U.S. METRIC STUDY

INTERIM REPORT

COMMERCIAL

WEIGHTS AND

MEASURES

MUM

U.S. METRIC STUDY
U.S. METRIC SUBSTUDY REPORTS

The results of substudies of the U.S. Metric Study, while being evaluated

for the preparation of a comprehensive report to the Congress, are being

published in the interim as a series of NBS Special Publications. The titles

of the individual reports are listed below.

REPORTS ON SUBSTUDIES

NBS SP345-1:

NBS SP345-2:

NBS SP345-3:

NBS SP345-4:

NBS SP345-5

NBS SP345-6

NBS SP345-7

NBS SP345-8

NBS SP345-9

NBS SP345-10:

NBS SP345-1 1:

NBS SP345-12:

International Standards (issued December 1970, SD

Catalog No. C 13.1 0:345- 1 , price $1.25)

Federal Government: Civilian Agencies (issued

July 1971, SD Catalog No. C13. 10:345-2, price

$2.25)

Commercial Weights and Measures (this publication)

The Manufacturing Industry (issued July 1971,

SD Catalog No. CI 3. 10:345-4, price $1.25)

Nonmanufacturing Businesses (in press)

Education (in press)

The Consumer (in press)

International Trade (in press)

Department of Defense (issued July 1971, SD

Catalog No. C13. 10:345-9, price $1.25)

A History of the Metric System Controversy in the

United States (in press)

Engineering Standards (issued July 1971, SD Catalog No. C13. 10:345-1 1. Drice $2.00)

Testimony of Nationally Representative Groups (in

press)

COMPREHENSIVE REPORT ON THE U.S. METRIC STUDY

NBS SP345: To be published in August 1971

Those publications with catalog numbers have already been issued, and

may be purchased from the Superintendent of Documents, Government

Printing Office, Washington, D.C. 20402 for the prices indicated. Add onefourth of the purchase price if the publication ordered is to be sent to a foreign address. Be sure to include the SD Catalog number with your order.
U.S. METRIC STUDY

INTERIM REPORT

COMMERCIAL

WEIGHTS AND

MEASURES

Third in a series of reports prepared

for the Congress

U.S. METRIC STUDY

Daniel V. De Simone, Director

(J, S ' National Bureau of Standards - Special Publication 345-3

UNITED STATES DEPARTMENT OF COMMERCE

Maurice H. Stans, Secretary

NATIONAL BUREAU OF STANDARDS

Lewis M. Branscomb, Director

Nat. Bur Stand. (U.S.), Spec. Publ. 345-3, 116 pages (July 1971)

CODEN: XNBSA

Issued July 1971

For sale by the Superintendent of Documents. U.S. Government Printing Office. Washington. D C. 20402

(Order by SD Catalog No. C 13.10:345-3). Price $1.00

LETTER OF TRANSMITTAL

THE HONORABLE PRESIDENT OF THE SENATE

THE HONORABLE SPEAKER OF THE HOUSE OF

REPRESENTATIVES

SIRS:

I have the honor to present the third in the series of interim reports

stemming from the U.S. Metric Study, prepared by the National Bureau of

Standards.

This Study was authorized by Public Law 90-472 to reduce the many uncertainties concerning the metric issue and to provide a better basis upon

which the Congress may evaluate and resolve it.

I shall make a final report to the Congress on this Study in August 1971.

In the meantime, the data and opinions contained in this interim report are being evaluated by the Study team at the National Bureau of Standards. My

final report to you will reflect this evaluation.

Respectfully submitted,

Secretary of Commerce

Enclosure

iii
LETTER OF TRANSMITTAL

Honorable Maurice H. Stans

Secretary of Commerce

Dear Mr. Secretary:

I have the honor to transmit to you another interim report of the U.S. Metric Study, which is being conducted at the National Bureau of Standards at your request and in accordance with the Metric Study Act of 1 968.

The Study is exploring the subjects assigned to it with great care. We have

tried to reach every relevant sector of the society to elicit their views on the

metric issue and their estimates of the costs and benefits called for in the

Metric Study Act. Moreover, all of these sectors were given an opportunity

to testify in the extensive series of Metric Study Conferences that were held

last year.

On the basis of all that we have been able to learn from these conferences,

as well as the numerous surveys and investigations, a final report will be

made to you before August 1971 for your evaluation and decision as to any

recommendations that you may wish to make to the Congress.

The attached interim report includes data and other opinions that are still being evaluated by us to determine their relationship and significance to all of the other information that has been elicited by the Study. All of these

evaluations will be reflected in the final report.

Sincerely,

Lewis M. Branscomb, Director

National Bureau of Standards

Enclosure

IV
FOREWORD

This report explores the probable effects of a metric changeover on commercial weights and measures activities. It primarily concerns two aspects

of commercial weights and measures that would have to be dealt with in any

metric changeover:

(1) The cost of adapting or changing commercial weighing and measuring devices to record and/or indicate in metric units.

(2) The effects of metrication on state and local weights and measures

jurisdictions.

Reports covering other substudies of the U.S. Metric Study are listed on

the inside front cover. All of these, including this report, are under evaluation. Hence, they are published without prejudice to the comprehensive re- port on the entire U.S. Metric Study, which will be sent to the Congress by

the Secretary of Commerce in August of 1 97 1

This report was prepared by Mr. Stephen L. Hatos of the Office of

Weights and Measures, National Bureau of Standards.

The Office of Weights and Measures is grateful for the contributions made

by the Scale Manufacturers Association, the Gasoline Pump Manufacturers

Association, the National Scale Men's Association, and the Task Force on

Metrication of the National Conference on Weights and Measures.

In this as in all aspects of the U.S. Metric Study, the program has

benefited from the independent judgment and thoughtful counsel of its advisory panel and the many other organizations, groups, and committees that

have participated in the Study.

