphasis Needed on Government's Efforts to Standardize Data Elements and Codes for Computer Systems

May 1973.

Secretary of Commerce should determine where

standards would be most beneficial and establish

standardization priorities; issue policy delineating

theory and terminology and provide for preparation

of guidelines, methodology and criteria to be fol- lowed by agencies in standardization efforts; as- sign specific agencies responsibilities for developing standard data elements and codes in specified areas and monitor implementation of data standards to insure their uniform adoption and use.

Improvement Needed in Documenting Computer

Systems

Oct. 1974

GSA issue guidance to agencies that use computers specifying assignment of responsibility for periodical review of computer systems. Reviews

should insure that computer systems have been

documented properly in accordance with NBS

standards.

Increased Use of Computer-Output-Microfilm by

Federal Agencies Could Result in Savings

Nov. 1974

GSA should inform Federal managers of benefits of

using COM; suggest that agencies investigate

whether COM could increase productivity and

lower the cost of information systems; encourage

Federal agencies to share existing COM equipment.

Executive Branch Action on Recommendations of the

Commission on Government Procurement

March 1975

0MB should establish priorities and milestones for implementing actions lacking completion dates. Recommendation 14 proposed developing and is- suing a set of standard programs to be used as benchmarks for evaluating vendor ADP proposals.

Uses of Minicomputers in the Federal Government:

Trends, Benefits, and Problems

April 1976

GSA should, through forums with other Government agencies and industry associations, simplify

Government-wide procurement requirements for minicomputers giving recognition to the difficulties cited by agencies pertaining to the purchase of minicomputers with a low-aggregate-dollar value. Most NBS computer standards are applicable to minicomputers; however, changes to the COBOL

standard need to be made to accommodate

77
minicomputer needs and standards for FORTRAN

and BASIC need to be developed. High level pro- gramming language standards are desirable to help

reduce the cost of converting programs from

large-scale data processing systems to minicomputers.

Improvements Needed in Managing Automated Decisionmaking by Computers Throughout the Federal

Government

April 1976

0MB should require that each agency determine

whether any of its computer operations involve

automated decisionmaking applications. Agencies

should review their operations to determine

whether incorrect actions are being taken as a result of these applications and insure correct decisions before initiating any new automated decisionmaking applications. NBS should issue

technical guidelines for developing, using, technically evaluating, documenting and modifying these

applications in the Federal Government.

Guidelines should contain certain criteria for independent technical reviews and for monitoring applications to insure problems are detected and cor- rected promptly.

Managers Need to Provide Better Protection for Federal Automatic Data Processing Facilities

May 1976

0MB should issue policy directing that specific

assignments of responsibility for physical security

of ADP systems be made at each Federal instaUtion

using computer systems. Officials should use NBS

guidelines for protecting data processing assets and data when developing and implementing physical security and risk management programs.

Manufacturing Technology—A Changing Challenge

to Improved Productivity

June 1976

National Center for Productivity and Quality of

Working Life should develop a national policy and

appropriate means for achieving balanced productivity growth in the industrial/manufacturing base.

The National Center should seek the cooperation

and assistance of the Department of Commerce

and other appropriate agencies. DoC should

strengthen its efforts to support and develop productivity enhancing technology related to manufacturing, and to encourage others to actively

support these objectives. DoC could serve as a

focal point to coordinate Government and private

work in developing, standardizing, and diffusing

manufacturing technology, and assist state and re- gional productivity organizations in efforts to ad- vance manufacturing technology.

APPENDIX B

ICST PUBLICATIONS

The following is a complete list of the publications of

ICST and its predecessor organizations dating from

October 1965 to December 1975.

All of these publications were prepared under the

authorities assigned to the Secretary of Commerce by

the Brooks Bill. The list is divided into four

categories: Part A lists reports deriving from NBS

scientific and technological advisory services, Parts B and C relate to Federal automatic data processing

standards, and Part D lists reports deriving from NBS

research in computer science and technology. The

research generally supports both scientific

technological advisory services and Federal automatic data processing standards. Many of the documents could have been listed in two or even three of the categories; however, they have been listed only in the category to which they principally relate.

