^ii^. O'M

NBSIR 80-2026

MAY 2 '980

Coordinated Measurement

Services at the National Bureau

of Standards

Authors:

Brian C. Belanger

David E. Edgerly

Albert D. Tholen

(Introduction by Arthur 0. McCoubrey)

Directorate of Measurement Services

National Measurement Laboratory

National Bureau of Standards

U.S. Department of Commerce

Washington, D.C. 20234

November 1979

Issued May 1980

Prepared for: National Bureau of Standards

U.S. Department of Commerce

Washington, D.C. 20234

NBSIR 80-2026

COORDINATED MEASUREMENT

SERVICES AT THE NATIONAL BUREAU

OF STANDARDS

Authors:

Brian C. Belanger

David E. Edgerly

Albert D. Tholen

(Introduction by Arthur O. McCoubrey)

Directorate of Measurement Services

National Measurement Laboratory

National Bureau of Standards

U S. Department of Commerce

Washington, D.C. 20234

November 1979

Issued May 1 980

I

Prepared for: National Bureau of Standards

U.S. Department of Commerce

Washington, D.C. 20234

U.S. DEPARTMENT OF COMMERCE, Philip M. Klutznick, Secretary

Luther H. Hodges, Jr., Deputy Secretary

Jordan J. Baruch, Assistant Secretary for Productivity, Technology, and Innovation

NATIONAL BUREAU OF STANDARDS, Ernest Ambler, Director
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Coordinated Measurement Services at the

National Bureau of Standards

TABLE OF CONTENTS

Introduction ii-j

Office of Weights and Measures

Introduction 1 Problem on National Level 1 NBS Responsibility 1 OWM Mission 3

Interactions 4

Program Activity 6

Major Objectives 6

Technical Activities 7 Railroad Track Scale Calibration Program 7 Education Programs 7 Study of State Needs 7 Redesign of Delivery Mechanisms 8

State Laboratory Programs 8

Type Approval 8

Transfer of Metric Activities 9

Impact of New Technology 9

Critical Issues 10

Activity Summary 11

Sponsored Conferences /Supported Conferences 11 Invited Talks 12

Office of Weights and Measures' Publications - FY 1979 15

Seminars - FY 1979 16

Training Schools - FY 1978 17

Office of Weights and Measures' Special Reports - FY 1979 .... 19

Special Activities 20

Technical and Professional Committee Participation and

Leadership 21

Consulting and Advisory Centers 23

Staffing Plan 24

Office of Measurement Services

Introduction - Mission, Functions, and Interactions 27

Program Activity - Calibration and Measurement Services 29

MAP Program Development 32

Policy and Planning 32

Statistical Consulting 32

Electrical Measurement Assurance Development Projects 33

Temperature Measurement Assurance Development Projects 34

Spectrophotometry Measurement Assurance Development Projects . 35

Regional MAP (RMAP) Development 35

Microwave Power 36

X-Ray Radiation Exposure to 150 KeV 36

Force 37
D-C Electrical Measurements 37

PMTE Project 38

Background 38

Objectives 39

Actions to Date 39

Plans for FY 1980 46

Other OMS Activities ' 48

Office of Domestic and International Measurement Standards

Introduction 54

Background 54

ODIMS Mission 54

Interactions 55

Program Activity 55

Major Objectives 55

Technical Activities 56

United States Participation in OIML 56

Coordinating NML Involvement in Domestic and International

Voluntary Standards Activities 58

Supporting Bilateral and Multilateral Scientific and

Technological Programs for NML Cooperation with Foreign

Institutions 59

Activity Summary 61

Draft OIML International Recommendations Reviewed by the

United States 61

U.S. Participation in OIML International Meetings 62

Meetings in Support of Bilateral Science and Technology

Agreements 63

Meetings in Support of Technical Assistance Programs 63

Meetings in Support of Special Foreign Currency Program

Grants 63

Special Publications 64

Appendix A - Highlights of Draft OIML International Recommendations Published by U.S. National Working Groups 65

Appendix B - Highlights of Selected OIML Draft International

Recommendations Reviewed by the United States 68
Coordinated Measurement Services

at the

National Bureau of Standards

Introducti on

The realization of accuracy for measurements made throughout the

United States requires traceability to national reference standards

which are maintained by the National Bureau of Standards (NBS). The

services of NBS which are necessary for traceability, broadly classified

as measurement services , are generated in the scientific and technical

Centers of the National Measurement Laboratory (NML) and the National

Engineering Laboratory (NEL) , the major operating units of NBS having

measurement related assignments. NBS measurement services flow from

their many internal sources outward to meet the needs of users widely

distributed throughout the nation. Special program offices within NML

function to coordinate these services and to provide responsive points

of contact for those who need them. Functions of these offices include

calibrations, services for the assurance of measurement quality, measurement practice publications, assistance to external institutions in the

training and education of metrologists and the promotion of good measurement system operations throughout the United States. These coordinating offices are^:

0 Offi

c

e of Wei ghts and Measures (OWM) - responsible for the measurement service reauirements of state and local government agencies.

^Additional NML measurement service program offices discussed elsewhere are

0 Office of Standard Reference Materials

0 Office of Standard Reference Data

i i i
0 Off i ce of Measurement Servi ces (OMS) - responsible for the measurement service requirements of private industry and other agencies

of the Federal Government.

The programs of NML also include, in addition to measurement reference

standards and related measurement services, the participation of many professional staff members in the work of voluntary standards writing committees, the development of international standards for legal measurement

practice, and international cooperative research. The objectives of these

activities are to promote the i ncorporation of good measurement practice

into domestic voluntary standards for products and methods, the incorooration of United States practices in international voluntary and legal

measurement standards and domestic benefits from measurement related

research in other nations. The coordination of all of these activities

2 within NML is the responsibility of the following:

0 Offi ce of Domes ti

and Internati onal Measurements Sta ndards (GDI MS) -

responsible for oversight and coordination of NML participation in

domestic and international voluntary standards development, international standards of legal measurement practice, and research

cooperation with foreign institutions.

The coordinating activities of OWM, OMS, and ODIMS are integrated

together through close association of all programs within the Directorate

for Measurement Services (DMS). The following pages of this document

describe the activities, objectives and plans for each of these three

2The coordination of domestic standards activities in NEL is the responsibility

of the Office of Engineering Standards.
offices in detail. This information was prepared for the DMS Evaluation

Panel of the National Academy of Sciences/National Academy of Engineering.

It is published here with the hope that it will also be useful to a wider

interested readership.

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10 . Office of Weights and Measures

Technical Activities

1 . Introduction

1.1. Problem on National Level

Although the Constitution empowers Congress "...to fix the standards

of weights and measures," the United States is unique among the nations

of the world in that no compliance method for controlling weights and

measures is exercised at the national level. The only basic actions of

the Federal Government in this field have been the Mint Act of 1828

establishing early standards and an act of 1866 legalizing the metric

system of measurement in this country. Many courts, both State and

Federal, have ruled that as long as Congress does not exercise its power

in this area, the rights of the individual States are not diminished.

Thus, the regulation of weights and measures in commerce and industry

has been left largely to the States and their political subdivisions to

administer.

More than 775 separate jurisdictions exist in this country including

States, countries, and cities. It is the responsibility of the State

and local officials to see that equity prevails in all commercial

transactions.

1.2. NBS Responsibility

The task of monitoring our national standards remained in the

Treasury Department throughout the nineteenth century under the direct

supervision of a small office known as the Office of Standard Weights

and Measures. In 1901 Congress renamed this small office the National

Bureau of Standards and greatly increased its functions and activities.

The functions of NBS that are directly related to weights and measures

fall into three categories; (1) the custody of the standards, (2) the

metrological services, and (3) the advisory services to the States and

industry. The Bureau provides the States, without charge, calibration

services that result in precise values for their basic reference

standards of mass, length, and capacity.

Since NBS has no enforcement authority in the weights and measures

area, it consequently, plays a unique role in weights and measures administration. The primary goal of the States is enforcement while

the primary goal of NBS is to provide technical services to the States

necessary to bring about nationwide uniformity in weights and measures

enforcement. The Bureau provides this technical service to the States

through its Office of Weights and Measures. This service is all the more important today considering the revolution in technology taking place.

For example, weights and measures officials are being faced with

1
certifying the accuracy of scales tied to laser product code scanners

and price computers or of digital readout gasoline pumps with microprocessor interfacing. The Office of Weights and Measures must provide

technical leadership in these areas. Uniform testing equipment and procedures must be developed, model legal requirements provided, and a training program carried on with the guidance of the National Bureau of

Standards.

Under our system of State and local enforcement of weights and

measures laws and regulations, it would seem that nonuniformity would be

inevitable. Such is not the case largely due to the program of cooperation

with the States carried on by NBS through the Office of Weights and Measures.

Most notably, OWM sponsors the National Conference on Weights and Measures,

a voluntary organization of Federal, State, and local officials and has

annually conducted this national forum since 1905. This office, through

the National Conference on Weights and Measures, plans and conducts a program of assistance to State and local weights and measures officials

and business and industry in the many phases of weights and measures

supervision. The range of services provided includes drafting of new legislation, interpretation of laws, development of specifications,

tolerances, and testing methods and the design of testing equipment.

In the Directorate for Measurement Services today, there is great

potential for synergism as a result of the combined efforts of the Office

of Weights and Measures with the Office of Measurement Services and the

Office of Domestic and International Measurement Standards. For example,

the National Conference on Weights and Measures will influence and be

influenced by the International Organization of Weights and Measures

in many aspects of U.S. legal metrology. In addition, the National

Conference of Standards Laboratories will be increasingly called upon

(as v/as the National Conference on Weights and Measures in the past)

to serve as a forum for State metrology laboratories serving their

industries. Weights and measures has a long history and a bright future.

2
1.3. OWM Mission

The State Weights and Measures Program provides technical services

to ensure accurate and equitable commercial transactions involving

quantity measurements and standard vyeights and measures regulations,

procedures, and associated devices used in the 50 States. The Organic

Act of the National Bureau of Standards (15USC271) specifically

authorizes

° the testing, calibration, and certification of standards and

standard measuring apparatus;

° the study and improvement of instruments and methods of measurements ; ° the investigation and testing of railroad track scales, elevator

scales, and other scales used in weighing commodities for interstate shipment;

° cooperation with the States in securing uniformity in weights and

measures laws and methods of inspection;

° the preparation and distribution of standard samples such as those

used in checking chemical analyses, temperature, color, viscosity,

heat of combustion, and other basic properties of materials; also

the preparation and sale or other distribution of standard instruments, apparatus and materials for calibration of measuring

equipment.

The major functions of the office are delineated on the organization

chart;

(1) National Conference on Weights and Measures (NCWM). The Office

of Weights and Measures (OWM) sponsors the NCWM, a voluntary organization

of weights and measures officials who meet annually to study and resolve

weights and measures issues. The keys to the weights and measures system

in the U.S. are cooperation and communication. Thus, a major part of this

function is the facilitation of communication and information among the

individual regulatory jurisdictions and NBS. A training program and numerous publications for the NCWM membership are important parts of this program.

(2) Metric Assistance and Model Law Development. The iletric Conversion Act of 1975 specifically requests the Secretary of Commerce to work

with the NCWM to "assure that State and local weights and measures officials

are (i) appropriately involved in metric conversion activities and (ii)

assisted in their efforts to bring about timely amendments to weights and

measures laws..."

The OWM, working with the newly established U.S. Metric Board, has

transferred many of its activities to the Board especially those involving

response to the enormous public request for information.

3
One of the most important methods of achieving uniformity in weights

and measures laws is to negotiate, under the auspices of the NCWM,

standardized or "model" regulations with the jurisdictions who must

enforce such regulations and industries and public affected by such

regulations. States can then voluntarily adopt such models for their

own use and have confidence that such regulations represent concensus

standards and will not interfere with interstate commerce. These model

regulations are studied and updated or added to annually through the NCWM.

(3) Advanced Science and Technology Applications. The OWM provides

technical expertise to State and local weights and measures agencies and

their constituency in new technological areas. A technological revolution

is now taking place. High speed dynamic measurements using microprocessor

control and other sophisticated electronic component systems are becoming

common in the marketplace. State weights and measures officials are being

faced with certifying the accuracy of scales tied to laser product code scanners and price computers, grain moisture measurement devices, digital

readout gasoline pumps, all of which may or may not be electromagnetical ly or otherwise compatible with their environments. OWM provides the technical

leadership for dealing with these challenges.

(4) State Traceability Services. In 1966, Congress appropriated funds

to equip the 50 States, D.C., Puerto Rico, and the Virgin Islands with

artifact standards and equipment for mass length and volume measurements

in U.S. customary and metric units. This program was completed October 1978.

A program to train State metrologiests and examine these laboratories has

been in existence since 1966. In order to maintain credibility in these

laboratories as traceable to NBS and to prepare them for measurement demands

by their local industries in the future, a new Laboratory Auditing Program

has been designed.

(5) Special Technical Services for States. Many consider the major

output of the NCWM to be Handbook 44 "Specifications, Tolerances and Other

Technical Requirements for Commercial Weighing and Measuring Devices."

This code book is modified, added to, and updated continually. MBS publishes

it for the NCWM and OWM provides interpretations and other consultation on

it and the devices to which it pertains on a daily basis. OWM also provides

evaluations on a cost recovery basis of new device designs with respect to

the performance standards contained in Handbook 44. Test procedures and

techniques are developed for such devices through this program.

1.4. Interactions

Within NBS: OWM interacts with many technical groups within NBS, providing a delivery mechanism for their work and translating their scientific

and technical products into understandable, problem specific responses for

OWM constituency. For example., the artifact standards and equipment now

in the possession of the States were calibrated by NBS experts. The codes

and handbook on LPG vapor and liquid test and equipment were developed in
close cooperation with the cryogenics experts at NBS Boulder. The handbook

on package testing methods was developed with the Statistical Engineering

Division. The methods developed for testing grain moisture meters were devised with humidity experts at NBS.

Currently, coordination is directed toward development of new technology for laboratory and field use at the State level specifically:

(1) a mass comparitor, and (2) fluid meter proving.

The Office of Weights and Measures is developing an increasing programmatic relationship with a large number of organizational units within

NBS, particularly those involved in research which might lead to improved

and new capabilities for use by States in their laboratory and field

activities. These organizations are:

Office of the Director of Administrative and Information Systems

(Particularly Divisions 341, 344 and 346) Development of new MAP

computer programs, and conversion of publications to word processing.

Center for Absolute Physical Quantities

(Particularly Divisions 521, 522, and 523) Electrical and temperature

calibration services at the State level. Development of mass comparator.

Center for Thermodynamics and Molecular Science

(Particularly Division 544) Assistance to States in establishing

pressure calibration services.

Center for Electronics and Electrical Engineering

(Particularly Division 723) Assisting States in dealing with EMl/RFl

phenomena.

Center for Mechanical Engineering and Process Technology

(Particularly Division 732) Need by States for technology to deal

with high speed, high quantity fluid measurement and meter proving.

Center for Consumer Product Technology

(Center Headquarters) OWM subcontracting for services of Eric Vadelund

in FPLA and Model Laws and Regulations development.