Daniel V. De Simone, Director

U.S. Metric Study

v

TABLE OF CONTENTS

Page

Letters of Transmittal Hi, iv

Foreword v Summary and Recommendations 1

Introduction 5

I. Adaptation of Weighing and Measuring Devices 9

1-1. Introduction 9

1-2. Statistical Analysis: Qualifications 10

1-3. Adaptation of Weighing Devices 11

1-4. Adaptation of Metering Devices (Mechanical) 25

1-5. Adaptation of Fabric Measuring Devices 30

1-6. Adaptation of Miscellaneous Weighing and Measuring

Devices 32

I- 7. Statistical Analysis Chart 34

Appendix 1-1. General Statistics

Appendix 1-2. Scale Manufacturers Association Presentation

of Views on Weighing Scale Conversions to the Metric System

(September 15, 1970) 43

Appendix 1-3. National Scale Men's Association Presentation

of Views on Conversion to the Metric System (October 30,

1970) 50

Appendix 1-4. Service Agencies (General Discussion) 54

Appendix 1-5. Glossary 56

II. Report of the Task Force on Metrication (December 17, 1970) 58

II- l. Introduction 59

1 1-2. Weights and Measures Jurisdictions 60

1 1 -3 . Inspector's Equipment 61

1 1-4. Weights and Measures Laws, Regulations, and Technical

Specifications 68

1 1-5 . Education and Training 72

Appendix II-l. Summary of Statistics 75

Appendix 1 1-2. State-County-City Service Center 79

Appendix 1

1 -3. Organization of the Task Force on Metrication 80

Appendix II-4. New State Standards 82

vii
viii TABLE OF CONTENTS

Page

III. Supplement 83

Metric Study Act, Public Law 90-472 (82 Stat. 693) 85

Excerpts from NBS Handbook 67, Checking Prepackaged Commodities 86

Excerpts from the Report of the 54th National Conference on

Weights and Measures, 1 969, N BS Special Publication 318 87

Excerpts from NBS Handbook 44, Specifications, Tolerances,

and other Technical Requirements for Commercial Weighing

and Measuring Devices ( 1 970 version) 88

Excerpts from the Fair Packaging and Labeling Act, Public Law

89-755 (80 Stat. 1296) 94

Excerpts from the Model State Weights and Measures Law, as Adopted by the National Conference on Weights and Measures (1970) 95

Excerpt from the United States Code 1 964 Edition, 1 5 U .S.C. 204 96

Excerpt from the 47th National Conference on Weights and Measures, 1962, NBS Miscellaneous Publication 244 97
SUMMARY AND RECOMMENDATIONS

PURPOSE

The purpose of this report is to:

1. Identify and describe the impacts (cost, time, etc.) of changing selected

commercial weighing and measuring devices to record and/or indicate in

metric units.

2. Analyze the problems that increased metric usage would have on state

and local weights and measures jurisdictions (e.g., laws and regulations, test- ing equipment, and training programs).

BACKGROUND

Evidence indicates that evolutionary metrication in the commercial

weights and measures area is unlikely. Consequently, it is felt that a national

metrication program would be needed in order to advance the usage of metric units in this area.

SUMMARY: FINDINGS OF FACT

AND CONCLUSIONS

ATTITUDES TOWARD METRICATION

A. Sixty-seven percent of the 15 weighing and measuring device manufacturers responding to our industry questionnaires were in favor of metrication; a like percentage, of the same respondents, were in favor of a mandatory metrication program based on legislation.

I
2 COMMERCIAL WEIGHTS AND MEASURES

B. Sixty-four percent of the 63 weights and measures jurisdictions

responding to ourjurisdiction questionnaire were in favor of metrication.

BENEFITS OF METRICATION

Device manufacturers, in fact, 73 percent of the respondents, and

many weights and measures jurisdictions felt there would be benefits

in using the metric system. However, benefits, even if substantial, are apparently difficult to express in quantitative terms and no respondent

offered any analysis showing them in dollars and cents. In general, those

surveyed felt that benefits would arise because the metric system is an

easier system of measurement to understand and to use as compared

with the U.S. customary one. Although, not mentioned directly, it appears that respondents were thinking in terms of more efficient use of

personnel; for instance, the use of the metric system may reduce the

amount of time spent by employees in doing measurement calculations.

Note: Because of the problems of determining the benefits of metrication, the overall economic effects, positive or negative, are difficult to

determine. In the absence of sound data on benefits, it was felt wise to avoid

estimating net economic consequences. However, because cost data are

easier to obtain than those for benefits, there may be a tendency to look only

at the cost side. This could lead one to see little or no advantages to metrication.

METRIC ADAPTATION OF WEIGHING AND

MEASURING DEVICES

A. The production of weighing and measuring devices to record and/or indicate in metric units does not represent a serious problem. In fact, a number

of manufacturers already produce such devices in either their domestic or

foreign plants, and thus they have already acquired some of the needed

expertise in order to carry out a metric adaptation program.

B. The adaptation of devices now in use would present problems. The

limited number of qualified service personnel coupled with the large numbers and varieties of devices now in use precludes quick field adaptation.

The time that would be required to accomplish field adaptation is estimated

at between 5 and 10 years with an accompanying cost of around $340

million.

WEIGHTS AND MEASURES JURISDICTIONS

A. Most weights and measures jurisdictions have little or no metric field

testing equipment. In order to be able to efficiently test metric indicating

and/or recording devices, it would be necessary for jurisdictions to either

purchase new and/or adapt present testing equipment to indicate in metric

units. The cost of such metrication nationwide would be about $ 1 million.

B. Weights and measures inspectors would have to undergo instruction in

order to be able to understand and use the metric system of measurement in
EXECUTIVE SUMMARY AND RECOMMENDATIONS 3

their operations. Each inspector would have to have about 40 hours of instruction. The cost (estimated to be about $3.1 million) of such training

would include (1) educational materials, (2) loss of time from job, and

(3) where necessary, instructors' salaries.

C. State weights and measures laws recognize both the U.S. customary

and metric systems of measurement in commercial transactions. As a result,

there is usually no legal impediment in using the metric system in the buying

and selling of products. However, these laws usually require that certain

packaged commodities (e.g., milk and bread) be sold in specified quantities

in terms of U.S. customary units. Since a language change would result in in- convenient metric sizes, size changes for these commodities would be

desirable.

D. A state's ability to legislate in the area of packaging and labeling has

been restricted by Federal laws such as the Fair Packaging and Labeling

Act, Public Law 89-755 (80 Stat. 1296). Federal laws, and the regulations is- sued under them, in some cases, preempt a state's authority in this area, or

require that State laws and regulations cannot be less stringent than the

Federal ones.

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

Requirements for Commercial Weighing and Measuring Devices, would

have to be revised to make use of metric units where none now exist. This

Handbook has been promulgated in all but two states as the official regulation for determining the correctness and accuracy of weighing and measuring

devices used in commerce.

RECOMMENDATIONS

1. It is strongly suggested that, in the event the United States should decide to convert to the metric system in commercial weights and measures, a coordinated program of metrication for this area be established with a re- quired date(s) for ending the use of customary units on package labels and

commercial weighing and measuring devices. It should be understood that

such a program would have to have an appropriate transition period. Leadership for this program should come from the Federal Government and be

coordinated through the National Conference on Weights and Measures

(NCWM). (The NCWM is sponsored by the National Bureau of Standards

via the Office of Weights and Measures.) This organization is an ideal body

for such coordination since it has members representing all segments of the

weights and measures community, e.g., weighing and measuring device

manufacturers, retailers, food packers, weights and measures jurisdictions,

etc.

2. In the event of metric conversion, the states should be encouraged, via

the NCWM, to change the existing sections of their weights and measures

laws and regulations dealing with specified quantities for certain packaged

commodities (e.g., milk, bread, and butter). Revised sections could require

the affected commodities to be sold in convenient metric units. Such changes

would, of course, affect manufacturing practice and care would have to be
4 COMMERCIAL WEIGHTS AND MEASURES

taken in specifying new metric quantities to make sure that industry could

meet any new requirements without incurring large costs.