A. Publications related to Scientific and Technological Advisory Services.

B. Completed Federal Automatic Data Processing

Standards and Guidelines.

C. Publications related to the development of Federal Automatic Data Processing Standards and

Guidelines.

D. Pubhcations Reporting on Research in Computer

Science and Technology.

A. Publications related to Scientific and Technological Advisory Services

1965

TELETRAF: Computer Programs for Simulating

Circuit-Switched Telecommunication Networks, P.

S. Shoenfeld, (NBS Report 8995).

1966

The NBS CORD Time Sharing System; T. N. Pyke,

Jr., (NBS Report 9339).

The Concept of Attack Worth of Telecommunications Network Elements, A. J. Goldman, et al, (NBS

Report 9345).

Progress Report on the Development of an Automated Information Storage, Selection and Retrieval System for the Outdoor Recreation Areas in the United States, G. E. Glober, Jr., (NBS Report

9414).

CORD—A Time Sharing Executive for a Research

Facility, T. N. Pyke, Jr., (NBS Report 9423).

78
Report of a Study of Requirements and Specifications for Serial and Monograph Microrecordingfor

the Xational Library of Medicine. E. J. Forbes, et

al. (XBS Report 9446).

Transistorized Building Blocksfor Data Instrumentation, P. G. Stein, (NBS Tech. Note 268).

A Grammarfor Component Combination in Chinese

Characters, B. K. Rankin. III. S. Siegel. A.

McCleUand. and J. L. Tan, (NBS Tech. Note 296).

1967

The \BS CORD Time Sharing System—A Refer- ence Manual, T. X. Pyke. Jr.. iXBS Report 9495i.

Chinese Character Analysis. B. K. Rankin. III. et

al. (NBS Report 9537).

'

Automatic Data Gathering in Precise LaboratoryExperiments, P. G. Stein. (NBS Report 9555).

Study of and Experimentation in Computer Composition ofLibrary Materials. R. W. Worral, et al, (NBS Report 9598).

Shifting Buffer Module. P. G. Stein. (NBS Report

9602).

Buffer Multiplexer Module, P. G. Stein. (NBS Report 9603).

CAS—The CORD Assembly System Assembly Languagefor the .\BS CORD Time Sharing System, C. A. Curtis. (NBS Report 9641).

A Computer-Controlled Calibrator for RadioFrequency Receivers System Description and Programming, P. G. Stein. (NBS Report 9662).

Automatic Typographic-Quality Typesetting Techniques: A State-of-the-Art-Reiieic, M. E. Steven

and J. L. Little, (NBS Monograph 99).

The Solid System. U. Numeric Compression. P. A.

D. deMaine. K. Kloss: andB. A. Marron. The Solid

System. IIL Alphanumeric Compression, P. A. D. deMaine. B. A. Marron. and K. Kloss. (NBS Tech.

Note 413).

Evaluation ofInformation Systems: A Selected Bibliography With Informative Abstracts, M. M. Henderson, (NBS Tech. Note 297 1.

1968

The Organization and Programming ofa Computer

Controlled Scanner (FOSDIC \T), J. M. St. Clair. (NBS Report 9805).

Electromagnetic Pulse Signal Classification and

Identification of Nearby SFERICS in the High Altitude ^l uclear Detection Studies (Hands) Program

Volume 11, R. T. Moore. (NBS Report 9839).

Lsers' Manual for the Pathfinding Importance

Number Generator, A. N. Hobbs. et al. (NBS Report 9924).

A Computer Oriented Single-Fingerprint Identification System. J. H. Wegstein. (NBS Tech. Note

443).

Electronic Composition in Printing, R. W. Lee and

R. W. WorraL Eds.. (NBS Sp. Pub. 295).

Matching Fingerprints by Computer, J. H. Wegstein. J. F. Raffertv and J. Pencak. (NBS Tech.