Office of International Relations

Participants in visits of foreign weights and measures and standards

officials. Conducts annual weights and measures workshops for

foreign weights and measures officials.

OWM works with a multitude of businesses and associations (mailing

list numbers approximately 8,000), other Federal agencies and departments

(including USDA, FGIS, FTC, FDA, DoT, DoD and OIML).

5
Outside NBS: OWM's constituency is the State and local weights and measures jurisdictions. As a result, there is very close and continuous

interaction with regulatory officials, regulated industries, device manu- facturers, service companies, other Federal agencies and the public.

For example, packaging and food manufacturers, scale companies, device

repair firms, consumer organizations, fabric and grain mills, railroads,

the U.S. Department of Agriculture, and a host of other groups contact

OWM and are contacted by OWM and working with OWM on issues of specific

interest throughout the year. Internationally, OWM coordinates U.S.

weights and measures input of International Organization of Legal Metrology

(OIML) actions. OWM is technical advisor for OIML Pilot Secretariat 7 "Measure of Mass .

2. Program Activity

Major resources of OWM are devoted to providing technical leadership

to weights and measures agencies and their impacted industries. Besides

sponsoring the National Conference on Weights and Measures, OWM participates

in and addresses all the regional weights and measures association conferences, many State meetings, a great number of trade and consumer association

conferences and individual industry meetings (see appendix, section a.).

An enormous amount of written correspondence on general and specific weights

and measures issues is produced by the staff of OWM. For example, in the

category of information, over 1500 letters were composed in FY 1979 (see

appendix, section e.). In FY 1979, training was conducted involving most

of the 50 States with nearly 1500 industry and government officials

participating (see appendix, section d.).

2.1. Major Objectives

(1) NCWM; to make legal metrology uniform among the States and local

jurisdictions by providing delivery mechanisms for weights and measures

technical and standards information.

(2) Metric Assistance and Model Law Development: to make legal

metrology uniform among the States and local jurisdictions by developing

and assisting in adoption of model legislation and guidelines and assisting the States in their metrication activities.

(3) Advanced Science and Technology Applications: to make legal

metrology uniform among the States and local jurisdictions by developing

technical procedures, measurement techniques and devices tor use '/ ;>taie

agencies

(4) State Traceability Services: to provide traceability 1 loi.-.-ia

reference standards by providing oversight, evaluation, ana guidance to

State weights and measures laboratories.

(5) Special Technical Services for States: to make legal metrology

uniform among the States by developing device and user codes, and

specifications and guidelines.

6
2.2.

Technical Activities

2.2.1. Railroad Track Scale Calibration Program

Operation of the Railroad Track Scale Calibration Program has been

transferred to the U.S. Department of Agriculture, Federal Grain

Inspection Service (FGIS) as of October 1, 1979. Plans have been

developed, and letters of intent written whereby the State of Illinois'

Bureau of Product Inspection and Standards will assume operation of the

NBS Clearing facilities (and master scale) on July 1, 1980; Illinois

will operate Clearing as an extention of their metrology laboratory and

provide calibration services to FGIS in support of the railroad track

scale program.

Detailed planning for transfer of Clearing facility (and master

scale) to Illinois Bureau of Product Inspection and Standards effective

July 1, 1980; planning will include training of State metrology

laboratory personnel in calibration of large mass standards and

establishment of related measurement assurance program.

2.2.2. Education Programs

Progress has been made toward establishment of measurement

services curriculum at the university level, both in undergraduate

and graduate programs. The primary effort involves planning

involving NBS, the NCWM, the NCSC, Texas A&M University, State

officials and business interests. Development of an education program

in measurement sciences will include the conduct of a workshop

involving university, industry. Federal, and State regulatory officials

and the establishment of an Advisory Council on Education.

2.2.3. Study of State Needs

A proposal has been developed, funds obligated, and bids requested

for a study of the needs for accurate and uniform physical or chemical

measurements at the State level which derived from Government laws

and regulations. The most important and critical factor for planning

for the future of OWM is the need to obtain a clear understanding of

the weights and measures system (regulatory, industrial and public) in

the U.S. and how NBS can maximixe its services within such a system.

No one knows exactly how the sectors interact from State to State,

what methods and legal arrangements are superior, and how such a system

should develop or change in the coming years. As a result, OWM reacts

to perceived needs without a perfect grasp on where to lead the Nation

in the future. A carefully planned and comprehensive study of

weights and measures in the U.S. is critically needed. It is difficult to discuss any definite long range plans of the OWM without the

information which such a study would provide.

7
A contract will be awarded for conduct of the study on the needs

for accurate and uniform physical or chemical measurements at the State

level with completion of the first phase of the 36 month study during

the next 12 months.

An initiative was also developed and considered by the NBS

management dealing with expansion of State capabilities beyond mass,

volume, and length; specifically establishing measurement skills and

facilities at the State level to support regulatory activities in

the safety, health, and environmental areas.

NBS is currently assisting the State of Nebraska establish the

capability to provide services in pressure calibration for industry

in Nebraska and contiguous States.

2.2.4. Redesign of Delivery Mechanisms

Plans have been made, and the first results realized, for use of

word processing in the production and updating of OWM publications

(Handbook 44, and the new Handbook 130 are the initial products).

Additional NBS publications (including replacement for Handbook 67,

NCWM proceedings, and Handbook 112) will be put into word processing;

all will be updated annually as a result of this new capability

(Handbook 67 was issued March 1959 and not updated since, Handbook 112 was issued in June 1973 and not updated since).

A reorganization of training programs has been initiated based on regionalized training sessions, formalization of State training

programs, and planning for the use of audio-visual techniques for

development and use of training aids. Complete organization for the

regional training concept and identification of State training

officers is underway. The first audio-visual tape for use by States

in training inspectors will be produced and delivered this year.

2.2.5. State Laboratory Programs

The State metrology program has been redesigned to incorporate

measurement assurance techniques and regionalization including computing

routines for processing and exchange of State developed data describing

the effectiveness of the new techniques and the services delivered by

the States.

2.2.6. Type Approval

Completion of a bilateral agreement between NBS and California in

which each will recognize results of prototype examinations (thus

avoiding duplicative examinations) and through which California has

initiated action through its legislature to permit reciprocity with

8
other jurisdictions. Plans have been made to extend bilateral agreements

to other States and agencies (i.e., FGIS) for conduct of prototype

examination of devices patterned after the NBS/Cal ifornia agreement.

2.2.7. Transfer of Metric Activities

Metric information activities formerly performed by the OWM v/ere

transferred to the U.S. Metric Board. Formal working liaison has been

established for coordination of assistance to the States by the OWM as called for under the Metric Conversion Act of 1975.

2.8. Impact of New Technology

OWM has several "optimization tasks" underway (see prior pages).

OWM is developing a systematic approach to its measurement services

and measurement standards which recognizes the revolution in

technology now taking place. High speed dynamic measurements featuring

A/D conversion and microprocessors are becoming commonplace in

industry and in the marketplace. Some weights and measures officials

are being faced with certifying the accuracy of scales tied to laser

product code scanners and price computers, of digital -readout gasoline

pumps and fabric meters, etc., all of which may or may not be

electromagnetical ly or otherwise compatible. They look to OWM to

provide technical leadership for dealing with these challenges.

The small computer revolution will impact OWM activities in a variety of ways. Data handling for measurement assurance programs via

computer networks (already implemented) and centralized data collection

and analysis to facilitate uniformity in weights and measures enforcement are only two promising areas where such technological changes

could favorably alter the way in which NBS deals with those who need

traceability to National Standards and those who wish to insure

uniformity of national and international measurement standards.

9
I

3. Critical Issues

A study of the weights and measures system is being commissioned to

identify changing needs, roles, and alternatives and to provide the basis

for long range planning.

Issues within such a study of great importance to the weights and

measures community are:

(1) Type approval for measuring devices. A comprehensive plan will

be prepared with the NCWM identifying the tools of State and Federal

agencies, industry, and others. Mechanising and financing options will

be identified.

(2) Expansion of State weights and measures laboratory capabilities.

State measurement centers interlinking Federal, regional and industrial

measurement capabilities are being planned and the Laboratory Audit

Program is being redesigned.

lU
4 . Activi'ty Summa ry

4.1. Sponsored Conferences

" National Conference on Weights and Measures Interim Committee

Meetings - January 22-26, 1979 - NBS

(1) 6 Committees

(2) 2 Task Forces

° Temperature Compensation Seminar - April 2-3, 1979, NBS

National Conference on Weights and Measures - July 22-27, 1979,

Portland, Oregon

Supported Conferences

° Southern Weights and Measures Association Conference - October 23,

1978, Little Rock, Arkansas

° Northwest Weights and Measures Association Conference - March 4, 1979,

Madison, Wisconsin

° Northeastern Weights and Measures Association Conference - April 24,

1979, Hartford, Connecticut

° Western Weights and Measures Association Conference - August 8-10,

1979, Phoenix, Arizona

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19

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Sampling

of

Packaged

Goods"

Brickenkamp

American

Society

for

Quality

Control
4/4/7q

"The

Implications

of

the

New

Methodology

Hasko

Indiana

Weights

and

‘‘

for

Package

Inspection"

Measures

Association

"OWM

National

Training

Program"

Smith

Northeast

Regional ‘'W&M

Association

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"Confidence

in

Package

Checking

Results"

Hasko

64th

National

Conference

on

Weights &

Measures
7/25/79

"Revisions

of

the

OWM

Laboratory

Auditing

Oppermann

64th

National

Conference

Program"

on

Weights

&

Measures

Metrologi

sts

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to to to

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14
4.3. Office of Heights and Measures' Publications

FY 1979

° NBS Special Publication (Number Unknown) - Report of the 64th

National Conference on Weights and Measures 1979, Report Editors - Harold F. Wollin, Louis E. Barbrow, and Ann P. Heffernan,

Government Printing Office

° NBS Handbook 130 (Draft), Model State Laws and Regulations 1979,

Government Printing Office

° NBS Handbook 44 (Draft), Specifications, Tolerances, and Other

Technical Requirements for Weighing and Measuring Devices.

Government Printing Office

° NBS Handbook 105-3, Specifications and Tolerances for Reference

Standards and Field Standard Weights and Measures (Revised 1979),

Author - Blayne C. Keysar, Government Printing Office

15
4.4. Seminars

FY 1979

1

Workshop on Field & Lab Procedures

in Moisture Meter Evaluation

February 6-8, 1979

Springfield, IL

Northeast Regional Taximeter & Odometer Proving Seminar

March 20-22, 1979

Harrisburg, PA

Midv'estern Regional Taximeter & Proving SeminarApril 3, 1979

Nev/ Albany, IN

Midland Regional Liquefied Petroleum

Gas Liquid and Vapor Meter Proving

Seminar

May 1-3, 1979

Lincoln, ME

Western Regional Taximeter & Odometer

Proving Seminar

July 19-20, 1979

Olympia, VIA

Grain Moisture Meter Evaluation

Procedures - 12 States

September 11-13, 1979

Atlanta, GA

Seminar on Karl Fischer Titration

for California

December 11-12, 1979

NBS

16
4.5. Training Schools

FY 1978

General (Laws & Regulations, Handbook 44, September 18-22, 1979

and Test Procedures) Honolulu, HI

General (Laws & Regulations, Handbook 44, October 4-6, 1979

and Test Procedures) New England Region Concord, NH

General (Laws & Regulations,

and Test Procedures)

General (Laws & Regulations,

and Test Procedures) USDA

Basic Metrology

General (Laws & Regulations,

and Test Procedures)

General (Laws S Regulations,

and Test Procedures) Western

FY 1979

Basic Metrology

General (Laws & Regulations,

and Test Procedures)

General (Laws & Regulations,

and Test Procedures)

Basic Metrology

General (Laws & Regulations,

and Test Procedures)

General (Laws & Regulations,

and Test Procedures) Southern

General (Laws & Regulations,

and Test Procedures)

General (Laws & Regulations,

and Test Procedures) Western

Handbook 44 October 10-11, 1 979

Prudenville, MI

Handbook 44, November 1-3, 1979

Sioux Falls, SO

November 13-17, 1979

NBS

Handbook . November 14-15, 197

Boston, MA

Handbook

Region

44, November 28-30, 1979

Billings, MT

January 8-19, 1979

Jackson, MS

Handbook 44, January 10-12, 1979

Spencer, IN

Handbook 44, February 5-9, 1979

Springfield, IL

Handbook 44,

February 12-15, 1979

NBS

February 20-23, 1979

Anchorage, AK

Handbook

Region

44, February 27-f1ar. 1 ,1 979

Nashville, TN

Handbook 44, March 12-15, 1979

St. Louis, MO

Handbook

Region

44, March 20-22, 1979

Moscow, ID

17
Basic Metrology

General (Laws & Regulations, Handbook 44,

and Test Procedures)

General (Laws 8t Regulations, Handbook 44,

and Test Procedures)

Basic Metrology

Basic Metrology

General (Laws & Regulations, Handbook 44,

and Test Procedures)

April 23-May 4, 1979

Philadelphia, PA

May 16-18, 1979

Hartford, CT

May 22-25, 1979

Orlando, FL

June 18-29, 1979

MBS

July 22-26, 1979

Portland, OR

August 13-17, 1979

Morrisville, NY

18
4.6. Offirp n f Wpiqhts and Measures' Special Reports

FY 1979

° NBSIR 79-1776 (R) Transcript of Proceedings of Symposium on Temperature Compensated Volumes in the Sale of Petroleum Products

Sponsored by the National Conference on Weights and Measures on April 3-4, 1979 at NBS

19
4.7. Special Activities

Letters Answered

General Technical Control Total

1st Quarter 288 72 1 361

2nd Quarter 231 57 4 292

3rd Quarter 396 99 3 498

4th Quarter

TOTAL FY 1979

186 48 4 238

1389

Metric

Letters Answered

General Technical Control Total

1st Quarter 36 13 5 108

2nd Quarter 40 33 33 106

3rd Quarter 2 9 11 22

4th Quarter

TOTAL FY 1979

15 3 0 18

254

20
4.8. Technical and Professional Committee Participation and Lead ership

Name

Barbrow, L.E.

Brickenkamp, C.

Hasko, Stephen

Keysar, B.C.

Odom, Jeffrey

American Society for Testing & Materials

American National Metric

Council

International Organization for

Legal Metrology

Interagency Committee on Net

Wt. (members: USDA,FDA,FTC,NBS)

American Institute of Physics

American Assn, for the Advancement of Science

American Crystallographic Assn.

National Conference on Heights & Measures (Liaison Committee)

Society of Automotive Engineers,

Inc.

American Nat'l Standards Inst.

Interagency Committee on Met Wt.

Compressed Gas Association

National Conference on Weights & Measures

American National Standards

Institute

American Petroleum Institute

American Nat'l Standards Inst.

NBS Metric Committee

DoC Metric Committee

ICSP Metrication Subcommittee

ICSP Metrication Subcommittee;

Executive Board

ICSP Metric Practice & Preferred

Units Division

Consumer Liaison Committee; ANMC

Consumer Products Coordinating

Committee; ANMC

Weights & Measures Sector

Committee; ANMC

Packaging Advisory Committee; ANMC

21

E43 Metric Practice

E43.10 Technical SC

F43.10.01 Units Sec.