3. To achieve uniformity in the packaging and labeling area, it is suggested that Congress enact amendments to existing package labeling laws

which would require that (1) most packaged products be labeled in both metric and U.S. customary units, and (2) provide that after a reasonable period

of time, the use of customary units would be optional. It is felt that, since any

metrication program would stress metric education in the schools and in

society in general, after a period of years the metric system would be

preferable to the consumer. Also, state laws should be in conformity with

Federal legislation and Congress should so require.

A major exception to this dual labeling scheme would be random weight

packages such as fresh meats and cheese. The labels for these packages are usually prepared by electronic prepackaging scales, and it is not economically feasible to adapt these devices to print labels in dual systems. Consequently, since consumers will need some aid in order for them to be able to

relate to the metric labeling on these items, it is recommended that conversion charts be posted at the point of sale of such packages.
INTRODUCTION

PURPOSE

The purpose of this report is to:

1. Identify and describe the impacts (costs, time, etc.) of changing

selected commercial weighing and measuring devices to record and/or indicate in metric units. 1 The process for changing devices in this manner is commonly called adaptation.2

2. Analyze the problems that increased metric usage would have on state

and local weights and measures jurisdictions (e.g., laws and regulations, test- ing equipment, and training programs).

BACKGROUND

The U.S. Metric Study analyzes the possible impacts of metrication on the

United States taking two different approaches. The first approach uncovers and explains these impacts assuming no action on the part of the Federal

1 A commercial device may be generally defined as one used in the buying and/or selling of

products, services, etc. For a complete definition see NBS Handbook 44, Specifications,

Tolerances and Other Technical Requirements for Commercial Weighing and Measuring

Devices (1970), G.A. 1, p. 27 (see III. Suppl., p. 88).

2 Adaptation does not mean that the device itself (internal components, housing, etc.) must be

redesigned to metric specifications and tolerances, etc. Adaptation in this case means a lan- guage change from U.S. customary units to metric units; that is, the device will now record in metric units instead of U.S. customary units. Any new parts required to make this language

change would be designed in the most convenient units and standards. The end result would, no

doubt, be a device designed in U.S. customary units, which is the present situation, but said device will indicate and/or record in metric units.

5
6 COMMERCIAL WEIGHTS AND MEASURES

Government to specifically increase the use of the metric system nationally.

This is essentially an evolutionary approach. The second approach identifies

and describes the impacts of increased metric usage assuming a nationally

planned metrication program, for all sectors of the economy. However,

for commercial weights and measures, it appears that government action

will be necessary if metrication is to take place; i.e., the evolutionary

approach will not work.

Commercial weights and measures can be defined as all matters involving

the commercial determination of quantity. It includes any and all services

and merchandise that are bought or sold. Historically, the control of commercial weights and measures has rested with state and local units of government.

The laws governing commercial weights and measures generally require

that the determined quantity be stated in one of two systems of weights and

measures — U.S. customary or metric. This is true whether the quantity is being determined at the time of sale with both parties represented, or whether the quantity is predetermined and presented on a package label or an invoice accompanying a bulk shipment.

Until recently, Federal laws in the commercial weights and measures area were also permissive in that either of two systems could be employed in

quantity determinations for most products. With the advent of the Fair

Packaging and Labeling Act (FPLA) in 1966, all consumer commodities

subject to that Act are required to be labeled in the U.S. customary system.

Prior to FPLA, most commercial transactions, governed by Federal law,

were permitted to use metric. This option was clearly provided by the Act of

July 28, 1866,3 which allows anyone to use the Metric System who wishes

to, but requires no one to do so. Most state weights and measures statutes

also provide this option. 4 For more than 100 years, then, the option to use the metric system has

been available. Despite this, there has been little or no movement to use metric units in commercial transactions. "This status quo situation appears

to be the result of the fact that neither consumers nor businessmen understand the metric system of measurement."

The findings of the U.S. Metric Study Report on the Consumer, NBS Special Publication 345-7, indicate that unfamiliarity with the metric system is widespread. Only 40 percent of the individuals surveyed in the Study were

able to name even a single metric measure. Apparently, this situation has

had a direct effect upon the users and manufacturers of commercial weighing

and measuring devices. Retailers using scales and meters, and supplying

packaged commodities, have little or no incentive to provide quantity information for consumers in a system with which both are almost totally unfamiliar 5 The manufacturers and packagers, in turn, sense no demand for

3 15 U.S.C. 204 (see III. Suppl., p. 96).

4 The weights and measures laws of 47 States, plus Puerto Rico and the District of Columbia,

either recognize or authorize the Metric System for commercial transactions.

5 The findings of the U.S. Metric Study Report on Nonmanufacturing Businesses, NBS

Special Publication 345-5, indicate that there is major support for a planned conversion

program. About 86 percent of the respondents favored a planned program; in fact, 62 percent
INTRODUCTION 7

metric devices or metric quantity information on packaged goods and, therefore, have no incentive to supply it. If either the retailing or manufacturing

segments in the commercial weights and measures area were to supply

devices or packaged goods in the Metric System, it would have to be in

response to consumer demand in order for the various enterprises to survive

competitively.

Coupled with this is the fact that enforcement efforts are a direct result of

conditions in the marketplace. -Since only the customary system is used, the

test equipment used by weights and measures officials are in that system.

Moreover, the rules, regulations, and specifications, promulgated and en- forced by state and local weights and measures agencies, also reflect marketplace conditions.

It can be seen that the use of the U.S. customary system in commercial

weights and measures transactions appears to be self-perpetuating. The

available historical evidence indicates that there is no incentive to change.

So long as there is no change, there is no opportunity for the public to

become acquainted with a new system of measurement in that area of their

daily life most directly affected by measurement decisions. Distributors of

goods and services are constrained to provide that which the public demands. Suppliers and manufacturers, in turn, are affected by the same constraints.

Historical evidence from Japan, the only major industrial nation that has

undergone and, for the most part, completed a metrication program, tends

to support the view that voluntary metrication in commercial weights and

measures is not feasible. The Japanese experience with this approach over

a 40-year period was unsuccessful. The public preferred the older more

familiar Japanese units, and, thus, ". . . the government decided to establish a regulation to abolish the verification and use of instruments with

nonmetric indications . . ." 6 The exact approach to be used by Great Britain (which is now undergoing metric conversion) to bring about metric usage in the marketplace

is uncertain at this time. However, it appears that Britain may take the

voluntary one. Considering the Japanese experience it is questionable

whether Britain will be able to bring about the widespread use of the

metric system in the marketplace using this approach. 7

In sum, commercial weights and measures in the United States are re- quired by law to use one of two systems of measurement in the devices used

to determine quantity, or the methods used to express quantity. This optional approach has resulted in overwhelming use of the U.S. customary

system. Therefore, it seems highly unlikely that the use of the metric system

in commercial transactions will increase without a prescribed program

to bring about metric usage in this area.

favored a mandatory approach. This represents the great bulk of the users of commercial

weighing and measuring devices.