Note 466).

Connection Tablesfrom Wisivesser Chemical Structure Notations—A Partial Algorithm, G. F. Fraction. J. C. Walker and S. J. Tauber. (NBS Tech.

Note 432).

Input/Output Packages for the Systems 360 Assembly Language Processor, P. A. D. deMaine. (NBS

Tech. Note 433).

Computer Literature Bibliography, W . \S . Youden. I NBS Sp. Pub. 309).

1969

Preliminary Study of Inter-Hospital Communication Interface—Phase I, P. Meissner. et al. (NBS

Report 10 084).

Simulation of Air Traffic Control Radar Beacon

Code Assignment Plans. R. D. Elbourn. (NBS Report 10 117).

Kf, Subsystem Operating and Maintenance Instructions, D. S. Grubb. et al. (NBS Rep^.rt 10125).

.4/! Experiment for the Study of System Design and

Instrumentation for Remote Computer Graphics

L tilizinga Graphical Text Editor. J. A. Hmlson. et

al. (NBS Report 10 143 1.

Data Structures for Computer Graphics. NL IX Abrams. (NBS Report 10 144i. A Semi-Automated Single Fingerprint lilcnlifica- tion System. J. H. "^'ejistein. I NBS Tri h. Note

481).

I se ofa Time Shared Computer System to Control A

Half Effect Experiment. W. Si. Bullis. W. R. Thurber. T. N. Pvke. Jr.. F. H. I bner and A. L. Koenig. (NBS Tec h. Note 510).

79
1970

K System Baseline Configuration, R. T. Moore,

(NBS Report 10 243).

Remote Gamma Source Handling System, J. N.

Strohlein, (NBS Report 10 352).

Documentation of BLOKI and BL0K2—Programs

for Printing of Selected Tape Blocks, D. C. Friedman, (NBS Report 10 445).

A Selective Roll-to-Roll Printerfor Producing Duplicate Microfilm Copies, J. N. Strohlein and T. C. Bagg, (NBS Tech. Note 510).

Automated Fingerprint Identification, J. H. Wegstein, (NBS Tech. Note 538).

The K,a Subsystem, K. M. Gray, (NBS Report 10

501).

K System Baseline Software Volume I, D. C.

Friedman, (NBS Report 10 524).

K System Baseline Software Volume II, D. C. Friedman, (NBS Report 10 524).

Problems of Network Accounting, Monitoring and

Performance Measurement, M. E. Stevens, (NBS

Report 10 559).

1971

The K-System Code Change Detector, U. T. Jones,

(NBS Report 10 450).

Performance Measurement of Interactive Graphics

Systems in Support of Computer Aided Design and

Engineering, T. N. Pyke, Jr., et al, (NBS Report 10

451).

Chemical and Pharmacological Data Management

Users Guide, R. N. Freemire, et al, (NBS Report 10

463).

User's Manual for the ONC Map Plotting Program

SIPLOT, G. R. Bolotsky, et al, (NBS Report 10

545).

The K-System Monitor Console, K. M. Gray, et al, (NBS Report 10 552).

Documentation of "QSCAN'\ A Program for Verifying Upper and Lower-Case Text with Control

Symbols, D. C. Friedman, et al, (NBS Report 10

560).

Chemical and Pharmacological Data Management, M. J. Oldfield, et al, (NBS Report 10 569).

The Word in Patent Text, K. Rankin, (NBS Report

10 584).

Programmer s Manual for the ONC Map Plotting

Program SIPLOT, Z. G. Ruthberg, (NBS Report 10

619).

Performance Test Report on NBS Fortran Single

Precision Tangent and Cotangent, D. W. Lozier, et

al, (NBS Report 10 646).

First Interim Progress Report on NBS Project

WHERE in Support ofUSAAMCA Project MNPLS,

(NBS Report 10 663).

Simulation of Air Traffic Control Radar Beacon

Code Assignment Plans, E. C. Elbourn and J. F. Gilsonn, (NBS Tech. Note 568).