Metric Practice Com.

(Secretary

)

U.S. Advisory Com.

U.S. Technical

Advisor on P.S. 18,

P.S. 1 Chairman

Task Force on Grain

Moisture Measurement

Fuel Supply Systems

Speedometer & Tachometer

R109 Gas Displacement

Metering

Cryogenic Flowmetering

Monitoring Committee

Committee on Liaison

Zll, Petroleum Products

and Lubricants

Committee on Dynamic

Measurement (Metering

Systems W/G)

Z61 Household Kitchen
Oppermann, H.

Smith, R.M.

Tholen, A.D.

Warnlof, O.K.

Wollin, H.F.

International Organization of

Legal Metrology

National Conference on Weights

and Measures

American Association for the

Advancement of Science

Operations Research Society

of America

Institute of Management Science

International Organization of

Legal Metrology

National Scale Men's Association

Alfred Tech

American Society of Mechanical

Engineers

National Conference on Weights

and Measures

International Organization of

Legal Metrology

American National Metric Council

Pilot Secretariat 7 "Measures of Masses";

U.S. National Working

Group "Scales & Weighing Systems"

Pilot Secretariat 7 "Measures of Masses"/

Reporting Secretariat 7;

U.S. National Working

Group "In-Service Exam."

Committee on Education,

Administration, and

Consumer Affairs

U.S. Technical Advisor;

Pilot Secretariat 7 Pilot Secretariat 22

Scholorship Committee

Advisory Committee

Scale Committee

Committee on Specifications and Tolerances

U.S. Advisory Committee

Weights and Measures

Sector Committee

22
4.9. Consulting and Advisory Centers

State agency representatives and industry call upon the Office of

Weights and Measures' staff on a continuous basis to consult and advise

them on general and specific issues in weights and measures. The Office

of Weights and Measures (OWM) is the consulting center for weights and

measures issues, problems and advice nationwide. An estimated 25% of

the time of the staff is involved in this support service.

23
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24

On

staff

of

Center

for

Consumer

Product

Technology;

funded

by

OWM.
General

Physical

Scientist

Oppermann,

H.V.

Manages

special

calibration

State

metrology

(General

Physical

Scientist)

programs

including

LAP

and

metrology

training

sessions,

and

prototype

exam

program.

Co

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26


Technical Activities

Office of Measurefnent Services

INTRODUCTION - MISSION, FUNCTIONS, AND INTERACTIONS

The Office of Measurement Services continues to clay an irrocrtant role

as a coordinator and catalyst within NBS and to a considerable extent

within the broader measurement community for issues involving traceability,

measurement accuracy, and efficient management of precision measurement and

test equipment (PMTE). OMS provides leadership tc industry, scientific and

technical institutions, and to other Federal agencies with respect to

improving their measurement activities. OMS coordinates measurement

traceability services for physical, dimensional, electrical,

electromagnetic, and radiometric m.easuremer.ts

.

In discharging these responsibilities, OMS must be fully cognizant cf new trends in measurement science such as the proliferation of complex

automated testing equipment (ATE), requirements for dynamic rather than

static measurements, requirements for new types of measurements (e.g.,

optical fiber characteristics), the increasing use of microprocessors in

"smart" instruments, and new approaches to measurement standards (e.g., NMR

thermometry). Trends such as these will, in the long run, be likely tc

lead to restructuring of the ways in which NBS disseminates measurement

services. By serving on comriittees , participating in technical

conferences, and arranging workshops, etc., the OMS staff strives to

maintain a high level of awareness of the direction in which the

measurement community is heading and to use this information effectively in

working with NBS line managemient to insure that NBS' services are responsive to the changing needs of the measurement conrunity.

The principal responsibilities of OMS are:

• To administer the NBS calibration program.

t To manage a program for the development of new Measurement

Assurance Programs (MAP's).

• To coordinate improvements in the management and use of precision

measurement and test equipment in the Federal Government.

• To address and disseminate information on NBS-wide policy issues

on subjects such as traceability, calibrations, and MAP's.

• To serve as the NBS focal pcint for key outside organizations

concerned with the above issues, such as the National Conference

of Standards Laboratories (NCSL), and the Joint Technical

Coordinating Group on Metrology and Calibration of the Department

of Defense.

27
The principal interactions between OMS and NBS technical activities

fall within the Center for Absolute Physical Quantities (CAPQ), the Center

for Electronics and Electrical Engineering (CEEE), the Center for

Mechanical Engineering and Process Technology (CMEPT), the Center for

Applied Mathematics (CAM), the Center for Radiation Research (CRR), and the

Center for Thermodynamics and Molecular Science (CTMS). Joint activities

with these centers are described in the sections which follow.

QMS' contacts outside NBS are wide-ranging. The National Conference of

Standards Laboratories (NCSL) is the organization that best represents CMS'

customers, hence OMS maintains close liaison with the NCSL Board of

Directors and with the NCSL membership. The Department of Defense is the

largest single user of NBS measurement services. Accordingly, OMS

maintains close ties with the DOD calibration community through the

Calibration Coordination Group (CCG) and its subgroups. OMS also interacts

with the higher level DOD group, the Joint Technical Coordinating Group on Metrology and Calibration (JTC6 -METCAL) of the Joint Logistics Commanders.

In addition, OMS is represented on the JLC's Panel on Automatic Testing.

The NBS PMTE Project was formed just over a year ago to coordinate

improvements in the management and use of PMTE in the Federal Government.

(A description of the activities of the PMTE Project is given later in this

report.) From time to time the PMTE Project provides information to the

Office of Management and Budget and the General Accounting Office

concerning progress with this activity. The PMTE Project maintains a continuing liaison with the headquarters level people responsible for

precision measurement and test equipment in other Federal agencies.

Other organizations with which OMS interacts include:

0 The Industry/Joint Services Automatic Test Project (IJ 5 ATP)

0 Voluntary Standards Organizations (ASTM, ANSI, ASQC, OIML)

0 The Government- Industry Data Exchange Program (GIDEP)

0 Individual users of measurement services (consulting and

assistance on measurement traceability problems)

0 Other national standards laboratories (e.g., exploring the

"reciprocal traceability" issue with the National Physical

Laboratory in England)

An important part of OMS' function is to increase awareness within the

technical community of MBS' programs and philosophy in the calibration and

measurement assurance areas. In particular, it is felt that the MAP

philosophy can be important to a variety of standards writing groups

concerned with measurement quality control. Accordingly, OMS places a high

priority on disseminating information on the MAP approach to measurement

quality by participating actively in standards committees and other qroups

concerned with measurement quality.

28
Program Activity

Office of Measurement Services

CALIBRATION AND MEASUREMENT SERVICES

The improvements in the administration of the calibration program

reported in last year's report are still in effect. The OMS surcharge on calibrations for FY 80 will continue to be 6 percent. No further

reductions seem possible without reducing administrative services provided

by OMS.

Policy issues dominated the activity in this area during FY 79. As

pointed out in last year's report, the NBS policy statement on Measurement

Services as embodied in the NBS Administrative Manual Subchapter 14.01 was obsolete. Since under the new NBS organization measurement services are now being provided by two major operating units (NML and NEL) rather than

one, many difficult policy questions had to be resolved. A completely

revised policy statement has been developed by OMS and submitted to NBS

management for approval. This statement includes the first formal policy

statement on providing measurement services for foreign entities since the

Bureau was given expanded authority to provide such services in 1972.

In last year's report two major issues were raised regarding NBS

management of measurement services: (a) how NBS management should assess user requirements in setting priorities for services; and (b) what

additional quality assurance for NBS measurement services should be used.

OMS extensively discussed these issues with our users and with NBS

managers. As a result of these discussions a subpanel, consisting of Hayes

and Belanger, was appointed to study the issues and make recommendations.

The report of this subpanel is included in the report as Appendix E-5.

Last Fall NBS received a report from the National Measurement

Requirements Committee of the National Conference of Standards Laboratories

on user satisfaction with NBS services (Appendix E-6). The Committee was trying to determine what effect the reductions in NBS services had on the

NCSL members and whether the services were still adequate to meet their

needs. Services in several areas were singled out by the authors as inadequate now or in the future. OMS reviewed the data gathered by NCSL in

detail. OMS evaluation concluded that although there were clearly

identified problems, NCSL users generally were satisfied with NBS services.

OMS contacted the line managers responsible for the services sinqled cut as inadequate and reviewed the comments made about their services. In most

cases we concluded that the services either had not been reduced, or if

they had, were subsequently restored. In two areas, 2.9 Aerodynamics and

7.9 Pressure and Vacuum, the managers agreed services needed were not

available. The problems seemed to be questions of priority. OMS will

obtain summaries of the current services in these areas for publication in

the NCSL Newsletter. If the proposed calibration services plan in Appendix

E-5, or a similar plan, is eventually approved, it should be possible to

avoid most of the problems that have arisen from reductions in services

that have taken place over the past few years.

29
CALIBRATION WORKLOAD SUMMARY

FY 1979

TOTAL ACTIVITY AND INCOME

71 72 Z1 Zi 75 76_ IQ 77 78 Zi

Total Dollars

(Mil 1 ions

)

1.7 1.6 1 .8 1.8 1 .8 2.1 0.4 1 .8 1 .8 2.1

No. of

Calibrations 5957 5122 5267 4649 4127 4085 809 3723 3488 3817

PERCENTAGE OF CALIBRATIONS DONE FOR GOVERNMENT AGENCIES

71 zi 73 74 75 Z6* Z_7* 79

Boulder 63% 57% 61% 66% 53% 50% 35% 39% 44%

Washi ngton 22% 24% 22% 19% 17% 18% 16% 17%. 18%

NBS 36% 34% 37% 35% 31% 31% 21% 22% 23%

*Data given do not include transition quarter.
Cal ibration Income

is ion Amount Percentage

511 $ 29,825 1.41

521 375,454 17.74

522 167,898 7.93

524 1 ,500 .07

531 4,500 .21

532 18,370 .87

533 92,526 4.37

534 115,680 5.47

544 69,743 3.30

565 10,384 .50

652 1,380 .06

721 4,742 .22

722 68,857 3.25

723 82,500 3.90

724 332,193 15.70

731 244,569 11.56

732 418,761 19.79

733 16,437 .78

735 60,802 2.87

Totals $ 2,116,121 100.00

MOU

NML (500's) $ 885,880 41 .86

NEL (700's) 1 ,228,861 58.08

ICST (600's) 1 ,380 .06

Total

$ 2,116,121 100.00

31
MAP PROGRAM DEVELOPMENT

Funds available for this program increased both in FY 1979 and FY 1980.

During FY 1979 (October 1, 1979 - September 1980) the Bureau sought the

approval of Congress to reprogram about $500K and 8 positions from other

areas into MAP activities. This request was approved by Congress in April

1979. In addition, the budget initiative OMS put forward to develop

regional MAP's was funded by Congress for FY 1980. This increased the

program by an additional $500K and 4 positions. Thus, the past year was a period of enormous growth with the expected challenges for management.

OMS, in conjunction with the technical divisions, had to make plans for

redirecting three technical groups (electrical, temperature, and

photometry) as as well as for the initiation of new projects.

Policy and Planning

When it became evident that OMS would likely >"eceive greatly increased

funding to support MAP development, it was clear that guidelines for

priority setting were needed. During FY 79 OMS developed a set of

guidelines for setting priorities after discussions with appropriate NBS

managers. A statement of these guidelines is given in Appendix F-7. These

guidelines will be used by OMS in making funding decisions about proposed

MAP development projects and by the technical divisions in their planning

process. At the time of the reprogramming in FY 1979, NML management set

priorities for those funds.

For some time our customers have been urging us to prepare a comprehensive document describing the NBS philosophy of measurement

assurance, the techniques used, and a general description of our current

services. The documents currently available, of a general nature, discuss

only the first point, and the documents describing the specific technical

services are too difficult for a general audience. This has made it

difficult to communicate the essential ideas in these programs. OMS set

for itself an objective in FY 1979 to prepare a first draft of this

important document.

Milestones in FY 1979 for these activities are;

• Completion of first draft of "A Guide to NBS Measurement Assurance

Program Services".

• Issuance of Guidelines for Priority Setting c'P MAP Development

Projects.

Statistical Consulting

OMS has had a tradition of offering statistical consulting services to

the technical divisions. At the time of the recent NBS recrnanization, the

personnel who offered these services were transfered to the Statistical

Engineering Division, but still provide these services which are managed as

3 ?
part of OMS MAP programs and funded by OMS. These services are expanding

this year from 1.2 WY (work years) to 2.2 WY. OMS regards expansion of

these services as one of its highest priorities.

Highlights from these activities for FY 1979 are:

• Publication of NBS Monograph 163 "Measurement Assurance for Gage

Blocks".

• Consulting for Metal Science and Standards Division resulting in

issuance of SRM 484 to be used to calibrate scanning electron

microscopes.

• Completion of NBS Monograph manuscript on "NBS Mass Calibration

Computer Software".

• Consulting and data analysis for round robin on line width

standards for the microcircuit industry with the ultimate

objective of certifying an NBS line width SRM.

§ Presentation of a three-day seminar on "Precision and Accuracy in

Measurement and Calibration".

• Lectures on statistical problems at the NBS Seminar on "Measurement Assurance for Gage Blocks".

Electrical Measurement Assurance

Development F^rojecTs

This activity includes dc and low-frequency electrical measurements

carried out in the Electrical Measurements and Standards Division (EMSD).

The FY 1979 reprogramming redirected $234K and 4 WY from Physical

Measurements and Standards into Measurement Assurance Programs. The

purpose of this change was to reduce R&D on new standards and increase

efforts to improve our services by improving and/or developing measurement

assurance services. EMSD currently offers to the public four measurement

assurance services, DC Voltage, DC Voltage Ratio, Resistance, and

Capacitance (See Appendix E-8). EMSD prepared and revised plans to reflect

the program changes which were mandated. OMS reviewed the current status

of EMSD measurement assurance services and their proposed plans. OMS

concluded:

• There is an urgent need to document in published form the

measurement assurance services currently offered to the public.

f Additional software needs to be written to efficiently analyze

data being sent for analysis to NBS by our customers.

33
• AC Voltage has been identified by our customers, especially by the

National Conference of Standards Laboratories, as a parameter for

which there is a need for measurement assurance services.

QMS & EMSD reached final agreement on plans to reflect the high

priority placed by QMS on the items mentioned above. Final plans have been

completed for FY 1980 which include an increase in funding to support

almost an additional 2 WY in EMSD.

A significant improvement in measurement assurance services for

disseminating dc voltage was achieved this year. Detailed NBS analysis of

the data resulting from seven voltage comparisons since 1971 resulted in

the original southern California regional MAP group extending the interval

between such comparisons with NBS from one to five years, thereby reducing

NBS calibration support by a factor of five. The analysis showed that,

although the individual units of voltage maintained by various group

members occasionally underwent changes as large as 0.7 ppm, the mean of

those units remained adequately stable to support a 0.36 ppm uncertainty

for such a five year period. Periodic intercomparisons among the group at

12 to 18 month intervals will enable the members to use the stability of

the mean unit to achieve the 0.6 ppm accuracy they require over that fiveyear period. The intercomparisons will also point out the need for an earlier transfer with NBS, should such a need arise. NBS and the RMAP

group are presently investigating the use of solid state devices to effect

the intercomparison in more convenient, cost effective ways.