6 Report of the 47th National Conference on Weights and Measures, 1962, p. 36 (see Suppl.,

p. 97).

7 Going Metric— Progress in 1970, the Second Report of the Metrication Board 1971,

London: Her Majesty's Stationery Office, pp. 29 and 100.
8 COMMERCIAL WEIGHTS AND MEASURES

PLANNED METRICATION PROGRAM

(1) Under a planned metrication program for commercial weights and

measures, it would be necessary to establish a date(s) for the required use of the metric system in the buying and selling of commodities (i.e.,

quantity descriptions only). In the case of package labels, a period of dual

labeling would be allowed (customary and metric). Such a date(s) should

be established far enough in advance, e.g., 10 years, so that the industries

concerned with bringing about the necessary changes would have an

appropriate period of time to accomplish them, and the public would have

a chance to adjust to the new measurement system. {Note: The various

segments (e.g., package labeling, metering and weighing) of commercial

weights and measures may have different dates for completing metrication.)

However, it is felt that industry and weights and measures jurisdictions

should be free to develop the best method(s) for bringing about metrication

in a voluntary cooperative way (within the time period prescribed). It is suggested that the National Conference on Weights and Measures

(NCWM), sponsored by the National Bureau of Standards, be used as the

main coordinating body for such a metrication effort, as the NCWM

has representatives from every segment of the weights and measures

establishment.

(2) The primary elements of a metrication program in this area would be as follows (not in any order of importance):

a. Replacing or adapting weighing and measuring devices and inspection equipment via a timetable.

b. Changing label quantity-of-contents statements first to dual measure- ment notation for a period of time and then to only metric units.

c. Revising laws, regulations, and technical specifications and

tolerances in the weights and measures area where necessary at both

the Federal and state levels.

d. Establishing training programs for persons engaged directly in commercial weighing and measuring activities (e.g., scale and meter ser- vice personnel, weights and measures officials, etc.).

e. Assisting the national effort to educate the public to be able to un- derstand the metric system.
I. ADAPTATION OF WEIGHING AND

MEASURING DEVICES

1-1. INTRODUCTION

There are two distinguishable levels where problems occur in the adaptation of weighing and measuring devices from one system to another; (1) the

manufacturing or plant level, and (2) the field or user level. As a rule, the

problems arising from metric adaptation at the plant level are not as great as

at the user level. Many companies have had some experience in producing

metric recording or indicating devices either in their domestic or foreign

plants, but they have had little or no experience in adapting devices in the

field. 1 The problems arising out of field adaptation include the following:

1 . The large variety and number of devices in use.

2. The limited number of qualified service personnel.

3. The large inventory of parts both for repair and adaptation purposes

that service agencies would have to maintain.

In order to avoid undue complexity, the narrative discussions below on

device adaptation have been limited to essential facts.

1 An exception to this general rule is a subsidiary of one U.S. meter manufacturer in South

Africa. They have developed a procedure for adapting gasoline dispensers in the field as a result of the metrication program in that country.

9
10 COMMERCIAL WEIGHTS AND MEASURES

1-2. STATISTICAL ANALYSIS: QUALIFICATIONS

Statistics for this chapter were gathered from questionnaires, interviews,

and information request letters. The companies to be surveyed were arrived

at by taking judgment samples of weighing and measuring device manufacturers as suggested by the Scale Manufacturer's Association, and the Office

of Weights and Measures, National Bureau of Standards.2 The data presented should be considered as only approximate since (1) it

is based upon respondent companies best estimates, and (2) in some cases,

especially the cost data, figures have been rounded to convenient numbers.

As a result of the uncertainties in the data (best estimates, rounding, etc.) it

is suggested that the figures in the statistical summary table be viewed as representing the general magnitude of the actual universe figures.

In determining the costs and time required to adapt weighing and measuring devices to record or indicate in metric units at the manufacturing and

user levels, the following conditions or assumptions were made: 3

1 . This survey is only interested in the impacts of adapting devices now

being produced and/or in use. These devices will undergo changes and/or adjustments only so far as it is necessary to adapt them so that they will record

or indicate in metric units. No other type of metrication will be considered.4 That is, costs and time needed for metric adaptation will be based on these

changes and/or adjustments plus related problems.

2. The design or engineering departments of a firm will not change their

measurement usage. Any new parts required for adaptation will be designed

using the present measurement system with associated engineering standards and "off the shelf" parts.

3. Production departments and service agencies will use the present measurement system except that there will be an increase in the use of metric

mass and/or volume standards.

It must be clearly understood that the costs and time reported for the

adaptation of devices is based on a very narrow form of metrication. Consequently, the initial plant costs, cost per device, and increase price per

device could all increase substantially if other types of metrication are taking

place at the same time.

In closing, the costs of field adaptation have to be viewed in a cautious manner. Companies have never undergone such a change as this, and therefore their costs are based on best estimates of what they think will be

required. It is quite possible that costs due to unforeseen problems might

arise which could alter the cost figures upward; or, in the alternative, the

problems encountered may be less than anticipated and costs may be far less

than expected. In any case, such unknown factors could alter costs signifi2 See app. 1-1 for more information on the statistical base.

3 These conditions or assumptions were made so that this survey would conform with the present practices of the scale and meter industries, as many of these companies already

produce metric recording or indicating devices by adapting U.S. customary ones.

4 The manufacturing survey is considering other aspects of metrication in the mechanical

products industries.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 11

cantly. As a result, to avoid giving a false impression of future costs, no at- tempt has been made to project present figures.

1-3. ADAPTATION OF WEIGHING DEVICES

DRUM AND FAN TYPE (MECHANICAL)

COMPUTING SCALES

Drum and fan type computing scales (figs. 1-3) are generally used in

grocery and candy stores to sell bulk items based on unit prices (cents/lb).

These devices allow the user to determine, for a selected price per unit, the

total price a customer must pay for any given weighed amount. For example,

assume that potatoes are being sold at 39 cents/lb, and a customer has

bagged potatoes weighing 2 lb 1 2 oz. The store clerk will weigh the bag, and

the computing scale will enable him to quickly determine the total price to be

paid. In this example that would be $ 1 .07.