A Survey ofSelected Document Processing System,

E. Fong, (NBS Tech. Note 599).

1972

Acoustic, Ultrasonic and Vibrational Disturbances

Resulting from the Penetration of Conventional

Structural Barriers, R. T. Moore, (NBS Report 10

682).

Time ofFlight Interface Unitfor Computer Recording of Thermal Neutron Flight Times, D. S. Grubb,

et al, (NBS Report 10 697).

User's Manual for Program Defenses, Z. G.

Ruthberg; (NBS Report 10 821).

Final Report NBS Project WHERE in Support of

USAAMCA Project MNPLS, (NBS Report 10 859).

Manual and Automated Fingerprinting Registration, J. H. Wegstein, (NBS Tech. Note 730).

Manual and Computerized Footprint Identification; J. H. Wegstein, (NBS Tech. Note 712).

1973

SETAB: An Edit/Insert Program for Automatic

Typesetting of Spectrosocopic and Other Computerized Tables, R. C. Thompson and J. Hilsenrath,

(NBS Tech. Note 740).

Set of Debugging and Monitoring Facilities to Improve the Diagnostic Capabilities ofa Compiler, E. Fong, (NBS Tech. Note 763).

Controlled Accessibility Bibliography, S. K. Reed

and M. M. Gray, (NBS Tech. Note 780).

Heuristic Cost Optimization of the Federal Telpak

Network, R. G. Saltman, G. R. Bolotsky and Z. G. Ruthberg, (NBS Tech. Note 787).

Review of Network Management Problems and Is- sues, A. J. Neumann, (NBS Tech. Note 795).

80
Characterization and Testing of Interactive

Graphics for Computer-Aided Design and Engineering, S. Treu. (NBSIR 73-289).

Guidelines for the Use of Computer Technology in the Developing Countries, R. A. Simmons, (NBSIR

73-423).

1974

Field Service Test Model: Computer-Controlled U

System. Operations Manual and Software Operating System Appendices for the Automated System,

K. M. Gray and J. R. Ellis, informal report.

Network User Information Support, A. J. Neumann, (NBS Tech. Note 802).

Computer Networking: Approaches to Quality Service Assurance; R. B. Stillman, (NBS Tech. Note

800).

A Guide to Networking Technology; R. P. Blanc,

(NBS Techn. Note 803)

Review of Computer Networking Technology, R. P. Blanc, (NBS Tech. Note 804).

Network Management Survey, I. W. Cotton, (NBS

Tech. Note 805).

Government Looks at Privacy and Security in Computer Systems, C. R. Renninger and D. K.

Branstad, (NBS Tech. Note 809).

A Mechanized Information Service Catalog, B. Marron, E. Fong and D. Fife, (NBS Tech. Note

814).

A Technical Index of Interactive Information Systems, D. Fife, K. Rankin, E. Fong, J. Walker and B. Marron, (NBS Tech. Note 819).

Cost-Benefit Analysis of Computer Graphics Systems, I. W. Cotton, (NBS Tech. Note 826).

Controlled Accessibility Workshop Report, S. K. Reed and D. K. Branstad, (NBS Tech. Note 827).

Multicommodity Network Plotting via Program

NETPLT; Z. G. Rutherberg, G. R. Bolotsky and W.

Slater, Jr., (NBS Tech. Note 829).

Report on Planning Session on Software Engineering Handbook, S. L. Stewart, (NBS Tech. Note

832).

Information Handling Needs Within the U.S. Patent Office, S. Jeffrey, (NBS Tech. Note 834).

Barrier Penetration Tests, R. T. Moore, (NBS

Tech. Note 837j.

Cost Analysis for Computer Communication, R. P. Blanc, (NBS Tech. Note 845).

Dataplot 70: FORTRAN-Callable Plotting

Routines, C. V. Young and P. G. Stein, (NBS Tech.

Note 847).

Approaches to Privacy and Security in Computer

Systems, C. R. Renninger, (NBS Sp. Pub. 404).