Additional information on the development of regional MAP's can be

found in the NCSL Measurement Assurance Committee Report contained in

Appendix E-9

Temperature Measurement Assurance

Development Projects

The Temperature Measurements and Standards Division currently offers

measurement assurance services for standard platinum resistance

thermometers (SPRT). These thermometers are specified as one of the

devices for realizing the International Practical Temperature Scale 1968

(IPTS 68). The scale is defined by fixed points and the SPRT from 13.81K

to 903. 89K.

The resources redirected in the temperature area were $141K. and 2 WY.

OMS and TMSD personnel reviewed the status of their program end concluded:

• Their current measurement assurance service needs be documented

in published form.

• TMSD, in collaboration with ASTM, needs to develop a MAP for use with industrial quality platinum resistance thermometers.

34
• TMSD needs to begin round robin checks at low temperatures (below

the current IPTS 68) with cryogenic sensor manufacturers and some government agencies in anticipation that a measurement assurance

service will be needed as soon as a new international cryogenic

scale is agreed to.

The need for a MAP was highlighted recently by a collaborative program

between NBS and ASTM. The ASTM, for the first time, issued a test standard

for industrial resistance thermometers (see 1979 Annual Book of ASTM

Standards, Part 44). A specification standard for platinum resistance

thermometers is now being prepared. The repeatability and reproducibility

figures for the standard are not yet specified. The NBS, in cooperation

with the ASTM, has recently initiated round-robin measurements with over twenty industrial testing laboratories to obtain the repeatability and

reproducibility figures for the future revised edition of the test

standard. Preliminary results show that a temperature MAP for industrial

test laboratories is essential so that U.S. thermometer manufacturers can

sell in international markets.

Spectrophotometry Measurement Assurance

Development Projects

In this area $124K and 2 WY were redirected to measurement assurance.

No formal measurement assurance program exists in this area. QMS is

working closely with the Radiometric Physics Division personnel assigned to

this project to assist them in identifying the measurement assurance

techniques needed.

A plan for redirecting these resources in FY 1980 has been completed.

This planning was carried out with personnel from the Collaborative

Reference Program for Color and Appearance which is jointly sponsored by

the Manufacturer's Council on Color and Appearance and NBS. The areas selected for MAP development are retroreflectance and diffuse reflectance.

In order to characterize artifacts to be used in MAP services, a new instrument had to be built. This instrument was completed in FY 1979, and

a manuscript describing this instrument has been submitted to Applied

Optics. ("The NBS Reference Reflectometer," by K. L. Eckerle, J. J. Hsia,

V. R. Weidner, and W. H. Venable, Jr.)

REGIONAL MAP (RMAP) DEVELOPMENT

There is no doubt that a properly designed measurement assurance

program is a very effective quality control mechanism. However, NBS

experience is that they are expensive, both for NBS and our customers. The

Electrical Measurements and Standards Division has developed a mechanism

for disseminating the unit of voltage using measurement assurance services

which does not degrade the quality of the transfer (but in fact improves

it, note the discussion in the earlier discussion of MAP development in

EMSD) but considerably reduces the cost pen customer. NBS, of course, has

35
a great interest in reducing costs given the continued pressure on the

allocation of resources.

With this information in hand, OMS proposed to NBS management that we

be given added resources to set up pilot RMAP projects to investigate if

this technique was applicable to other measurement areas and if it would

reduce costs. OMS expects that this program will develop a large amount of

management information which will greatly aid NBS in planning its

measurement services. NBS requested funds for this program and Congress

appropriated them in the FY 1980 Budget.

OMS has developed plans for implementing RMAP projects in four

technical areas: microwave power, x-ray radiation to 150 KeV, force, and

dc voltage, resistance and capacitance.

Microwave Power

This calibration activity is the largest of the NBS calibration

activities in the electromagnetic measurements area. Hence, it represents

a significant opportunity for reducing our routine calibration workload.

The metrology laboratories making microwave power measurements tend to be

located in high technology electronics companies who should be able to

implement MAP techniques rather easily.

The plan for this project is to purchase and characterize three sets of

microwave bolometers and circulate them to five industrial laboratories who

have agreed to participate, for measurement against their local standards.

This initial round-robin will be, used to evaluate the laboratories'

measurement process and detect any biases that are present and determine

what the precision of their measurement process is. NBS will analyze the

data, report back to the participants, and assist them in taking any

corrective actions that may be necessary. In addition to the above and in

parallel, the development of the six port system will continue. This new system will be used to calibrate the bolometers for the MAP services.

X-Ray Radiation Exposure to 150 KeV

Ionizing radiation of this type for medical diagnostic purposes

represents the largest, by far, source of exposure to the general public of man made radiation. The states by and large are responsible for regulating

these exposures. A well -developed measurement system traceable to national

standards does not exist throughout the states. It is the objective of

this project to determine if a highly leveraged regional measurement

assurance system can work.

Activities in this project will be broken into two parts. The

Radiation Physics Division will identify and characterize ionization

chambers and associated electrical equipment to be used as transport

standards for the proposed measurement assurance services.

36
In parallel with the above, OMS and the Office of Radiation Measurement

will work with a regional group of States to develop a detailed technical

and financial plan to implement a measurement assurance program in their

laboratories.

Force

Force calibrations are the largest dollar volume service NBS offers.

So here again, there is enormous opportunity for reducing routine

calibration. In addition, ASTM has indicated an interest in developing a joint program with NBS for force measurements. The Fluid Engineering

Division, responsible for force calibrations, has agreed to carry out a study and laboratory Investigation with the following objectives:

• demonstrate and document customer need;

• Identify and characterize force transducers which may be suitable

as transport standards;

t detenrine what role ASTM might play in helping implement a joint

program;

• identify what potential there is for reducing NBS calibration

workload.

D-C Electrical Measurements

The Electrical Measurements and Standards Division has already had

great success in using the regional approach to dissemination of

measurement assurance services. Activities this year will concentrate on Increasing the number of regional groups for the quantities dc voltage,

resistance, and capacitance. Also, additional and improved software will

be written to analyze customer data from these programs.

37
PMTE PROJECT

Background

During May and June 1977, the U.S. General Accounting Office (GAO)

issued two comprehensive reports on Federal Government precision measuring

and test equipment (PMTE) activities. The first report, titled: "A

Centralized Manager is Needed to Coordinate the Military Diagnostic and

Calibration Program" (GAO Report #LCD-426), complimented the Department of

Defense for having an advanced PMTE Program, with a sophisticated system

for coordination among the many elements of DOD, but was critical of DOD's

slow progress toward consolidating its duplicative facilities and footdragging on its other efforts to standardize among the military

departments.

The second GAO report, titled: "Centralized Direction Needed for

Calibration Program" (GAO Report #LCD-426), was aimed at the civil agencies

of the Government and charged that those agencies have failed to conduct

their PMTE activities in an efficient and economical manner. From these

two reports, the GAO concluded that improvements could be achieved and

significant savings realized through improved coordination of the

Government's management and use of PMTE.

In a June 13, 1977, letter to the Director, U.S. Office of Management

and Budget (0MB), the GAO recommended that 0MB "(1) provide for central

program direction and coordination of civil agencies' cal ibration systems,

and (2) require closer coordination with the Department of Defense for

standardization and consolidation of the total Federal calibration

program."

On August 17, 1977, the Director, 0MB, asked the Secretary of Commerce

to have the National Bureau of Standards (NBS) take the following actions

relative to the Government's use of precision measurement and test

equipment (PMTE):

• Assume the lead for coordinating improvements in the management

and use of such equipment.

• Assist agencies as necessary to identify areas for "improvement.

• Recommend to 0MB such actions as are needed to improve t^-'e management and use of such equipment.

Within NBS, the Office of Measurement Services (OMS) v;as given

responsibility for preparing and implementing an NBS action plan to respond

to the 0MB directive. The plan was completed by OMS on Api^il 5, 1978, and

approved by 0MB on May 24, 1978.

As a first step toward implementing the approved plan, OMS established

the "PMTE Project" consisting of a project manager, two tochrical

38
coordinators, and administrative aides. Staffing of the PMTE Project v/as

completed on November 5, 1978.

Objectives

The PMTE Project has established as its principal goal "to improve the

effectiveness and reduce the cost of Federal -wide PMTE operations". This

goal has been defined by the project as including the following specific

objectives related to the coordinating of improvements to Federal -wide PMTE

operations:

• To improve the communications and exchange of information

(management and technical) among individuals and facilities

involved in management or use of PMTE.

• To identify and gain broad adoption within Federal agencies of

particularly effective existing technologies and management

techniques.

f To increase use of other agency and/or contractor metrology and

calibration capabilities.

» 9 • To reduce the growth rate of Federal metrology and calibration

facilities.

• To assess the effectiveness of current PMTE programs of other

agencies.

• To identify, and develop joint plans for addressing the high

priority problems or needs common among several agencies.

• To recommend to 0MB and the other agencies actions needed to

improve the management and use of PMTE.

Actions to Date

In its first full year of operation, the PMTE Project has directed most

of its resources toward short-term actions aimed at optimizing existing

systems. However, a high priority has also been given to longer term

actions which will hopefully lead to the development and introduction of new and innovative approaches toward accomplishing the calibration function

and other management and technical functions related t<^ PMTE management and

use.

Accomplishments during FY 1979 are:

• Capabilities Catalog . Prepared and published the first edition of

the "Catalog of Federal Metrology and Calibration Capabilities,"

NBS Special Publication 546. The catalog is intended to encourage

cooperation among agencies, to promote the exchange of services or

39
equipment, and to reduce the growth rate of Federal metrology and

calibration facilities. The catalog lists laboratories, their

locations, capability, and names and telephone numbers of points

of contact. To provide geographical distribution, the

laboratories are listed by States, and are also shown on a single

map by coded number. The catalog will eventually include all

Federal metrology and calibration laboratories; however, this

first edition contains only information submitted by four major

agencies (DOD, DOE, DOT, & NASA) at time of publication. Some 260

laboratories are presently listed in the catalog.

• Newsletter. Prepared and published first and second issues of

"PMTE update," a newsletter which is distributed to Federal

metrology and calibration laboratories, laboratory and staff level

managers, and other interested parties throughout the Federal PMTE

community, including several U.S. military organizations in Japan,

Korea, Okinawa, and Germany. The "PMTE UPDATE" is intended to

improve communications within the PMTE community by providing

timely information on new developments, publications and meetings,

describing successful strategies of PMTE management and use, and

by providing a forum for discussing issues of current interest to

the community. For example, the first two issues included

informative articles on:

Recent changes to Army philosophy for setting/adjusting

calibration intervals resulting in an initial one-time

savings of over $2 million and recurring annual savings in excess of $2 million. Data compiled one year after

implementation substantiated these savings and indicated that

equipment "up-time" had been maintained at or near 90

percent. Based on this article, the authors were invited to

participate in an important NCSL workshop and have since

briefed calibration managers from all NASA Centers on the

Army philosophy.

Test equipment rentals as a key to cutting skyrocketing costs

for purchase of general purpose electronic test equipment.

This article summarized the highly successful test equipment

rental program operated by the FAA's National Aviation

Facilities Experimental Center, Atlantic City, New Jersey.

How a NASA Center (Langley) has developed and used systems

for automatically calibrating electrical and non-electrical

(pyrometers, accelerometers, pressure transducers, and wind

tunnel model force balances) instruments to reduce

calibration time by as much as 50%, reduce total turn-around

time, and provide a better and more uniform calibration.

An Air Force program tc compare barometric pressurp

measurements made at various government facilitio". This

40
article pointed out that barometers approximately 30 miles

apart have been compared and observed to consistently differ

by as much as 0.020 Inches of mercury during stable weather

conditions when they should have agreed. The article also

invited other organizations to participate in the comparison

program.

How other agencies can apply to obtain calibration training

at the Lowry Technical Training Center, Lowry Air Force Base,

Colorado, the DOD's central source of such training.

Changes to NBS measurement services.

Origin and objectives of the PMTE Project.

The "PMTE UPDATE" has been well received by its many readers, and

several have taken the time to send written comments on its

benefits to the PMTE community. Circulation was initially just

under 600. It has since risen to approximately 750 and is expected

to exceed 1000 by mid 1980.

• Cost-Effectiveness Studies . On September 5, 1979, a $117,523

contract was awarded to the Raytheon Service Company, Burlington,

Massachusetts, to study the following two issues:

Feasibility and cost-effectiveness of increasing the use of

in-situ calibrations, calibration checks, measurement

assurance programs or other alternatives to out-of-service

equipment calibrations for measurement quality assurance and

control in the Federal government.

Cost-effectiveness of optimizing calibration recall intervals

and algorithms for PMTE.

In the first study successful alternatives to out-of-service

equipment calibrations will be identified and evaluated to

determine the cost and/or benefits of Federal -wide adoption. Both

cost savings and Improvements (or adverse effects) to measurement

quality will be quantified to the extent possible. This study is

scheduled for completion July 1980.

The second study will examine situations where adjustment of

calibration recall intervals for different types of PMTE has

improved measurement quality, or reduced costs without degrading

measurement quality, and will also examine the advantages of

Federal -wide guidelines for setting and adjusting PMTE calibration

intervals. This study will be completed March 1980.

In the performance of these studies, we have distributed

questionnaires to some 55 Federal activities and will visit

41
approximately 2C Federal calibration facilities to qather

technical and cost data related to the government's management and use of PMTE. Members of the PMTE Project staff will accompany the

contractor on many of these visits and will monitor the company's

performance throughout the contract.

The results of these studies are expected to point the way towards

significant improvements and cost reductions in the manacenent and use of PMTE throughout the Federal government.

• Hosted ATE Meetings . As part of a continuing effort to evaluate

and analyze the role in automatic test equipment (ATE), we hosted two key meetings of ATE representatives from industry, the

Department of Defense, and NBS technical divisions.

The meetings, held on February 15 and March 14, 1979, were attended by people from Sperry Corporation, Westinghouse, Air

Force, Navy, and Army, as well as representatives from several NBS

centers and offices. Dr. Thomas A. Dillon, welcomed the attendees

and emphasized the importance of outside input to the process of

defining the NBS role in ATE. Col. Kenneth Wilkinson, Project

Manager for the Air Force modular automatic test equipment (MATE)

program, pointed out that the Air Force spends approximately $1.1

billion per year on test equipment, including about $900 million

on ATE. The MATE Program will expend some $100 million through

1984 in order to develop a family of modular automatic test

equipment, plus supporting tools, to support all future Air Force

weapon/electronic systems at all levels of maintenance. Sperry

and Westinghouse Corporations are currently under contract to the

Air Force through 1983 to quantify requirements, provide a better

definition of MATE (e.g., desired levels of modularity, optimum

human interface factors, etc.), and develop guides for building in

testability, trade-off models for evaluating use of ATE vs. manual

test equipment, and determining optimum time-phasing for applying

MATE to specific USAF systems. At both meetings, there was concern expressed about calibration of complex ATE systems and

about traceability for such calibrations. It was noted that

calibration of the individual parts of the ATE system is not an adequate calibration of the system as a whole.