In order to adapt these scales, the price computation and weight indicator

charts, if separate, would have to be replaced.5 Present computation charts

give total prices based on pounds and ounce fractions thereof for a range of

selected prices per pound. Metric computation charts would compute total

prices based on the kilogram and decimal fractions thereof for selected

prices per kilogram. It now appears that if the new metric charts can be used

within the present capacity of the devices leaving adequate adjustment capability, no other parts would have to be replaced. However, if new charts do

not have their metric indications aligned exactly with ones now using customary units, recalibration would be necessary. That is, the linear distance on

the customary and metric charts between any two equivalent points, measured either by linear or angular methods, (i.e., the linear distance from 0-10

oz on the U.S. customary chart and its equivalent 0-283.5 g on the metric

chart) would not be the same. Also, in the case of drum computing scales, it

will no doubt be necessary to replace the face plates just above and below

the window openings. These plates contain the selected unit prices which

refer to the total computed prices in the chart.

If, in order to adapt these devices, it is necessary to exceed their present

capacity, new springs or pendulum weights would also be required for drum

and fan scales, respectively. The additional parts would increase the cost as

well as the service time needed to complete metric adaptation. It should be

quite clear that recalibration would be necessary under these circumstances.

Before proceeding further, it should be noted that device users will have

to inform scale manufacturers of the price ranges they desire on new metric

computing charts. Scale manufacturers do produce several charts for these

devices so that retail stores will have flexibility in choosing prices and it is to

5 Some manufacturers produce fan type scales which have weighbeams and poises. The

weighbeam and possibly the poises would have to be replaced on these devices. On fan type

scales the indicator arm usually contains the various per unit weight prices. However, since

metric weighing would result in a new price structure (e.g., .39 cents/lb = .86 cents/kg) new indicator arms would probably be needed.
12 COMMERCIAL WEIGHTS AND MEASURES

Drum Computing Scale

FIGURE 1

Drum Computing Scale

FIGURE 2
ADAPTATION OF WEIGHING AND MEASURING DEVICES 13

Fan Computing Scale

FIGURE 3

be expected that the same procedure will continue under metric usage. The

price structures on metric charts, using the kilogram as a base, will be significantly different from the present ones. For example, 39 cents/lb would be 86

cents/kg, and 49 cents/lb would be $ 1 .08/kg. Metric charts are now available

for exported devices, however, it must be remembered that charts used in

metric countries could not be used in this country since total prices are determined by using currencies other than the dollar. Thus, price structures could be radically different from those that would be used in this

country.

Manufacturers foresee few problems in producing these scales so that

they will indicate in metric units. Several manufacturers already produce

such devices for export to countries using the metric system. Thus, many

manufacturers already have the necessary expertise to accomplish metric

adaptation at the plant level.

Manufacturers feel that adapting these devices in the field, even though

not difficult, will be time consuming because of the large number of devices

to be serviced, and the limited, already heavily burdened, service personnel.

Finally, manufacturers' estimates indicate that about 30 percent of these

scales now in use will have to be completely replaced. But, because this

represents devices which are over 15 years old, and thus at the end of their

useful life, purchasing new metric devices would not be a metrication cost
14 COMMERCIAL WEIGHTS AND MEASURES

per se. That is, since these devices would be replaced anyway, their replacement cost would not be a cost of metrication.

PROJECTION SCALES

Another type of mechanical computing device is the projection scale (fig.

4). This type of scale usually contains a transparent chart with the required

weight and price indications printed on it in extremely small type. These

numbers are projected onto a screen via an optical system for viewing by

both the customer (weight indications only) and by the user (weight and

price indications). To determine the total price for a particular product using

this scale, given the commodity's weight and unit price, the operator turns a

selector dial to the proper unit price; then, on his screen in juxtaposition to

the weight indication, the total price will come into view.

Adaptation of these scales essentially requires that the present charts be

replaced with metric ones followed by recalibration. Of course, if the capacity of the device is altered significantly, other parts such as new levers may

also be required.

Again, as with the mechanical computing scales discussed above, it would

seem that adaptation of present devices in the field will be more troublesome

than the production of such scales.

Projection Scale

FIGURE 4
ADAPTATION OF WEIGHING AND MEASURING DEVICES 15

PREPACKAGING COMPUTING SCALES

Prepackaging computing scales (figs. 5 and 6) are used primarily to determine the total weight and price for random weight packages given any

selected price per pound. These scales are for the most part used by supermarkets to label packages of fresh meat and cheese as packaged at the store. These devices automatically print a label which gives (1) the price per

pound, (2) the total weight, and (3) the total price to be paid for a package.

These scales, especially the newer models, are really a system composed

of three elements: ( 1 ) a mechanical (spring type) weighing device, (2) a computer, and (3) a label printer. The weighing device moves either a transparent

glass rectangular chart or rotating disc containing two types of weight indicators. The first type usually has weight indications which may be read by the

scale operator through an optical device. The second type is a special computer language that is used by the computer via a photoelectric sensor (electric eye), and allows the computer to read the same weight indications as the

operator. The computer calculates total prices based on a range of prices per

pound from $.01 to $9.99. That is, the operator selects a price per pound

within this range and the computer has been programmed to multiply the

weight of the package as sighted by the electric eye times the price per pound
16 COMMERCIAL WEIGHTS AND MEASURES

to obtain the total price the customer must pay. Upon completion of the

computer operation, the printer prepares a label. This type of label is preprinted and only the required numbers are placed on it by the printer.

It might be pointed out that these devices print all of the label information

below the units indication in decimal fractions. This not only includes the

money indications but also the weight figures. Thus, fractions of pounds are expressed in decimals, the smallest indication being $.01 /lb which is equivalent to 4.54 g. A typical label is illustrated below.

SAMPLE LABEL WITH IMPRINTS

BONELESS APR 20 '6

ROLLED RIB ROAST RAS

MM STORE NAME $3.81

NET WEIGHT—LB. TOTAL PRICE

1.19 3.20

^ Your Merchandising Message ^

In order to adapt these devices to indicate and record weights in metric

units, and determine total prices based on dollars per kilogram, it will be

necessary to install new charts, to replace electronic components in or install a new computer, and to alter or replace the elements in the printer (and

possibly digital readouts if used). It is also possible that new springs will be

needed for the weighing device. Needless to say, such changes will be ex- pensive. However, such changes will be necessary if the adapted devices are going to record in approximately the same increments as the present ones; as noted above, present scales indicate to .01 /lb or 4.54 g. Manufacturers now

indicate that scales can be adapted so that they will record in 5 g increments,

which certainly should be acceptable in commercial transactions. Thus,
ADAPTATION OF WEIGHING AND MEASURING DEVICES 17

Electronic Computing Scale

FIGURE 6

adapted scales, using present printers, would have a capacity of 9.995 kg

(22.035 lb) instead of their usual one of 1 1 .34 kg (25 lb).

Manufacturers indicate that the costs for producing these scales to record

and indicate in metric units will not be great. In fact, some of these companies

already produce metric-adapted devices for export to metric countries. Thus,

although the problems mentioned above exist, the expertise for handling

them is already present at the plant level. However, field adaptation will be

very expensive and would take about 4 years to complete. Finally, it appears

that 30 percent of these scales will have reached their life expectancy during

any adaptation period and their replacement cost should not be considered

a cost of metrication.