Benchmarking and Workland Definition; A

Selected Bibliography with Abstracts, J. L. Walkowicz, (NBS Sp. Pub. 405).

Annotated Bibliography Forecasting, M. M. Gray

and D. A. Nagy, (NBSIR 74^63).

Development of a National Anthropometric Data

Base: A Preliminary Study Report, H. L. Steinbert, (NBSIR 74-506).

Remittance Processing System, P. D. Shupe, Jr., P. Meissner and J. R. Park, (NBSIR 74 577-1).

Report of Conference on Making Service Industries

More Productive Through Computers and Automation, M. Henderson and A. McAdams, (NBSIR 74

515).

1975

Cost Recovery in Pricing and Capacity Decisions

and Automated Information Systems, J. A. Dei

Rossi, (NBS Tech. Note 864).

Computer Program Packagefor Metric Conversion:

Reference Manual, R. K. Anderson and J. O. Harrison, Jr., (NBS Tech. Note 872).

Software Testing and Network Services, R. B. Stillman and B. Leong-Hong, (NBS Tech. Note

The Service Concept Applied to Computer Networks, M. D. Abrams and I. W. Cotton, (NBS

Tech. Note 880).

The M40 Fingerprint Matcher, J. H. Wegstein,

(NBS Tech. Note 878).

Six Data Base Management Systems: Feature

Analysis and User Experience, E. Fong, J. CoUica

and B. Marron, (NBS Tech. Note 887).

Exploring Privacy and Data Security Costs-A

Summary of a Workshop, J. L. Berg, (NBS Tech.

Note 876).

Effective Use of Computing Technology in VoteTallying, R. G. Saltman, (NBSIR 75-687).

81
B. Completed Federal Automatic Data Processing

Standards and Guidelines

1968

General Description ofFIPS Register, (FIPS PUB

0).

Code for Information Interchange, (FIPS PUB 1).

Perforated Tape Codefor Information Interchange,

(FIPS PUB 2).

Calendar Date, (FIPS PUB 4). 1969

Implementation of Code for Information Inter- change, (FIPS PUB 7).

Congressional Districts of the U.S., (FIPS PUB 9). 1970

States and Outlying Areas of the U.S., (FIPS PUB

S-1).

1971

Vocabulary for Information Processing, (FIPS

PUB 11).

Rectangular Holes in 12-Row Punched Cards,

(FIPS PUB 13).

Hollerith Punched Card Code, (FIPS PUB 14).

Subsets of Standard Code for Information Inter- change, (FIPS PUB 15). Bit Sequencing of Code for Information Inter- change in Serial-By-Bit Data Transmission, (FIPS

PUB 16).

Character Structure and Character Parity Sensefor

Serial-By-Bit Data Communication in Codefor In- formation Interchange, (FIPS PUB 17).

Character Structure and Character Parity Sensefor

Parallel-By-Bit Data Communication in Code for

Information Interchange, (FIPS PUB 18). 1972

Guidelines for Registering Data Codes, (FIPS PUB

19).

Guidelines for Describing Information Interchange

Formats, (FIPS PUB 20).

Synchronous Signaling Rates Between Data Ter- minal and Data Communication Equipment , (FIPS

PUB 22).

1973

Recorded Magnetic Tape for Information Inter- change (800 CIP, NRZI), (FIPS PUB 3-1).

Coun tries and County Equivalents of the States of

the U.S., (FIPS PUB 6-2).

Objectives and Requirements, (FIPS PUB 23).

Flowchart Symbols and Their Usage in Information

Processing, (FIPS PUB 24).

Recorded Magnetic Tape for Information Inter- change (1600 CIP, PE), (FIPS PUB 25).

One-Inch Perforated Paper Tape for Information

Interchange; (FIPS PUB 26).

Take-Up Reels for One-Inch Perforated Tape,

(FIPS PUB 27).

Standardization of Data Elements and Representations, (FIPS PUB 28).

1974

Standard Metropolitan Statistical Areas (SMSAs),

(FIPS PUB &-4).