These meetings provided a good forum for discussion of Department

of Defense and industry needs in ATE and the proper role fcr NBS

in addressing these needs. Of equal importance, the meetings

served to improve the interaction and cooperation between NBS,

these key members of the ATE design community and DCD

metrologists. The PMTE Project is currently exploring the

possibility of a coordinated effort with several MBS divisions and

the Deoartment of Defense.

42
• Participated in a NASA HQ survey of the Lyndon B. Johnson Space

Center (JSC), Houston, Texas. At NASA request. Jack Vogt assumed

complete responsibility for the metrology/calibration part of the

survey. As a result of the survey, several areas were identified

for improvement (e.g., intervals, interval adjustment, turn-around

time and production controls), and positive improvement actions

are being taken by JSC.

• Led joint NBS/DOD (JLC) revision to the JLC Panel on Automatic

Testing subtask on calibration of ATE. This revised subtask

recognizes the need for:

better definition of the problem as it affects both existing

and future ATE systems.

investigation of existing technology to determine the extent

to which it can be applied to satisfy the problem(s).

identification of requirements for advanced technology.

short and long term research leading to development and

application of the technology required to satisfy the

problem(s)

.

• Provided assistance/guidance to other agencies:

Arranged for an Army mobile calibration team to provide

calibration services to the Federal Aviation Administration

(FAA) site at Pittsburgh Airport. (The Army team was already

stopping at the Airport to support an Air National Guard

unit.

)

Provided instructions and guidance on how to achieve

measurements traceability to the FAA Northwest Region.

Assisted Department of Transportation and FAA in developing

forms/questionnaires and initiating a survey of the "grassroots" PMTE calibration requirements and calibration

capabilities throughout DOT.

Co-hosted the Third Annual NASA Calibration Managers

Workshop, October 17-19, 1979, to improve interactions among

the NASA Centers, identify common problems, and develop a plan of action for 1980.

Assisted the U.S. Postal Service (USPS) in identifying its

PMTE calibration requirements (locations, items, etc.) and

started up an effort to match USPS requirements against the

capabilities of nearby private sector and/or other agency

calibration facilities.

43
Chaired three quarterly n-eetings of the Interagency P'^TE

Comnittee, which afforded policy and planning level

representatives of the DOD, DOT, DOE, NASA, and LISPS, an opportunity to exchange information on PMTE problems and successes. These meetings were also used to identify and

prioritize problems for action or investigation by the PMTE

Project. For example:

Manpower slots for interagency agreements--Most agencies

are willing to do work for another agency, but only if

the work is accompanied by the additional manpower slots

required to do it. The manpower ceiling for each agency

is tightly controlled, therefore, the additional slots

may have to be transferred from the benefitting agency.

The PMTE Project has identified procedures for transfer

of slots, for the duration of the interagency agreement,

between the DOD and civil agencies. We are presently

attempting to conduct a test case which will involve

transfer of slots from the FAA to an Army calibration

facility. The outcome of this test case may well

determine the extent to which calibration work can be

exchanged among the Federal agencies.

Need for exchange of management and technical

information. In response to requests for guidance or information on how "other" agencies and/or the private

sector have handled certain problems, the PMTE Project

has disseminated documented policy and procedures on the

following areas:

--DOD's draft standard calibration label/tag system.

--Army calibration quality assurance inspections.

—Army management information system.

--Army technical measurement audit program.

--Air Force criteria for calibration laboratory

construction.

--Private sector information on special containers

for shipping fragile instruments or calibration

standards.

--D0D and private sector calibration training.

--JLC five year plan for ATE.

--NBS computerized data bank of standards.

44
—Government- Industry Data Exchange Program (GIDEP)

activities (benefits and how to use it).

--National Conference of Standards Laboratories.

• Briefed top level managers of the Defense Retail Interservice

Support (DRIS) Program on the origin/objectives of the PMTE

Project and the need for improved coordination betv/een DOD and the

civil agencies. Jack Vogt has become a member of the DRIS

Executive Steering Group and will surface interagency PMTE suoDort

agreement problems at annual meetings of the Steering Group.

• Developed a draft PMTE Program Development Plan (PDP) which

describes project objectives and goals and outlines planned and

proposed actions over the next five years. The PDP ties each

action to a specific objective or goal and estimates the resources

required each year to accomplish the actions.

t Visit.^d five major Federal metrology and calibration facilities.

F'^A's National Aviation Facilities Experimental Center,

Atlantic City, NJ.

Army Metrology and Calibration Center, Redstone Arsenal,

Alabama.

Army Area Calibration Facility, Letter kenny Army Depot,

Pennsylvania.

NASA's Langley Research Center, Norfolk, Virginia.

NASA's Johnson Space Center, Houston, Texas.

• Identified the following several areas for improvement as a result

of the above visits and other interactions with the Federal

agencies

:

Productivity ranges from 1200 to 100 calibrations per person

per year.

Intervals are not adjusted at many facilities.

Recall of PMTE for periodic recalibration is not mandatory or performance- based at many facilities.

Management Practices are weak or virtually non-existent at some facilities.

Proliferation of PMTE, procedures, terms, definitions, etc.,

is apparent throughout the Federal agencies.

45
Duplication appears to exist, as there are several cases where more than one agency is located at the same installation and two or more agencies each have their own calibration facility.

ATE Traceability is an issue receiving little attention.

Even though vast investments are being made by the Federal

agencies to acquire, program, and operate ATE systems, few

resources are being devoted to the issue of ATE measurement

traceability. The ability to verify the performance of these

expensive ATE systems hinges, to a great extent, upon timely

resolution of the traceability issue. Specifically, the

issue involves:

Overall strategy for achieving traceability

--component vs. systems calibration.

-self-calibration vs. dynamic transport standards.

Impact on Federal calibration facilities.

--as a user of automated calibration systems.

--as a calibrator of ATE.

Leadership in the effort to plan, develop and apply the

proper strategy for ATE traceability.

Trainincj for calibration technicians is difficult to obtain,

and trained technicians are hard to retain.

Plans for FY 1980

In addition to continuing present efforts (e.g., interagency

meetings/workshops, updates to capability catalog, PMTE UPDATE, visits,

etc.), the PMTE Project will undertake the following tasks or actions

during FY 1980:

• The contracted- cut cost-effectiveness studies will be completed,

coordinated with other agencies, and an action plan for

improvement developed. Actions resulting from these studies may

include long-term improvements extending over the next 5-10 years.

• Special reports/handbooks will be developed and issued on:

Baseline assessment and progress of Federal agency PMTE

programs.

46
standardization of calibration procedures. This report will

examine and compare differences between multiple procedures

written/published by several agencies for the same item,

assess the technical and economic significance of the

differences, and attempt to estimate the benefits/costs of

total or partial standardization. This report will require

assistance from the other agencies and selected elements of

the private sector.

Standard terms and definitions. The initial issue of this

handbook will essentially be a compilation of the many PMTE

terms and definitions currently published and used by the

Federal agencies. Subsequent issues will indicate the

preferred definition for each term and eventually may only

include one standard definition for each term.

Projects will be initiated for the development of a series of

"How To" handbooks, e.g..

How to establish a calibration laboratory.

. How to systematically determine whether a PMTE item

requires calibration.

. How to apply "Limited Calibration" or "calibrate Before

Use (only)".

• SP 546, "Catalog of Federal Metrology and Calibration

Capabilities," will be expanded to include other laboratories

which are identified during the year.

t Increase the number of Federal agencies involved in the PMTE

Coordination to include all agencies having significant PMTE

activities. The need for formal chartering of the Interagency

PMTE Committee will be examined in-depth. If the need exists, a formal charter will be drafted, coordinated within NBS and with

other agencies, and forwarded for approval/signature at the DOC or 0MB level.

• Specific goals (short and long-term) for improvement will be

developed for each problem or opportunity discussed herein or surfaced during the year (e.g., productivity, intervals, recall,

management practices, ATE traceability, etc.).

0 A positive feedback or management indicator system will te

developed for measuring the effectiveness of the PMTE Project and

other agency PMTE programs.

47
OTHER OMS ACTIVITIES

On a number of occasions OMS was called upon during FY 79 to provide

special assistance to the NBS Executive Board, the Director's Office, and

other parts of NBS and DOC. For example, DMS, together with CEEE, was asked by the Executive Board to prepare a report on "The Impact of

Microprocessor-Based Technology on NBS Measurement Services." This report

was completed on schedule on December 15, 1978, with Kathryn Leedy of OMS

serving as principal investigator and providing a major editorial

contribution. As a second example, Brian Belanger provided assistance to

Deputy Director Dillon in generating material on quality assurance and

measurement control for a presentation by Dillon to the Fall Joint NSIA-AIA

Government-Industry Meeting (Williamsburg, VA, October 1979).

OMS has been deeply involved in the new ASTM Committee E-46 on Quality

Systems since its inception. (Brian Belanger will he Chai’^man of the E-46

Interface Committee for the coming term.) E-46 intends to provide

guidelines to all of ASTM concerning the incorporation of adequate quality

provisions in ASTM standards and test methods. Among other topics, E-46

will be concerned with measurement quality and calibration, and thus, NBS

will have an excellent opportunity to contribute to the development of

guidelines on measurement quality control that will be widely used.

The ANSI Z-1 Committee on Quality Systems, for which ASQC holds the

secretariat, has recently formed a new writing group for quality standards

for calibration systems and measurements. This activity is being carred

out under the auspices of the Metrology Technical Committee (MTC) of ASQC.

Brian Belanger of OMS is a member of both the standards writing group and

the MTC. Both in this activity and in the E-46 work, the role of OMS is to

contribute whatever technical input it can directly and to keep interested

parties in other parts of NBS appraised of the progress of the wo»"k and

involve those NBS persons having relevant expertise in this work as appropriate. Two meetings of the standards writing group have been held

during the past year and a considerable volume of correspondence has been

exchanged, including a first draft of a new standard.

Brian Belanger of OMS serves as Chairman of the U.S. Working Group for

Reporting Secretariat 6 of Pilot Secretariat 22 of the International

Organization of Legal Metrology (OIML). During the past year, other

commitments within OMS have prevented the standards writing activities of

RS 6 from making progress; however, activity in this area is new picking

up, with meetings of the U.S. Working Group scheduled during the month of

November and meetings with other collaborating countries scheduled for

Spring 1980 in Paris. One goal of OMS' involvement in RS 6 is to make the

recommendations which it ultimately will develop as consistent as possible

with U.S. domestic standards such as those under development in ASOC and

ASTM. Additionally, OMS will strive to incorporate the views of key U.S.

organizations such as the Scale Manufacturers Association and the

Scientific Apparatus Manufacturers Association.

48
OMS also feels that it is important to work with ether Federal agencies

to encourage uniformity and efficiency in measurement control and equipment

management. Many of the activities of the PMTE Project, as described earlier

in this report, are directed towards this end. During the past year, Brian

Belanger was asked by the Food and Drug Administration to participate in a training course for new auditors who will be auditing medical device

manufacturers for compliance with the Good Manufacturing Practices. The

training materials on calibration, traceability, and measurement assurance

presented to these auditors were well received, and it will continue to be

important for OMS to use every opportunity to provide such assistance to

other agencies.

During the past year OMS has worked with ASTM Headquarters staff to

prepare a plan for expanded NBS/ASTM collaboration (Appendix E-2). This plan

includes a consideration of joint interests in four areas;

• MBS participation in ASTM Committees:

NBS would strive to increase the effectiveness of its

participation in key ASTM committees.

• Accelerated development of MAP services:

ASTM and NBS have already demonstrated a common interest in

generating new NBS MAP services needed by the ASTM membership.

For example, NBS has worked effectively with the E-20.03 Committee

of ASTM to explore MAP approaches to industrial grade platinum

resistance thermometry. Opportunities exist for ASTM Committees

to assist NBS in accelerating the development of new MA.P services,

possibly through the vehicle of ASTM Research Associates. There

is considerable precedent for this approach in the development of new SRM's by ASTM Research Associates.

i. Legal Metrology:

ASTM does not currently have a major role in U.S. participation in

OIML, yet it appears that through the formation of new ASTM

Committees and/or the expansion of the role of existing ASTM

Committees, ASTM might facilitate the preparti on of U.S. positions

to be incorporated into the OIML standards writing process.

• Alternatives to NBS calibration services:

From time to time NBS finds it necessary to reduce low priority

calibration services. The adverse impact of such reductions might

be lessened if it were possible to generate ASTM standard test

methods incorporating calibration methods used by NBS, so that

other laboratories would be able to perform calibrations with a quality comparable to those performed at NBS. As in Item 2, ASTM

Research Associates working at NBS to develop more comprehensive

49
documentation and exploring alternatives to MBS calibration might

be considered as a means for increasing industry's selfsufficiency in calibration areas targeted for future reduction by

NBS. ASTM can also assist NBS in priority setting by providing a forum in which measurement requirements can be discussed.

The draft NBS/ASTM Plan has not been approved by either organization at

the time of this writing. It is anticipated that during the coming year

both ASTM and NBS will give this plan serious consideration. Comments from

the Evaluation Panel Members on this draft plan would be welcomed by DMS.

QMS participated in the NBS/Montgomery County Public Schools Science

and Technology Enrichment Program (Belanger and Leedy in FY 79).

Lecture/demonstrations on measurement standards were made to several

elementary and junior high schools during the school year. This activity

will continue in FY 80.

Each year OMS publishes and distributes a brochure describing NBS

measurement seminars given by NBS technical divisions.

During FY 79 OMS was asked by the NBS Director's Office to explore the

issue of "bilateral reciprocal traceability (BRT)" with the National

Physical Laboratory in England. BRT refers to a mutual agreement by two

countries, to recognize for traceability purposes, each other's calibration

certificates (or other specified evidence of traceability). Brian Belanger

is coordinating this issue on behalf of NBS, and Duncan Thurnell is

coordinating the issue on behalf of NPL. In the long run, such an agreement might cover reciprocity, both between NPL and NBS and also

between lower level laboratories in each country. However, in the short

run, attention is being focused on reciprocity between NBS and NPL only.

The principal technical consideration in implementing BRT is insuring

continuing measurement compatibility between NBS and NPL for the

measurement areas of interest. It appears that this can be done with a MAP-type approach with periodic intercomparisons of transport standards.

One must also consider institutional problems. In the U.S., NBS is not a regulatory agency and therefore does not require traceability of anyone.

Federal agencies which do require traceability include DOD, NASA, NRC, FDA,

etc. Unless these and other agencies recognize NBS/NPL reciprocal

traceability, such reciprocity will have no meaning. Accordingly, OMS will

meet with the concerned agencies during the coming year and hopefully will

obtain commitments from them to the effect that if NBS and NPL can come to

agreement on an adequate technical plan for achieving measurement

compatibility on a continuing basis, that they will recognize such

reciprocity. It would appear that NBS's efforts to achieve reciprocal

traceability are completely consistent with the GATT Code, which the U.S.

must honor.