RAILROAD TRACK, MOTOR TRUCK, AND OTHER

PLATFORM TYPE SCALES

Introduction

Platform type weighing devices differ greatly in capacity. For example,

bench and portable devices may have capacities less than 1000 lbs (figs.
18 COMMERCIAL WEIGHTS AND MEASURES

7-9); whereas, the capacities of railroad track and motor truck scales

often exceed 100,000 lbs (figs. 10, 12, 13, and 14).6

All of these devices, despite their capacities, have two principal parts: (1)

the load receiving element, and (2) the indicating and/or recording element.

The load receiving element, to which the platform of the scale is attached, is usually a sophisiticated lever-fulcrum mechanism (i.e., mechanical scale) or

electronic device employing load cells (i.e., electronic scale). The indicating

and/or recording element translates the mechanical or electrical force on the

receiving element into a weight indication. Such systems may be composed

of one or more of the following items: weighbeam and poise, dial, printers,

and digital readouts.

Finally, only scales using the lever-fulcrum mechanism employ mechanical dials, weighbeams, and poises; such devices may also utilize unit and tip

weights.

Adaptation

Adaptation will affect only the items comprising the recording and/or indicating elements. It should be understood that scales do not have to use all of the items mentioned below. (As a rule, the smaller capacity scales use fewer indicating and/or recording devices.) Thus, since the adaptation costs

in section 1-7 are based on an average principle, individual scale metrication

costs could be either higher or lower than indicated. Note: Because some

companies produce metric recording and/or indicating scales for export,

some of the parts needed for field and expanded plant adaptation, for certain

types of devices, are already available (e.g., weighbeams calibrated in metric

units).

For such items as weighbeams, and unit and tip weights, adaptation will

require that these items be replaced with metric ones. It is clear that

weighbeams marked in customary units would have to be replaced. 7

Similarly, presently used unit and tip weights (used for increasing the capacities of scales) would be replaced so that scale capacities could be increased

in multiples of the metric system. Whether poises will have to be replaced

will depend upon whether the multiple factor of the beam changes. If this

factor is unaffected by adaptation, poises will probably not have to be

replaced.

For mechanical8 and electro-mechanical printers, adaptation will essentially require gear or other mechanical changes regardless of the scales being

adapted. In. the case of electronic scales, there is, of course, a transitional

6 Some large capacity devices such as railroad track scales and motor truck scales, must be

assembled on-site. In some cases, preceding assembly, a pit has to be prepared to house the load

receiving section.

7 On large capacity weighbeams (fig. 11), used, for example, on railroad track scales, it is conceivable that only the reading scale would have to be replaced.

8 Some large capacity weighbeam (see fig. 1 1) and poise combinations employ a mechanical

hand operated printer. Used with this printer, are special type (print) bars attached both to the weighbeam and to the printer itself. In order to properly adapt scales, using this kind of printer, the type bars would, no doubt, have to be replaced with ones which would allow tickets to be

printed in metric units.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 19

Portable Floor Scale

FIGURE 8
20 COMMERCIAL WEIGHTS AND MEASURES

Portable Floor Beam Scale

FIGURE 9

Built-in Platform Scale

FIGURE 10
ADAPTATION OF WEIGHING AND MEASURING DEVICES 21

Large Capacity Weigh Beam

(As used with railroad track and other

large capacity platform scales)

FIGURE 11

LOAD CELLS

Railroad Track Scale

(Load cell)

FIGURE 12
22 COMMERCIAL WEIGHTS AND MEASURES
ADAPTATION OF WEIGHING AND MEASURING DEVICES 23

device which converts the electric impulses from the load cells to mechanical motion. For electronic printers, adaptation would most likely be accomplished by replacing electronic components, such as resistors; however,

if these are used with the lever-fulcrum devices, a transition device to

convert mechanical motion to electrical impulses would be required, and

it is possible that mechanical changes to this device could bring about the

desired units change.

For electronic dials (used primarily on load cell type scales), adaptation

will require that the electronic components (particularly resistors) be

replaced. Such components control the indicated capacity of the dial. Of

course, present face plates with customary units would have to be replaced

and the scale recalibrated. For mechanical dials, adaptation requires re- calibration and, of course, new dial face plates.

For digital indicators, adaptation will require either mechanical or electronic component changes. There is a similarity in the adaptation concepts

for digital indicators and printers, even though the specifics of the changes

are different. (1) Digital indicators which contain a mechanical to electrical

transition device9 can be adapted by modifying the mechanical elements

(e.g., gear changes) therein. In the alternative, adaptation may be accomplished by replacing electronic components. This type of indicating system

may be used with either lever-fulcrum or load cell scales. The latter types of

scales require a transitional device, opposite in purpose to the one in the indicator, before this type of digital system can be used. This procedure allows

load cell scales to use existing mechanical-electrical indicating devices. (2)

For completely electrical indicating systems, adaptation would require only

electronic component changes. These systems may also be used with leverfulcrum scales provided a load cell or similar device is attached to the appropriate part (e.g., steelyard rod, or transverse extension lever) of the lever

system.

Manufacturers feel that adapting digital indicators or printers to indicate or record respectively to the nearest kilogram will be less troublesome and

costly than to the nearest 0.5 kilogram, although the 0.5 kg would be closer

to the 1 lb minimum graduation most often used. It should also be noted that

adaptation to the smaller indication (0.5 kg) would result in a loss of one significant figure. Thus, the capacity of the indicator or printer would be

reduced. For example, a four digit indicator or printer has a capacity of

9,999 lbs, whereas its adapted capacity to the nearest 0.5 kg would be 999.5

kg or 2,203.52 lbs. Such a reduction in capacity would affect the usefulness

of the scale.

Finally, manufacturers feel that production and/or assembly of adapted

devices will not be difficult, but that adaptation of scales now using customary units would be expensive (sec. 1-7). It seems that a majority of the latter

costs stem from: ( 1 ) manhours spent installing needed parts and recalibrating

9 One method which may be used to translate mechanical action into electronic impulses is to use a rotating disk which contains indications in coded form and a group of photoelectric cells. An optical system projects the disk's indications onto the photoelectric cells which in turn pro- vide the necessary electric signals for the digital readout device. Note: A similar concept is used on prepackaging electronic computing scales.
24 COMMERCIAL WEIGHTS AND MEASURES

any device; (2) the purchase of new dials, unit weights and beams for lever

scales; and (3) the replacement of some printers and indicators where it is more economical to replace than to adapt.

OVER AND UNDER AND PACKAGE CHECKING

SCALES (figs. 15 and 16)

Over and under and package checking scales are essentially balances, and

are used in both industrial and commercial applications. For example, one of

the uses of over and under scales is to check packages in a production process to determine if they are within prescribed fill tolerances. Similarly,

package checking scales are used primarily by weights and measures en- forcement officials to determine the accuracy of quantity of contents state- ments on packaged consumer commodities.