Countries, Dependencies, and Areas and Special

Sovereighty, (FIPS PUB 10-1).

Federal Information Processing Standards Index,

(FIPS PUB 12-2).

Interpretation Procedures for Federal Standard

COBOL, (FIPS PUB 29).

Software Summary for Describing Computer Programs and Data Systems, (FIPS PUB 30).

Guidelines for ADP Physical Security and Risk

Management, (FIPS PUB 31).

Optical Character Recognition Character Sets,

(FIPS PUB 32).

Character Set for Handprinting, (FIPS PUB 33).

1975

COBOL, (FIPS PUB 21-1).

Guidefor Use ofInternationl System of Units (SI) in Federal Information Processing Standards Publications, (FIPS PUB 34).

Code Extension Techniques in 7 or 8 Bits, (FIPS

PUB 35).

Graphic Representation of Control Characters of

ASCII, (FIPS PUB 36).

82
Synchronous High Speed Data Signaling Rates Between Data Terminal Equipment and Data Communications Equipment, (FIPS PLB 37).

Computer Security Guidelines for Implementing

Privacy Act of 1974, (FIPS PUB 41).

Guidelines for Benchmarking ADP Systems in Competitive Procurement Environment, (FIPS

PUB 42).

Aids for Program COBOL Conversion (FIPS 21-

21-1), (FIPS PUB 43).

C. Publications related to the development of Federal Automatic Data Processing Standards and

Guidelines

1966

Cooperation, Convertibility, and Compatibility

Among Information Systems: A Literature Review,

M. M. Henderson. V. E. Giiiliano and L. B. Heilprin, (NBS Misc. Pub. 276).

1969

CODASYL COBOL, (\BS Handbook 106).

Some Evolving Conventions and Standards for

Character Information Coded in Six, Seven and

Eight Bits, J. L. Little. (NBS Tech. Note 478).

1970

Standardization, Compatibility and/or Convertibility Requirements in Network Planning, M. E. Stevens, (NBS Report 10 252).

Performance Measurement of Remote Access Computer Systems, M. D. Abrams, (NBS Report 10

381).

1972

Calibration ofSecondary Standard Magnetic Tape

Cassettes (Computer Amplitude Reference) , S. B. GeUer and P. A. Mantek, (NBS Tech. Note 731).

A Computer Terminal Network for Transparent

Simulation of the User of an On-Line Retrieval

System, S. Treu, (NBS Tech. Note 732).

A Universal Dropout Tester for Magnetic Storage

Media, S. Geller, (NBS Tech. Note 739).

1973

User Procedures Standardization for Network Access, A. J. Neumann, (NBS Tech. Note 799).

1974

A Technical Guide to Computer-Communications

Interface Standards, A. J. Neuman. B. G. Lucas. J. C. Walker and D. W. Fife, (NBS Tech. Note 843).

CODASYL Data Description Language, (NBS

Handbook 113).

A FORTRAN Analyzer, G. Lyon and R. Stillman.

(NBS Tech. Note 849).

The CORASYL Data Base Approach: A COBOL

Example ofDesign and Use of a Personnel File, E. H. Sibley, (NBSIR 74^500).

Standards Analysis for Future WWMCCS Computer Networking, D. Fife, informal report.

NBS FORTR.\N Test Programs, Vols. 1,2,3, F. E. Holberton and E. Parker. (NBS Sp. Pub. 399).

Computer Performance Evaluation. H. J. Highland, (NBS Sp. Pub. 401).

1975

Computer Performance Evaluation: Report of the 1973 NBS/AMC Workshop, T. E. Bell. B. W.

Boehm and S. Jeffrey, (NBS Sp. Pub. 406).

Proposed Implementation for Development of

User-terminal Protocols for Computer Xetuork Access, A. J. Neumann. (NBSIR 75-744).

Criteria for the Performance Evaluation of Data

Communications Sen ices for Computer Networks,

D. S. Grubb and I. W. Cotton. (NBS Tech. Note

882).