Belanger met with Thurnell in May of 1979, and NBS and NPL are now in

agreement concerning how to proceed. It has been proposed that gage block

50
measurements serve as a test case, since this is a well established

measurement area where we already have good indications that NBS and NPL are in agreement. During FY 80 NBS and NPL intend to firm up plans for

gage block intercomparisons so as to form a firm technical basis for

reciprocal traceability.

10b. Invited Talks

Belanger IMEKO Conference, Moscow, May 1979, Invited talk on MAP's,

"Regional Measurement Assurance Programs for Physical

Measurements.

Belanger Basic Medical Device Course, FDA, Minneapolis, MN,

"Evaluating the Calibration of Device Manufacturing

Equipment," July 23, 1979.

Belanger International Laboratory Accreditation Conference, October

1978, "The Role of MAP's in International Laboratory

Accreditation"

Belanger Testing Laboratory Performance Evaluation and Accreditation

Conference, "Laboratory Performance Evaluation Services of

the U.S. National Bureau of Standards," together with J.

Bryson and G. Uriano, September 25-26, 1979.

Belanger NCSL Measurement Quality Requirements Workshop Panel,

(discussion of traceability and MAP's) October 16, 1979.

Belanger Measurement Science Conference, "Measurement Challenges for

the 1980's," November 30, 1979.

Kieffer National Conference on Quality Assurance of Environmental

Measurements, "The NBS Role in Quality Assurance for Physical

Measurements," November 27, 1978.

10c. Publications by QMS Personnel

1. "Measurement Assurance for Gage Blocks," M. C. Croarkin, J. Beers, and

C. Tucker, NBS Monograph 163, February 1979.

2. "Calibration and Related Measurement Services of the National Bureau of

Standards," B. Belanger editor, NBS Special Publication 250, April

1978.

3. "Catalog of Federal Metrology and Calibration Capabilities," K. Leedy,

NBS Special Publication 546, Issued June 1979.

51
4. "Regional Measurement Assurance Programs for Physical Measurements," B.

Belanger and L. Kieffer, to be published in ACTA IMEKO proceedings,

international Measurement Confederation), Moscow, May 1979.

5. "Traceabil ity--An Evolving Concept," B. Belanger, to be published in

ASTM Standardization News , (preprint).

6. "The NBS Role in Quality Assurance for Physical Measurements," B.

Belanger and L. Kieffer, National Conference on Quality Assurance of

Environmental Measurements, November 27-29, 1978.

7.

"Challenges in Achieving ATE Traceability to NBS," AUTOTESTCON

Conference, September 1979, Minneapolis, B. Bell, M. Souders, B.

Belanger, and R. Kamper, to be published in proceedings.

8.

"Laboratory Performance Evaluation Services of the U.S. National Bureau

of Standards," B. Belanger, J. Bryson, and G. Uriano, Testing

Laboratory Performance Evaluation and Accreditation Conference,

September 25-26, 1979, to be published in proceedings.

lOe. Special Reports

1. "The Impact of Microprocessor-Based Technology on NBS Measurement

Services," Report to the Executive Board, December 1978, Principal

Investigator, K. Leedy.

lOf . Technical and Professional Committee Activity

Belanger Member, ASTM Coimnittee E-46--Qual ity Systems, (Chairman,

Interface Committee, and Chairman, Nominating Committee).

Belanger Member, U.S. National Working Group for OIML Pilot

Secretariat 22, and U.S. National Advisory Committee for

OIML, (Chairman, Reporting Secretariat 6).

Belanger Member, ANSI Committee Z-1 Writing Group for Standards for

Calibrations Systems and Measurements.

Belanger Member, ASQC Metrology Technical Committee

Belanger Member, Task Group II (Metrology and Calibration of Industry

Joint Services Automatic Test Project.

> Belanger & Members, NCSL Measurement Assurance Committee

Kieffer

Kieffer Member, GIDEP Metrology Committee

Kieffer Member, NCSL National Measurement Requirements Committee

52
Leedy

Vogt

Vogt

Member, Special Committee or General Purpose Electronic Test

Equipment, Radio Technical Commission for Aeronautics.

Invited Participant, Department of Defense Joint Logistics

Commander's Panel on Automatic Testing.

Member, Government Advisory Group, GIDEP, (Government

Industry Data Exchange Program).

53
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Office of Domestic and International Measurement Standards

(ODIMS)

1. Technical Activities

Introduction

1.1. Background

The National Bureau of Standards has traditionally been involved in

standardization activities for a variety of reasons:

1. Staff scientists recognize standards as important delivery

mechanisms for their research programs;

2. Standards committees bring together a core competence of

technical and scientific interests from various institutions and segments of the economy that provide NBS scientists and programs valuable

external linkage; and,

3. Standards organizations recognize the technical strength and

objectivity of NBS scientists and actively seek their participation as an important balance between private sector and government interests.

At present, for example, twenty- three percent of the professional

staff of NBS' National Measurement Laboratory (NML) hold memberships in

standards-writing activities of national and international organizations,

both in the private sector and in government. With increased government

interest in the use of voluntary standards for regulatory and procurement

purposes; in assuring openness and due process in standards development

and certification procedures; and, in assuming a stronger more effective

presence in international standards activities, NBS is committed to

better plan and manage its standards interactions to respond to these

pressures. Standards coordination offices exist within the three major

organizational units of the Bureau. A centralized standards information

system has been developed to identify levels of standards participation

and to supply useful information to managers and participants. Additionally,

a high level Standardization Advisory and Coordination Committee has been

assembled to focus management attention on standards issues on a continuing

basis.

1.2. ODIMS Mission

The Office plans, administers, and actively participates in an extensive

program directed towards: — Managing assigned NBS responsibilities to represent the United

States in the International Organization of Legal Metrology

(OIML);

54
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-- Coordinating the NML involvement in domestic and international

voluntary standards activities, including maintaining current and

complete information on such standards activities, especially as regards the commitment of NML resources;

-- Coordinating and facilitating NML staff participation in international cooperative scientific and technological programs in

support of the Office of the Associate Director for International

Affairs; and

-- Supporting, as required, the Associate Director for Measurement

Services.

1.3. Interactions

In support of the objectives of United States participation in OIML,

there is strong liaison with all interested and affected parties including:

the National Conference on Weights and Measures; industry associations

and private corporations involved or interested in scientific and

measuring instruments; and. Federal agencies having legal metrology

mandates. Some of these interactions are institutionalized through a U.S. Advisory Committee for International Legal Metrology with representation

from the interests mentioned above. There is also strong liaison with the

national metrology services of the 46 nations who are OIML members.

ODIMS supports and interacts with tasks and programs of NML Centers

and Divisions where staff participate in domestic and international

measurement standards activities. It establishes and maintains contacts

with private sector standards bodies (ASTM, ANSI, SAE, NCCLS, etc.) as appropriate.

In support of bilateral/multilateral programs for cooperation in

science and technology, there are interactions with NML tasks and programs

to identify and establish appropriate projects, and there is interaction

with the various counterpart scientific organizations and institutions

of other nations. Contact with the Department of State and with various

U.S. Embassies and Consulates is also necessary.

2. Program Activity

2.1. Major Objectives

-- Improve U.S. trade opportunities in the scientific and measuring

instrument field by removing technical and administrative

differences in legal metrology standards, and by promoting the

harmonization of U.S. and OIML legal metrology requirements; — Improve the management and coordination of NML resources committed to standards activities;

55
-- Promote and facilitate NML participation in bilateral /multi lateral

cooperative exchanges in science and technology in support of

U.S. foreign policy objectives and the basic mission of NBS.

2.2. Technical Activities

2.2.1. United States Participation in OIML

In carrying out the Bureau's assigned task of managing United States

participation in OIML, the Office of Domestic and International Measurement

Standards plans and directs a variety of activities intended to maintain

a strong U.S. presence in OIML. Of priority effort is the development of

positions (including preparing and accrediting delegations to OIML technical

meetings) which satisfy U.S. interests as regards:

a. the identification of opportunities for U.S. measurement practices

to be embodied in OIML International Recommendations;

b. the prevention of impediments to U.S. trade that can result from

restrictive technical or administrative requirements in International

Recommendations;

” c. the development of International Recommendations which accommodate

the reality of a decentralized system of legal metrology such as found in

the United States (Europeans generally assume a centralized legal metrology

system); and, as regards

d. the development of sound management and administrative policies

which will ensure that OIML operates as a viable international organization and that it effectively coordinates its aims and objectives with

those of other international organizations (BIPM, ISO, lEC) having similar

objectives.

United States presence in OIML is geared to strong technical level

participation in almost half of its 200 committees and subcommittees

(called Pilot and Reporting Secretariats) that are studying measurement

problems and that are preparing solutions to such problems in the form

of model technical regulations proposed for adoption as International

Recommendations. U.S. participation in OIML generally takes three forms:

a. Nation in Charge of a Secretariat

This commits the U.S. to form a national committee to study a particular measurement problem; to develop a first draft International

Recommendation on the subject; and, to assume leadership in working with

other interested OIML nations to move the draft International Recommendation

to final adoption. The U.S. administers twenty-nine (.29) such secretariats

at present and ODIMS is responsible for organizing and monitoring the

progress of the work of these secretariats in behalf of the U.S. Appointing

technical advisors to direct the work; assistance in organizing National

56
Working Groups; contacting affected industry groups. Federal agencies,

standards bodies, and State and local agencies; translation of documents;

scheduling of international meetings; and, accrediting U.S. delegations

to such meetings are typical activities carried out by ODIMS in directing

this work. Highlights of the draft International Recommendations published

by U.S. National Working Groups over the past year are presented in Appendix

A.

b. Collaborating Nation Participating in the Work of an OIML Secretariat

Administered by Another Nation

This commits the U.S. to active participation in the development of

an International Recommendation for a given topic area including attendance

at international meetings, commenting on the technical adequacy of prepared

drafts, and voting. At present, the U.S. collaborates in the work of

approximately seventy (70) such OIML Pilot and Reporting Secretariats.

ODIMS manages this activity by receiving all drafts sent to the U.S.

for comment, identifying appropriate technical experts to review such

drafts, undertaking translations of documents where necessary, assembling,

and coordinating U.S. positions where appropriate, and forwarding such

positions to the respective OIML secretariat. When appropriate ODIMS

staff play a direct or leading role in reviewing drafts, generating U.S.

positions, and in serving on U.S. delegations. When international

meetings are scheduled, ODIMS assembles, accredits, briefs and de-briefs

U.S. delegations to such meetings. Over the past year the U.S. received

thirty-six (36) draft International Recommendations for comment or vote and

sent delegations to fifteen (15) OIML international working group meetings

held throughout the world. Highlights of selected OIML drafts reviewed by

the United States are provided in Appendix B.

c. National Representative in OIML Plenary Meetings and Conferences

The U.S. is an active member of the International Committee of Legal

Metrology (CIML), the body that oversees and directs the technical program

of OIML. Dr. Arthur McCoubrey, NML Associate Director for Measurement

Services, is the U.S. Representative to this body. The CIML meets at

least every eighteen months. The actions taken by the CIML do not obligate

its members under the OIML Convention. The U.S. also participates as a full -voting member in meetings of the International Conference of Legal

Metrology, which sets policy for OIML, adopts a quadrennial budget, and

officially sanctions International Recommendations as final documents.

The International Conference meets every four years and its decisions

obligate member nations under the Convention. ODIMS oversees the

development of U.S. positions to be taken during these plenary meetings.

In carrying out these activities ODIMS works with the U.S. Advisory

Committee for International Legal Metrology, with the various U.S.

technical advisors and interest groups that have provided input to U.S.

positions, and with the Department of State. The International Conference

of Legal Metrology will meet June 16-20, 1980, in Washington, D.C. at

the invitation of the United States Government. ODIMS is responsible, with

assistance from the Department of State, for planning the Conference.

57
2,2.2. Coordinating NML Involvement in Domestic and International Voluntary Standards Activities

In June 1979, ODIMS published its first report on "Staff Participation

in Standards Development Activities." The report is directed to NML

managers and has the following objectives:

a. to provide information obtained during a nine-month survey of

Centers and Divisions on levels of staff participation in national and

international standards-writing activities in both private and ^ governmental organizations;

b. to address the expectations of Bureau management regarding staff

participation in standardization activities; and, ^

c. to report progress achieved and outstanding issues in meeting

these expectations.

As a follow-up to the report, ODIMS has met individually with NML

Division Chiefs and is completing meetings with Center Directors to

discuss areas of standards activity where ODIMS could provide useful

assistance to line managers and to standards participants.

NBS policy regarding staff participation in standards activities

is that the line manager (Division Chief/Center Director) is responsible

for deciding appropriate mission-related standards assignments and for

allocating the necessary resources (labor and travel dollars) to support

such assignments. The ODIMS role as the NML standards coordination

office is to support these activities by focusing management attention

on standards activities and by generating useful information upon which

managers can base standards decisions.

From the data generated by the NML standards survey and from the

resulting meetings of ODIMS staff with Division Chiefs and Center Directors

it is clear that standards committee memberships are considered an important

technical activity. Division Chiefs for the most part recognize standards

committee assignments as a means of maintaining good technical liaisons

with external interests, and often the incorporation of Bureau research

into a voluntary standard is viewed as an important program objective.

It is also clear that external organizations recognize the technical

strength and objectivity of the Bureau staff as important assets and

actively seek staff participation whenever possible. Data concerning how

staff members become initially involved in standards activities indicate

that in a majority of instances external organizations request the staff

to participate on standards committees.

Several problems are also apparent. For the most part. Division

Chiefs cite ever increasing demands on their staff and resources as a limiting factor in pursuing standards activities. One result is an extremely low level of participation in international standards activities

58
because such participation consumes more resources (labor and travel of

staff) than does national committee participation. Less than 7% of the

total NML committee memberships are committed to participation in ISO and

lEC, the two major international voluntary standards bodies. In view of

current worldwide emphasis on the development and use of international

standards, including the recent Trade Agreements Act of 1979 which

commits the U.S. to the Standards Code developed under the Multilateral

Trade Negotiations (MTN), some attention should be given to this problem.

Secondly, it is apparent that no continuing effort is being made to

identifying new opportunities for important standards committee

memberships. In part, this reflects the feeling of most managers that

resources for new activities are difficult to obtain particularly for

standards activities, and, secondly, a reluctance on their part to spend

time understanding the nuances, complexities, and politics of our present

U.S. standards system. It is apparent that ODIMS, and the other Bureau

standards coordination offices, can and should pursue this activity as a service to the Centers and Divisions. However, the question of additional

resources to take on increased, particularly international standards

committee memberships, is very complex and not easily addressed.

2.2.3. Supporting Bilateral and Multilateral Scientific and

Technological Programs for NML Cooperation with Foreign

Institutions

As the principal scientific and technical measurement laboratory in the

United States, NBS is highly regarded both nationally and internationally

for its competence, mission, and accomplishments. Much of NBS' good

reputation internationally comes from active staff participation in

international programs and forums. Benefits of these activities accrue

to NBS and its staff through associated development of strong individual

and institutional relationships and thereby strengthen NBS' national and

international role in standardization.