Metric adaptation of these devices would be desirable if packaged con- sumer commodities were required to be sold in metric terms (labeled with

metric units). That is, since the quantity statement and the scale would be

using the same measurement language, metric units, the possible errors which may be caused by the use of conversion factors in production and test- ing operations would be eliminated.

Over and Under Scale

FIGURE 15
ADAPTATION OF WEIGHING AND MEASURING DEVICES 25

WEIGH BEAM

Over and Under Scale

FIGURE 16

The adaptation of these devices essentially requires that the weighbeam

and possibly the poise be replaced, and that a new chart (e.g., over and

under type) be installed in the tower indicator.

Finally, most manufacturers of these devices feel that the problems of

metric adaptation would be slight at both the plant and field levels. Apparently, this was due to the fact that these are relatively simple devices.

1-4. ADAPTATION OF METERING DEVICES

(MECHANICAL)

INTRODUCTION

Since the changes required to metricate present commercial mechanical

metering systems are about the same, despite the fluid being dispensed, this

section will confine its attention to the metric adaptation of retail gasoline

pumping systems, and meters on gasoline and oil delivery trucks.

GASOLINE DISPENSING SYSTEMS (RETAIL)

Certainly, one of the most recognizable sights to the average American

driver is a gasoline pump (fig. 17). What is not generally known is that these
26 COMMERCIAL WEIGHTS AND MEASURES

Gasoline Pump

FIGURE 17

devices in 1969 dispensed over 82 billion gallons of gasoline. The vast

majority of this gasoline was purchased from 220,000+ gasoline stations in

the country at an annual expenditure of about $25 billion. 10 A mechanical gasoline dispensing system is composed of three basic

parts: (1) a pump, (2) a meter, and (3) a mechanical computer11 (fig. 18). The

pump, usually a positive displacement type, forces the liquid (gasoline)

through the meter (which contains a series of rotating adjustable calibrated

chambers). As the chambers rotate they drive a shaft-gear mechanism which

is connected to the computer. The computer records, for any set price per

gallon, the total gallons delivered and the total sale in dollars and cents.

In order to adapt these systems to indicate in metric units, the following

changes will be necessary:

a) The shaft-gear mechanism between the meter and the computer would

have to be changed so that the input into the computer would be 3.785 times

faster than at the present time. This is essentially a gear change only.

b) Computers that indicate to only three places in the quantity section

allow readings only up to 99.9 and this indication would not be adequate if metric units are used, as such devices would be only able to indicate a

10 Statistics were obtained from National Petroleum News (NPN), Factbook Issue, mid-May

1970, (McGraw-Hill Inc., New York 10036).

1

There is only one manufacturer of this type of computer.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 27

capacity up to 99.9 liters (26.39 gal). It is clear, that this capacity would

not be adequate for filling large capacity vehicles. However, kits are available from the computer manufacturer which allow servicemen to change

the left wheel indicator in the quantity section on three wheel computers

to read from 0 to 14. This would allow the device to have a capacity of

149.9 liters (39.60 gal) which would be suitable for most retail operations.

There would, of course, be no such problem with computers that indicate

to four places since they would be adapted to record up to 999.9 liters

(264.15 gal). 12 Note: (The following is new information which was received

from the Gasoline Pump Manufacturers Association just prior to closing

for press. Time did not permit an in depth analysis of this information to

determine the possible economic impacts.)

It appears that a change in NBS Handbook 44 by the 55th National Conference on Weights and Measures may have precluded this type of adaptation for 3-wheel registers. The applicable provision is as follows:

12 The conversion kits allow present three-wheel registers to increase their capacity from 99.9

gal (376.16 liters) to 149.9 gal (567.43 liters). However, adaptation would reduce the capacity

to 39.60 gal (149.9 liters), which is 26.4 percent of the present capacity. Likewise, four-wheel

registers would have their capacity reduced to 26.4 percent of their capacity. This reduction in capacity could limit the usefulness of these devices.
28 COMMERCIAL WEIGHTS AND MEASURES

G-S.5.2.3. SIZE AND CHARACTER.- In any series of graduations or recorded representations, corresponding graduations and

units shall be uniform in size and character. Graduations, indications, or recorded representations which are subordinate to or of a lesser

value than others with which they are associated shall be appropriately portrayed or designated. (This specification will become retroactive as of January 1, 1975) [1970]

The 0-14 wheel of necessity has smaller characters than other standard

wheels. Consequently, these smaller numbers would probably conflict

with the requirements of the above provision.

Under these circumstances, adaptation will, no doubt, require the installation of a 4-wheeI computer (for a 999.9 liter capacity) along with the

appropriate gear and face plate changes.

Using this approach, it is estimated that adaptation costs (only for pumping systems using 3-wheel registers) will increase between $100-160 per

device. This increase would be due primarily to the cost of purchasing

and installing a new or rebuilt 4-wheel computer.

c) Face plates would have to be changed. That is, the present "gallons" and "price per gallon" indications would be changed to "liters" and

"price per liter."

Most companies feel that metric adaptation of these devices at the plant

will not be difficult. In fact, some companies have acquired, either through

their foreign subsidiaries or domestic plants, expertise in producing metric

indicating gasoline dispensing systems.

However, adaptation at the field level will be difficult. Again, as with

weighing devices, the problem is the large number of devices to be adapted,

but only a limited number of qualified service personnel to accomplish the

job. As a result, manufacturers estimate that it will take 3 to 10 years to

complete field adaptation.

In order to avoid having a long period of time in which gasoline is being

sold in both the U.S. customary and metric units, it might be advisable to

adopt a metric field adaptation procedure as developed by one meter manufacturer. This procedure was developed especially for their foreign subsidiaries who are in countries undergoing metrication. Basically, their procedure

was to equip meters with dual gearing systems (for the measurement system

in use and the metric system) and to install new face plates with the new

plates having the metric units permanently embossed on the plate with pres- sure sensitive decals over them giving the old units. Thus, when the time

came for the changeover, it was a relatively easy matter to (1) change the

gear ratio into the computer by locking the metric gear ratio into place (much

like shifting gears in a car), and (2) removing the old units by pulling off the

decals. Note: This dual gearing system was designed so that only one change

of the gear ratio could be made, that is, from the ratio that allowed the computer to record in the old units to the one for metric units.

BLENDING PUMPS

In blending pumps, two fuels (two different grades of gasoline, or, in the case of marine fuels, gasoline and oil) are drawn separately from two tanks.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 29

Each fuel flows through its own pumping unit, its own meter, and into the

blend control valve, where the flow of each is increased or decreased in ac- curate proportion to provide the desired blend. This blend control valve

maintains the correct blend ratio. Outside the pump, the two controlled

volume fuels continue to flow through separate hoses — actually a hosewithin-a-hose arrangement. In the nozzle, the two fuels are blended into one

grade. Each fuel can, of course, be dispensed separately.