A Basis for Standardization of User-Terminal Protocols for Computer Network Access, A. J. Neumann. (NBS Tech. Note 877).

D. Publications Reporting on Research in Computer Science and Technology

1965

WorA- Towards Chemical Structure Manipulation

Stephen J. Tauber. et al. (NBS Report 9007)

Special Purpose Control Module. Andrew T. Prvzbylik. (NBS Report 9064).

Statistical Association Methods for Mechanized

Documentation. W. E. Stevens. \ . E. Gniliano. and

L. B. Helilprin. (NBS Misc. Pub. 269).

83
1966

Very High Speed Transient Recorder, Don R.

Boyle, et al, (NBS Report 9032).

A Punched Paper Tape to Digital Magnetic Tape

Converter, Andrew T. Pryzbylik (NBS Report

9325).

MOBIDIC - Teletype Interface, Orrington R. Hall,

(NBS Report 9338).

Programmed Teaching and Testing with a Digital

Computer, J. H. Wegstein, et al (NBS Report 9372).

Experimental Display Sub-system, N. Carlton

Montague, (NBS Report 9345).

1967

A Computer Test Program to Assess Adroitness in Indexing Operations, George W. Reitwiesner,

(NBS Report 9470).

Wide Band, Large Dynamic Range EMP Receiver,

Don R. Boyle, et al, (NBS Report 9556).

Legibility of Alphanumeric Charades and Other

Symbols, D. Y. Cornog and F. C. Rose, (NBS Misc.

Pub. 262-2).

Systems Designfor the Selective Information Extrator Prototype, Armando Severo, et al, (NBC Report

9538).

A Computer-Controlled Calibrator for RadioFrequency Receivers System Construction and Operation, Philip G. Stein, (NBS Report 9663).

1968

A File System for Chemical and Biological Infor- mation, Stephen J. Tauber, et al, (NBS Report

9932).

Man-Machine System Organization Final

Report—Phase I, Thomas N. Pyke, Jr., (NBS Report 10 051).

The CL6 Conversational List Processing System,

Richard A. Siegler, (NBS Report 9966).

GRASS a Graphical Assembler for Magic II, J. A. Hudson, (NBS Report 9955).

Magic II, A Remote Graphical Display Terminal,

D. E. Rippy, (NBS Report 9956).

Valuation of Telecommunications, S. C. Strom, et

al., (NBS Report 9977).

Nonnumeric Data Processing in Europe: A Field

Trip Report, M. E. Stevens, (NBS Tech. Note 462).

1969

A Set ofElementary Picture Processing Algorithms,

J. A. Hudson, et al, (NBS Report 9978).

LLLAMA—A Low Level Languagefor Assistance in Measurements Automation, P. G. Stein, (NBS Report 10 147).

Auxiliary Data Readout System, W. B. Truitt,

(NBS Report 10 187).

1970

Component Combination andFrame-Embedding in Chinese Character Grammars, K. Rankin and J. L. Tan, (NBS Tech. Note 492).

1971

Interlocking Directories—Problems and Prospects

of Network Referral Resources, M. E. Stevens,

(NBS Report 10 473).

Eliminating Pairs of Digits with Equal Distances

from Strings with Check Digits, G. W. Reitw^iesner,-

(NBS Report 10 639).

A Bit Comparison Program for Algorithm Testing, D. W. Lozier, et al., (NBS Report 10 449).

A Preliminary Design of a Data Retrieval Language to Handle a Generalized Data Base: DRL, E. Fong, (NBS Tech. Note 590).

Fortran Program for Arbitrary Precision Arithmetic, L. C. Maximon, (NBS Report 10 563).

A Networking Embedding Problem, B. Marron, et

al, (NBS Report 10 617).

1972

The National Bureau of Standards^ Linear and

Quadratic Programming Subroutines, W. G. Hall,

et al, (NBS Report 10 695).

Transparent Stimulation of a Computer, S. Treu,

(NBS Report 10 863).