International activities of NBS and the staff can be roughly categorized

as follows:

0 International Organizations . NBS staff widely participate in

international topical conferences, meetings of scientific and technical

organizations, and standards-writing organizations. Personal contacts

in these forums often lead to frequent direct communications, visits,

and collaborative working arrangements. At NBS, the Guest Worker

Program facilitates long-term collaborative work assignments for foreign

scientists and engineers.

0 Bilateral and Multilateral Agreements . On behalf of the United

States, the State Department maintains bilateral agreements and multilateral

treaties in science and technology with many nations. NBS participates

in several of these arrangements that afford international contacts for the

staff. For example, NBS is the designated representative of the United

States in the Treaty of the Meter that has more than 40 other member nations

59
as signatories. Bilateral scientific and technical agreements in which

NBS has actively participated include those with Canada, Japan, France,

Germany, Italy, the United Kingdom, Australia, Mexico, Spain, and Brazil.

NBS represents the United States in the U. S./U.S.S.R. Working Group

for Metrology which comes under the broad agreement in science and

technology between the U.S. and the Soviet Union. Recently, a bilateral

agreement in metrology was signed by the U.S. and the Peoples Republic

of China and is expected to call forth specific activity by NBS and

counterpart PRC institutions very soon. New bilateral agreements are

in the final stages of negotiation individually with Yugoslavia and Hungary.

The Yugoslav agreement is expected to strengthen and expand existing

cooperative programs between NBS and Yugoslav institutions.

0 Technical Assistance . Other agency support has been given to NBS by

the Agency for International Development (AID) for infrastructure development

in standardization for developing countries. In particular, AID has funded

NBS programs for conducting workshops, surveys, seminars, and training

in standardization for representatives from developing countries. Standards

institutions in Korea and Brazil supported by AID funding have sought and

obtained long-term training assignments at NBS. ODIMS, in cooperation with

the Egyptian National Institute for Standards (NIS), has developed an NBS

proposal to AID for assisting NIS over a 5-year period beginning in FY 81.

Another area in which NBS anticipates new requests for activity in technical

assistance is in connection with the implementation of the Trade Agreements

Act of 1979. This Act covers the GATT Standards Code which among other

things calls for assistance in standardization development by adherents

of the Code who request such help.

0 Grants . NBS has taken the opportunity to seek and apply funds under

the Special Foreign Currency Program (SFCP; PL-480). These funds have

been used in several countries to support projects that complement or supplement ongoing programs at NBS. To date, SFCP projects have been

established in Egypt, India, Israel, Pakistan, Poland, and Yugoslavia.

Funds are no longer available in Israel, Poland, or Yugoslavia but bilateral

agreements have succeeded the SFCP in all three nations. ODIMS was instrumental in establishing 5 new NBS/SFCP projects in Egypt during 1979.

The NBS Associate Director for International Affairs has administrative

and oversight responsibility for the whole range of foreign relations

activities of the Bureau staff. ODIMS mainly provides assistance to NBS

Management and staff in developing and coordinating bilateral and multilateral programs of interest to NML scientists and programs. Most of these

programs generally require negotiations both within the United States

and in other countries. Within the U.S., the State Department and

other Federal agencies are often involved. In other countries, counterpart governmental agencies and scientific and technical institutions

need to be consulted. Centralized staff support for NML in ODIMS provides

an efficient and effective means for maximizing benefits to NBS through

such agreements. Sometimes circumstances will dictate that it is more appropriate to involve NML staff outside ODIMS in establishing foreign

60
agreements; however, ODIMS must still maintain pertinent information on Bureau policy and internal resources for guiding effective negotiations.

Other important services of ODIMS in this regard are in putting together

proposals for both grants and other agency funding for foreign assistance

programs.

2.3. Activity Summary

2.3.1. Draft OIML International Recommendations Reviewed

by the United States

Secretariat Title of Document and Responsible Nation

PSl/RSl

PS4/RS1

PS5/RS13

PS5/RS13

PS5/RS16

PS6/RS4

PS7/RS4

PS7/RS5

PS7/RS5

PS8/RS5

PS10/RS2

PS11/RS3

PS11/RS4

PS11/RS4

PS11/RS4

PS11/RS7

PS12/RS9

PS18/RS1

PS21/RS1

PS21/RS2

PS21/RS4

PS21/RS5

PS22/RS1

PS22/RS2

Vocabulary of legal metrology (Poland)

Gage blocks (U.S.S.R.)

Meters for liquids (other than water) equipped

with measuring chambers (France/FRG)

Measuring systems for liquids other than water (France/FRG)

Water meters (UK)

Measurement of hydrocarbon gases distributed by

pipeline (Czechoslovakia)

Metrological regulations for non-automatic weighing

machines (France/FRG)

Checkweighing and weight grading machines (Belgium/UK)

Belt-conveyor weighing machines (Belgium/UK)

Hexagonal weights (UK)

Tachometers, mechanical odometers, and chronotachygraphs

for automobiles (Poland)

Piston pressure gages (Czechoslovakia)

Indicating pressure gages (U.S.S.R.)

Recording pressure gages (U.S.S.R.)

Pressure gages with elastic sensing elements (U.S.S.R.)

Barometers (UK)

Methods of verification of standard thermocouples

(Czechoslovakia)

Humidity meters for cereal grains and oilseeds (France)

Standardized metrological characteristics of measuring

instruments (U.S.S.R.)

Standardized metrological characteristics of dynamic

properties of measuring instruments (U.S.S.R.)

Metrological characteristics of measuring systems;

regulation principles (U.S.S.R.)

Requirements for methods of control of metrological

characteristics of measuring instruments (U.S.S.R.)

Fields of use and nomenclature of instruments subject

to periodic verification (FRG)

Principles of the choice of instrument parameters

and characteristics to be verified (DDR)

61
Secretariat

PS23/RS2

PS27/RS1

PS27/RS3

PS27/RS4

PS27/RS5

PS27/RS6

PS27/RS8

PS30/RS1

PS30/RS2

PS30/RS7

PS30/RS8

PS31/RS1

Date

Sept. 78

Oct. 78

Nov. 78

Dec. 78

Apr. 79

Apr. 79

May 79

May 79

June 79

June 79

Title of Document and Responsible Nation

Rules for the determination, conservation and use of

standards and calibration devices (Czechoslovakia)

Terminology relating to reference materials (U.S.S.R.)

Metrological properties of reference materials and

their standardization (U.S.S.R.)

Principles for the determination of certified values

in reference materials (U.S.S.R.)

Principles for the use of reference materials (U.S.S.R.)

Requirements concerning the contents of certificates

for reference materials (U.S.S.R.)

Information concerning reference materials (U.S.S.R.)

pH Measurement and ionometry (U.S.S.R.)

Measurement of electrical conductivity (U.S.S.R.)

Gas calorimetry (FRG)

Measurement of the concentration of liquid vapour

in air and gases (U.S.S.R.)

Training of qualified metrological engineers (U.S.S.R.)

2.3.2. U.S. Participation in OIML International Meetings

Commi ttee Title Place

PS21/RS1-2-4-5 Standardization of the Metrological

Characteristics of Measuring Instruments

Uzhgorod, USSR

PS5/RS16 Water Meters Kyoto, Japan

PS5/RS13 Measuring Systems for Liquids Other

Than Water

Paris, France

PS19/RS5 Strain Gages Paris, France

PS5/RS16 Water Meters London, UK

PS22/RS2 Principles of the Choice of

Parameters and Measuring Instrument Characteristics to be Verified

Berlin, DDR

PS7/RS4 Non-Automatic Weighing Instruments Strasbourg,

France

PS7/RS5 Automatic Weighing Instruments London, UK

PS7/RS8 Load Cells Paris, France

- OIML Developing Countries Council Paris, France

62
June 79 OIML Mark Working Group Paris, France

Sept. 79 PS7/RS4 Non-Automatic Weighing Instruments Braunschweig,

FRG

Sept. 79 - OIML Presidential Council Paris, France

Oct. 79 PS18/RS1 Instruments for Measuring the

Moisture Content of Grain and

Cereals

Paris, France

Oct. 79 PS26 Measuring Instruments Used in

Field of Public Health

the Braunschweig,

FRG

2.3.3. Meetings in Support of Bilateral Science and

Technology Agreements

Joint U.S./U.S.S.R. Working

Group on Metrology

June 24 - July 6, 1979 Moscow, U.S.S.R.

Joint U.S. /Yugoslavia

Cooperative Program

Sept. 24 - Sept. 30, 1978 Belgrade, Yugoslavia

April 9 - 13, 1979 Washington, D.C.

Preliminary Discussion of Jan. 26, 1979 Washington, D.C.

Joint U.S. /Hungary

Cooperative Program

2.3.4. Meetings in Support of Technical Assistance Programs

Joint U.S. /Egyptian March 22-31, 1979 Cairo, Egypt

Consultative Committee

on the Applied Science

and Technology Research

Program

2.3.5. Meetings in Support of Special Foreign Currency

Program Grants

Deliberations on four (4) Oct. 1-11, 1978 Cairo, Egypt

SFCP Projects:

1. Development of measurement standards for large storage volumes and

flow of fluids

2. Development of ionizing radiation dosijnetry systems and standards

for application in industrial radiation processing

3. Development of holographic interferometric techniques for industrial

gaging and quality control applications

63
4. Development of ultrasonic and acoustic emission calibration capability

for non-destructive evaluation

2.3.6.

' Special Publications

Report on: NML Staff Participation in Standards Development Activities

(June 1979).

54
Appendix A

Highlights of Draft QIML International Recommendations

Published by U.S. National Working Groups

PS7/RS8 Load Cells - United States National Working Group

Chairman - John Elengo, Revere Corporation of America

This secretariat was created at the request of U.S. industry as a means of directing international requirements for load cells. These

measuring transducers are now widely used in mass and force measuring

devices and their application is expected to show continued strong

growth as a result of rapid developments in electronics associated with

measuring devices. U.S. industry claims the technological lead in load

cells and is interested in assuming an influential role in the development

of international standards for these products.

In developing the draft Recommendation on load cells the USNWG

objective was to produce a draft that would provide government officials

uniform means for determining the metrological characteristics of load

cells used in measuring devices (scales and materials testing machines),

which are subjected to regulation in most nations. In achieving this

objective however, the USNWG wanted to ensure that the draft Recommendation

would be performance oriented so as to permit maximum flexibility in the

design and engineering of load cells. For example, the approach taken by

the USNWG recognized that several load cell errors must be considered

together when fitting load cell performance characteristics to the error

envelope permitted in regulations. It must be recognized that it is

possible to have low non-linearity and hysteresis errors and moderate

temperature errors or, conversely, to have moderate non-linearity and

hysteresis errors and low temperature errors. Thus, it is not considered

appropriate to specify individual error limits for given characteristics

(non-linearity, hysteresis, etc.), but rather to consider the total error

envelope allowed for a load cell as the limiting factor. The use of an error envelope concept allows manufacturers the freedom of balancing

individual contributors to total measuring error and to compensate for

such with microprocessors or through other electronic means while still

achieving the required performance.

This is a long overdue and welcome departure from traditional approaches,

wherein each load cell characteristic is specified independent of the

others. While traditional independent specifications are encompassing,

they inherently do not lend themselves to being combined. The user must

carefully interpret and select the results he desires. On paper, it is

quite easy to demonstrate that if all of the individual specifications are

at the extremes of tolerance, the load cell will not perform to the level

that most are in fact capable of doing. The use of an error envelope

simplifies the user's selection of load cells, and the regulator's task

of evaluating their performance.

65
PS19/RS2 Materials Testing Machines - United States National

Working Group Chairman - Milan Sebek, MTS Systems Corporation

This secretariat was taken by the U.S. as a means of ensuring that our industry would direct the development of international standards for

materials testing machines. At the present time, ASTM Committee E-28

is actively engaged in preparing standard test methods for various types

of materials (steel, concrete, etc.). A similar activity is going on within ISO Technical Committee 164 on mechanical testing. Neither ASTM

nor ISO are, however, involved in developing standards for the testing

machine itself which prescribe necessary technical specifications and

performance requirements.

The work to be undertaken by the U.S. in OIML involves the writing

of four International Recommendations under the following titles:

1. General Specifications for Materials Testing Machines

2. Specifications for Machines for Tension and Compression Testing

of Materials

3. Specifications for Force-Measuring Instruments for Verifying

the Load Indication of Materials Testing Machines

4. Specifications for Machines for Fatigue Testing of Materials

A draft of the first document on general specifications has been

completed and is undergoing review by the U.S. National Working Group

before circulating it to the international members of the secretariat.

The Recommendation deals with testing machines and their essential

accessories that are used to determine the mechanical properties of materials.

It provides requirements for specifying the general performance characteristics of materials testing machines; for determining the metrological

characteristics of materials testing machines; and for establishing

metrological controls concerning the use of materials testing machines.

The Recommendation is intended to apply to the fields of technology and

industry where the control or surveillance of the performance of testing

machines used to determine mechanical properties of materials is a government function. An example in the U.S. is the Nuclear Regulatory Commission's

insistence that testing machines used to determine mechanical properties

of materials used in building reactors be verified as to their performance.

PS19/RS5 Strain Gages - United States National Working Group

Chairman - James Dorsey, Micro-Measurements, Inc.

The United States accepted this secretariat on the urging of industry

who felt it important to provide leadership in the writing of an international standard for these devices. The draft that has been produced

deals with metallic resistance strain gages of the type used for determining mechanical properties of materials, for stress analysis of structures,

and as sensing elements in a variety of measuring instruments (e.g load cells).

66
strain gages are part of a complex system which includes structure,

adhesive, gage, leadwires, instrumentation, and (often) environmental

protection. As a result, many things affect the performance of strain

gages, including user technique. A further complication is that strain

gages once installed normally cannot be reinstalled in another location,

so gage characteristics can be stated only on a statistical basis. While

large numbers of strain gages are used, they are nonetheless a unique

measuring transducer because they cannot be calibrated.

The approach taken by this Recommendation requires manufacturers of

metallic resistance strain gages to specify important performance

characteristics for their products and assure that the specified values

of such characteristics are accompanied by properly stated uncertainties

that have been arrived at using accepted statistical procedures. This

approach is unique to the five or more strain gage "specifications" that

already exist in the U.S., which call for a specific set of equipment

and procedures that must be followed. In most cases those doing testing

use other equipment and techniques which are often considered to be

superior and usually involve expensive apparatus. As a result, most

engineers believe that the existing U.S. standards are not useful. The

draft OIML International Recommendation is very simple in scope and is

intended to achieve common understanding and agreement on the important

performance characteristics (resistance, gage factor, transverse

sensitivity, gage factor versus temperature, and apparent strain-thermal)

of metallic resistance strain gages.

67
Appendix B

H ighlights of Selected OIML Draft International

Recommendations Reviewed by the United States

PSl/RSl Vocabulary of Legal Metrology, Fundamental Terms

Secretariat : Poland

U.S. Interests : All U.S. held OIML Secretariats, U.S.

Representatives, Working Group Members.

U.S. Actions and Influence : In the late sixties OIML published

a Vocabulary of Legal Metrology, which had been prepared by PSl/RSl.