A Set ofProblems to Evaluate Scientific Computers,

G. W. Reitwiesner, (NBS Report 10 883).

Policing Transcription and Transposition Errors by a Single Check Digit Modulo 10 and 11, G. W.

Reitwiesner, (NBS Report 10 886).

The Effects ofMagnetic Fields on Magnetic Storage

84
Media Used in Computers, S. B. Geller, (NBS

Tech. Note 735).

1973

A Performance Comparison ofLabeling Algorithms

for Calculating Shortest Path Trees, J. Gilsinn and

C. WitzgaU, (NBS Tech. Note 772).

Data Communications System Throughput Per- formance Using High Speed Terminals on the Dial

Telephone Network, D. S. Grubb, (NBS Tech. Note

779).

A Study of Six University-Based Information Sys

tems, B. Marron, E. Fong, D. W. Fife and K. Rankin, (NBS Tech. Note 781).

Static Language Analysis, G. Lyon, (NBS Tech.

Note 797).

1974

Complete Clear Text Representation of Scientific

Documents in Machine -Readable Form, B. C.

Duncan and D. Garvin, (NBS Tech. Note 820).

Research Considerations in Computer Networking

to Expand Resource Sharing, D. W. Fife, (NBS

Tech. Note 801).

Concepts in Quality Software Design, S. L.

Stewart, (NBS Tech. Note 842).

Computer System Capacity Fundamentals, D. J. Kuck, (NBS Tech. Note 851).

1975

Mathematics and Engineering in Computer Sci- ence, C. J. Van Wyk, informal report.

85

6 U.S. GOVERNMENT PRINTING OFFICE: 1977 O—219-902
III
NBS-114A .REV. 7-731

U.S. DEPT. OF COMM. BIBLIOGRAPHIC DATA

SHEET

1. PUBLICATION OR REPORT NO. NBSIR 76-11132. Gov't Accession

No.

3. Recipient's Accession No.

4. TITLE .\XD SUBTITLE

A Ten Year History of National Bureau of Standards

Activities Under the Brooks Act

5. Publication Date February 1977

6. Performing Organization Code

Editors: Grace Burns and Shirley Radack

8. Performing Organ. Report No.

9. PERFORMING ORGANIZATION NAME AND ADDRESS

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

10. Project Task Work Unit No.

11. Contract/Grant No.

12. Sponsoring Organization Name and Complete Address (Street, City, State, ZIP)

National Bureau of Standards

Department of Commerce

Washington, D.C. 20234

13. Type of Report & Period Covered

14, Sponsoring Agency Code

15. SUPPLEMENTARY NOTES

16. ..\BSTRACT (A 200-word or less factual summary ol most sigpidcant information. If document includes a significant

bibliography or literature survey, mention it here.)

This report presents the principal findings of a National Bureau of Standards task

force which reviewed the activities and accomplishments of NBS from 1955 to 1975

under Public Law 89-306, the Brooks Act. The Brooks Act is concerned with the

effective use of computers by the Federal Government and assigns the National

Bureau of Standards responsibility for providing scientific and technological

advisory services for automatic data processing, developing uniform Federal ADP

standards and undertaking necessary research in computer science and technology.

Program activities and a history of funding for each of these three major

responsibilities are covered. Also included are case studies of individual

program initiatives.

17. KEY WORDS (six to twelve entries; alphabetical order; capitalize only the first letter of the first key word unless a proper name; separated by semicolons

Brooks Act; ADP standards; computer science research; computers in the Federal

Government; scientific and technological advisory services

18. AVAILABILITY Unlimited 19. SECURITY CLASS

(THIS REPORT)

21. NO. OF P.A.GES

1 For Official Distribution. Do Not Release to NTIS UNCL ASSIFIED 84

1 Order From Sup. of Doc, U.S. Government Printing

Washington, D.C. 20402,

Office 20. SECURITY CLASS

(THIS PAGE)

22. Price

1 ^ Order From National Technical Information Service

Springfield, Virginia 221 fl (NTIS) UNCLASSIFIED

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