In 1971 this official French text was translated into English by the

British Standards Institute and was in use until OIML republished it in

both French and English with several small addenda in 1978. Recently

PSl/RSl circulated for comment a first preliminary draft of a revision

of the Vocabulary (in French only). U.S. review of the draft revision

indicated that it departed from the 1978 Vocabulary in its organization,

definitions, and examples to an unnecessarily large extent and that it

emphasized academic subject matter too strongly. The U.S. therefore

took the position that the draft must be set aside, the 1978 Vocabulary

given the status of a first preliminary draft, and the rationale, scope,

organization, etc., of the Vocabulary be reexamined before PSl/RSl can resume its work. At its September 1979 meeting, the OIML Presidential

Council accepted the U.S. position and instructed PSl/RSl to follow a more detailed course of action also sketched by the U.S.

PS4/RS5 Measurement of Angles

Secretariat : Poland

U.S. Interests : Manufacturers of angle measuring equipment,

NBS Mechanical Processes Division.

U.S. Actions and Influence : PS4/RS5 circulated to the U.S.,

which is a "Collaborator" of PS4/RS5, a preliminary draft entitled

"Echelon system for instruments used to measure angle." The draft

specified traditional calibration chains starting with a national

standard of angle and included specific methods and instruments in

several steps down to the ordinary measuring instrument. In brief,

U.S. review resulted in the following position which was communicated

to PS4/RS5. The U.S. finds that the utility of a (national) hierarchy

is particularly questionable in the case of angle because angle is a ratio quantity that can, and often should be, generated without reference

to a higher echelon standard. The draft does not recognize modern

68
instruments for generating angles now manufactured and in use in the U.S.

and fails to accord to angle blocks and indexing tables the accuracy of

which they are capable. In consequence of these comments the U.S. hopes

to gain recognition for the type of domestic high-technology angle measuring

equipment available and greater acceptance of the flexible approach to

angle standards practiced in the U.S. which contrasts sharply with the very

objective of this draft.

PS5/RS13 Meters for Liquids (Other Than Water) With Measuring Chambers

Secretariat : France and Federal Republic of Germany

U.S. Interests : Meter manufacturers, manufacturers of

fluid metering systems. State and local weights and measures officials,

NBS Office of Weights and Measures.

U.S. Actions and Influence : This Recommendation was adopted

by OIML in 1972 prior to the U.S. joining the Organization, and is now

in the process of being revised. The Recommendation, which is now mandatory in most of Western Europe, requires that meters be manufactured

with a 10 to 1 ratio between maximum and minimum rate of flow. The

theory behind the requirement is that a 10 to 1 ratio meter performs

better over its operating range than a 5 to 1 meter, the principal

difference being that the 10 to 1 meter is more accurate at slow rates

of flow. The 10 to 1 meter is also more expensive to produce. Within

the U.S., 5 to 1 ratio meters are used in vehicle tank systems, loading

rack (terminal) systems, and in liquified petroleum gas systems. Generally

speaking, vehicle tank trucks in the U.S. make individual deliveries

from 50 to 150 gallons into fuel oil tanks of 260 gallon capacity found

in most private homes where fuel oil is used. Loading rack (terminal)

systems gnerally make deliveries to vehicle tanks or railway tank cars having capacities of 1,000 gallons or more. Accordingly, the effect of

slow flow on the accuracy curve of a vehicle tank or loading rack meter is

not a major concern in the U.S. because such meters are largely operated

well above minimum flow rates. If the U.S. were to change its practice

and require 10 to 1 meters it would be subjecting the manufacturer and user to increase costs in order to avoid errors that might result from

those few commercial applications where vehicle tank or loading rack

meters are operated at or below minimum flow rates. At present, the U.S.

position is not to accept the proposed revision and negotiations are underway to try and resolve this problem through an appropriate amendment

to the draft Recommendation which would recognize the use of 5 to 1 ratio

meters for vehicle tank truck, loading rack (terminal), and liquified

petroleum gas applications.

P S 6 / RS4 Measurement of Hydrocarbon Gases Distributed by Pipe line

Secretariat : Czechoslovakia

U.S. Interests : Producers of natural gas, pipeline transmission

companies, public utilities and their associations, and manufacturers of

gas (bulk) quantity measuring equipment.

69
U.S. Actions and Influence : This Recommendation deals with

questions relating to official government approval of measurement methods,

station design, verification procedures, and of overall operations of

gas pipeline measuring stations involved in the transmission and custody

transfer of hydrocarbon gases. Various interests within the U.S. generated

a large number of detailed comments on the draft, but the general thrust

of the Recommendation is acceptable to the U.S. One of the contributing

factors to this acceptance is the fact that the U.S. worked with

Czechoslovakia in developing portions of the text. Detailed U.S. comments

have been forwarded to the Secretariat and were discussed face-to-face

during a visit to Bratislava by an ODIMS staff member. During this

visit it was made clear that PS6/RS4 was very grateful for the help

given by the U.S. and would consider U.S. comments most seriously.

PS11/RS4 Indicating and Recording Pressure Gages

Secretariat : U.S.S.R.

U.S. Interests : Manufacturers of pressure gages, NBS Pressure

Section.

U.S. Actions and Influence : There are two International

Recommendations involved that have been in effect since 1972 and are in

the process of being revised. NBS and the Instrument Society of America,

have worked diligently to incorporate U.S. practices into these documents.

During a working group meeting in January 1978 in Moscow, the Soviets accepted

U.S. proposed changes broadening the accuracy classes of gages and

broadening maximum permissible errors of ± .8K and ± IK to ± IK for new

and repaired gages and ± 2K for instruments in service. When the

documents were balloted for approval these changes and others had not

been incorporated and the U.S. strongly objected. An inquiry is now underway by the International Bureau of Legal Metrology (BIML) to

determine why the Soviets have failed to respond to the majority

opinion of the secretariat working group.

PS11/RS7 Barometers

Secretariat : United Kingdom

U.S. Interests : Manufacturers of barometers. National Weather

Service (NOAA), NBS Pressure Section.

U.S. Actions and Influence : This is a first draft International

Recommendation and there are problems which revolve around three principal

issues. First, the draft covers barometers for meteorology and for pressure

altimetry. The requirements for meteorology are much less stringent than

those for altimeter setting indicators and it appears prudent to separate

these two types of instrument applications. Secondly, the draft recommends

a pressure range of 150 mbar. The National Weather Service uses aneroid

instruments with a scale range of 190 mbar. Thirdly, the draft requires

70
tubes to be constructed with an internal bore of not less than 8 mm over

the scale length. Tubes with 6.35 mm internal diameter are widely used in

the U.S. Conversion to 8 mm diameter tubes might decrease the uncertainty

of a single reading by 0.03 mbar and thus improve performance, but

conversion will incur considerable cost and such improvement is not

considered necessary for meteorological uses. A formal U.S. position

containing these arguments has been submitted to the UK. No response

has yet been received.

PS27/RS1 -2-4-5 Standardization of the Metrological Characteristics

(4 drafts) of Measuring Instruments

Secretariat : U.S.S.R. (all four)

U.S. Interests : All U.S. held OIML Secretariats, U.S.

Representatives, Working Group Members, NBS.

U.S. Actions and Influence : In advance of a meeting of

the International Working Group of PS21 , of which the U.S. is a member,

PS21 circulated four preliminary drafts: (1) Standardized metrological

characteristics of measuring instruments (2) Standardized metrological

characteristics of dynamic prrperties of measuring instruments,

(4) Metrological characteristics of measuring systems: regulation

principles, and (5) Requirements for methods of control of metrological

characteristics of measuring instruments. The Secretariats had, as far

as the U.S. has been able to determine, submitted existing U.S.S.R.

standards as OIML drafts and were intent on their adoption without

substantive changes. Prior to the meeting the U.S. coordinated its

very critical position with the UK, FRG, and France. Some of the major

problems were that the drafts were most difficult to understand, too

all-encompassing in scope, too rigid in their intended applicability,

too abstract in approach, and given to idealized assumptions that lead

to impractical conclusions; they were poorly coordinated (between drafts)

and provision of a perspective view of the subject as a whole was lacking. There were also many more detailed and more technical problems.

While the U.S. and other Western countries pressed for discussion of

especially the broader problems, the Soviet Secretariats did everything

in their power to keep the discussion on the level of detail. In the

course of the week's meeting the Soviets softened somewhat as personal

relationships were established and translational obstacles identified

and eliminated. The U.S. -led Western efforts resulted in the following

major gains: The U.S. proposed softening of the drafts from International

Recommendations to International Documents will be considered. (Note:

International Documents are guidance documents and do not carry the

obligation of national implementation as stated in the OIML Convention for

International Recommendations.), A unifying preface to the whole group of

drafts was agreed to and drafted jointly by the U.S. and U.S.S.R. Tutorial

appendices will be written. Concrete examples to illuminate some abstract

concepts will be included. The PS21 attempt to have the drafts adopted by

the International Working Group was blocked, so that further modifications

will be possible.

71
PS23/RS3 Documentation Recommended for Standards and Calibration Devices

Secretariat : Czechoslovakia

U.S. Interests : National Conference on Weights and Measures,

NBS Office of Measurement Services, and NBS Office of Weights and Measures.

U.S. Actions and Influence : PS23/RS3 circulated both a French

and a difficult English version of a draft entitled "Recommended

documentation for physical standards." After improving the English

draft, ODIMS circulated it for comment. Problems with this draft and

U.S. comments concerning these were as follows. PS27 had stated its

main objective as being international "uniformity" in documentation for

standards and calibration devices. This was challenged on the basis that

there is no international flow of the documents in question known to us. The U.S. suggested instead that the main objectives should be to stress

good documentation and to support a minimum information content. The

draft attempted to specify in minute detail both what should be

documented and how this should be done. The U.S. commented that it was inappropriate to specify "how", though examples would be acceptable.

The draft implicitly assumed that documentation must be in the form of

paper. The U.S. suggested that modern means of information storage

(microfilm, computer memory) be included. The draft was based on the

assumption of only a classical calibration echelon system. The U.S.

commented that other traceability systems must also be recognized.

Beyond this, the U.S. urged that the standard be written so as to

accommodate the different national practices as well as the documentation

below the national level.

PS27/RS1-3-4-5-6-8 General Principles for the Use of Reference

(6 drafts) Materials in Legal Metrology

Secretariat : U.S.S.R. (all six)

U.S. Interests : Regulatory agencies, NBS Office

of Standards Reference Materials, and clinical (medical) laboratories

and other users.

U.S. Actions and Influence : Each of the above six

Secretariats circulated a preliminary draft relating to "Legal Certified

Reference Materials" and addressing (1) Terms and definitions, (3)

Metrological characteristics; general concepts and ratings, (4)

Principles of determiniation of certified values, (5) General principles

for application, (6) Contents of certificate, and (_8) Information systems

on Legal Certified Reference Materials. These drafts have been commented

on especially within NBS and have been the subject of repeated, somewhat

troubled discussions. In large part the present drafts are innocuous,

but several real problems have been identified: (a) PS27 has distinguished

legal certified reference materials (LCRM) from simply certified reference

materials (CRM) and define LCRM as a CRM certified by a national metrological

72
organization; (b) Reference to or coordination with ISO's effort on CRM

(REMCO) appears to be inadequate; and, (c) PS27, as evidenced especially

by the RS8 draft, seems intent on expanding its scope of activity well

beyond what appears to the U.S. to be appropriate in the OIML context.

At the September 1979 Presidential Council meeting these concerns were voiced by the U.S., noted by the Council, and acknowledged by the U.S.S.R.,

with the understanding that the U.S. concerns will soon be communicated

to PS27 in writing.

PS30/RS7 Gas Calorimetry

Secretariat : Federal Republic of Germany

U.S. Interests : Manufacturers of automatic gas calorimeters,

producers of natural gas, transmission line companies, public utilities

and their associations.

U.S. Actions and Influence : PS30/RS7 circulated two drafts,

both in only French and German, to the U.S. for comment. Both drafts

were translated from German by a commercial translation service, but

required extensive correction of the translation and editing by ODIMS

largely because the technical content suffered substantially at the

hands of a translator without technical background. The drafts received

extensive comments from a variety of U.S. interests. Automatic gas

calorimeters are expensive instruments used to measure combustion value

of transferred bulk gas. Their use ranges from that by local gas companies

to that in international custody transfer. Their accuracy and reliability

is critical because payments derive directly from measurements made with

them. A specific U.S. produced type of calorimeter is used almost

exclusively in the U.S. and is also exported to Europe. It measures one of the several "heating values" that can be defined. The drafts, though

often lacking the necessary specificity required in a standard, were nevertheless not applicable to the major U.S. calorimeter but were presumably written to accommodate German calorimeters. Also they did

not adequately consider the climatic variables that come into play in

applications ranging from Alaska to Nigeria. The most telling and most

forcefully made of the many comments by the U.S. requested better

definitions and specificity, clear broadening of the scope to cover the

U.S. systems, and much more careful attention to climatic variables. No

response has yet been received on the U.S. comments.

73
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U.s. DEPT. OF COMM.

bibliographic data

SHEET

1. PUBLICATION OR REPORT NO. NBSIR 80-2026

‘^Qov'L Adc^sion

TITLE AND SUBTITLE

Coordinated Measurement Services at the National

Bureau of Standards

AUTHOR(S)

. D. Tholen, B. C. Belanger, D. E. Edgerly, A. 0. McCoubrey

bfganizatlon Code *

?« Access(Oft No, <0.

5. Publication Date MAY 1980

JL. 8. Performing Organ. Report No.

9. PERFORMING ORGANIZATION NAME AND ADDRESS

NATIONAL BUREAU OF STANDARDS

department OF COMMERCE

WASHINGTON, DC 20234

:• t . j.' :i 11. Contract/Grant No.

SPONSORING ORGANIZATION NAME AND COMPLETE ADDRESS ("Srreer, City, State, ZIP)

Directorate of Measurement Services (510)

>hysics A- 363

13. Type of Report & Period Covered

14. %>onsbnng Agency Code

15. SUPPLEMENTARY NOTES

Document describes a computer program; SF-185, FIPS Software Summary, is attached.

16. ABSTRACT (A 200-word or less {actual summary ol most significant information. If document includes a significant bibliography or

literature survey, mention it here.) The document provides an overview of the coordinating activities of the

Directorate of Measurement Services as they are required to meet the needs

of industry, State and local governments, and other Federal agencies.

Critical issues are identified, accomplishments are highlighted, and plans

for program development are reviewed.

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) . . _ j \ Calibrations; International standards; Measurement Assurance Programs (MAP s);

Measurement services; OIML; Voluntary standards; Weights and measures.

18. AVAILABILITY Unlimited

[X] For Official Distribution. Do Not Release to NTIS

d] Order From Sup. of Doc., U.S. Government Printing Office, Washington, DC

20402, SD Stock No. SN003-003- im Order From National Technical Information Service (NTIS), Springfield, VA. 221R1

19. SECURITY CLASS

(THIS REPORT)

UNCLASSIFIED

20. SECURITY CLASS

(THIS PAGE)

UNCLASSIFIED

21. NO. OF

PRINTED PAGES

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