The blend (mechanical) computer is an expanded version of the usual one. The commonly used computer has only one predetermined unit price (price

per gallon) setting indicator (unit from which the total sale is calculated);

whereas, the blend-computer has several such units. Present blend computers may have up to nine separate unit price indications; thus making possible the dispensing of a corresponding number of different grades of fuel. The

gearing system in this computer, in conjunction with the blend control valve,

computes, for a predetermined unit price, using the speeds of the rotating

shafts of the meters the total sale price and number of gallons delivered. It

is clear that the gearing system in the blend computer is far more complicated than in the regular type.

Adaptation would essentially require that the computer's gearing system

be altered. One manufacturer feels that such changes will be relatively more

extensive in nature than those required to adapt regular computers. Consequently, metrication costs for these devices will in all probability be higher

than those for regular types.

In addition to multiple blending pumps, some pump manufacturers

produce fixed blend pumps which deliver only one blend. A special valve

blends the fuels before they are metered, and only one meter is used. Except

for the special blend control valve, these pumps are similar to regular pumps

and, therefore, metric adaptation would be the same as that for regular

pumping systems.

Comment: New prototype gasoline metering systems feature electronic

readout devices (e.g., digital indicators) in conjunction with or as a replacement for the mechanical computer. At the time of closing for press, no information had been received on the difficulties and costs of adapting such

systems.

METERING SYSTEMS (MECHANICAL)

ON TANK TRUCKS

Adapting pumping systems used on oil and gasoline tank trucks will not be

too much different from the above discussion (fig. 19). As a rule, these

systems can be adapted by making (1) gear ratio changes between the meter

and the computer (fig. 1 2), and (2) face plate alterations.

Even though manufacturers feel that adaptation will be harder in the field

than in the plant, tank trucks have the advantage of mobility and may be

taken to a convenient place for metrication. 13

13 Capacity reduction due to metrication keeping the decimal point in the same place of the

register may also limit the usefulness of fuel and gasoline delivery truck meters. A typical meter

register may have its capacity reduced from 9,999.9 gal (37,853.7 liters) to 2,641.7 gal (9,999.9

liters). Thus, e.g., filling a 7,000 gal (26,497.9 liter) tank would require three separate metering

operations.
30 COMMERCIAL WEIGHTS AND MEASURES

0 D 0 D

CALLOWS

: i c o o I u

Tank Truck Metering System

FIGURE 19

1-5. ADAPTATION OF FABRIC

MEASURING DEVICES

INTRODUCTION

There are over 40,000 fabric measuring devices (fig. 20) in use in the

United States and these are produced by only one manufacturer. Such

devices are primarily used by concerns that sell yard goods.

These devices usually have a dial which indicates in yards, and an at- tached computation chart which computes a total price given fixed lengths

in yards for any given price per yard (i.e., the chart contains various lengths

and prices per yard). The fabric to be measured is pulled through the device

which, in turn, drives a shaft which is connected via gears to the dial.

ADAPTATION

Metric adaptation of these devices essentially requires two things: (1) the

gear mechanism must be replaced in order to have the dial 14 record in meters

instead of in yards, and (2) the price computation chart must be replaced

14 Of course, a new dial face, which indicates in metric units, would also be required.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 31

with one which will give total prices based on fixed meter lengths and prices

per meter.

Production of metric indicating devices does not appear to be a problem as they have been available for a number of years. Recently, a prototype was

developed, which can be easily adapted to indicate in metric units at the

plant or in the field.

However, the manufacturer feels that field adaptation for present devices

would not be economical; i.e., replacement of present devices would be

more practical. In fact, they feel that even plant adaptation of devices now in use would not be realistic, and we quote from their response to our questionnaire: "Adaptation of field machines could be done at the plant, but would

require total disassembly, and measure roll, which would cost as much in

labor and material as a production model." Thus, the total cost for field

adaptation, as noted in the cost analysis chart, is based on a per unit re- placement cost, assuming that metric indicating devices would sell at the

same price as present machines. Also, no turn-in allowance for present

devices has been accounted for, and, as a result, cost estimates are probably higher than should be actually encountered.

Fabric Measuring Device

FIGURE 20
32 COMMERCIAL WEIGHTS AND MEASURES

1-6. ADAPTATION OF MISCELLANEOUS

WEIGHING AND MEASURING DEVICES

INTRODUCTION

The information contained in this section was derived from (1) responses

to letters of request for information (sent only to taximeter and cordage and

wire measuring device manufacturers); (2) telephone interviews with trade

association personnel; and (3) discussions with knowledgeable persons on

the staff of the Office of Weights and Measures, National Bureau of Standards, who are familiar with the devices below. Note: The response to the

request letters was disappointing as only one firm in each of the product

areas concerned replied. This represented only 18 percent of the 1 1 firms

contacted (six taximeter and five cordage and wire measuring device manufacturers).

From information received, it was felt that the metric adaptation problems

for these devices would be slight. Therefore, elaborate discussions were considered unnecessary.

TAXIMETERS15

Taximeters indicate the total fare to be paid in dollars based either on

distance (now indicated in miles) or on time, or on a combination of both. As

a rule, most taximeters have a control device which allows the operator to

decide the basis of the fare.

Metric adaptation of taximeters would require gear as well as face plate

changes in order for distance indications to be in kilometers instead of miles.

Since metric indicating devices are already being produced for export by

several companies, it would seem that device adaptation at the plant level

will not be a problem. Field adaptation does not appear to be a problem

either since (1) most taxicab companies have adequate meter repair facilities, and (2) taximeter repairmen are familiar with gear change problems as such changes are required in order to make rate adjustments.

There are approximately 130,000 taximeters now in use and adaptation

would cost about $20.00 per device. This would result in a total metrication

cost of around $2,600,000. The time period required to complete adaptation

has been estimated to be 2 years.

CORDAGE AND WIRE MEASURING DEVICES

Cordage and wire measuring devices indicate length via a gear and dial

mechanism. Thus, in order to adapt these devices to indicate in metric units,

gear and face plate changes will be required.

It appears that plant adaptation may not be severe since some of these

devices are already being produced to indicate in metric units. However, the

15 Some of the information contained herein was obtained from the International Taxicab Association, 222 Wisconsin Avenue, Lake Forest, Illinois 60045.
ADAPTATION OF WEIGHING AND MEASURING DEVICES 33

one respondent indicated that its metric devices did not meet present

accuracy tolerances as provided by most states. 1 " Thus, for the most part,

these machines cannot be used commercially in this country.

Field adaptation, it seems, will present some problems. The respondent

felt that devices now in use would have to be returned to the plant for adaptation. If plant adaptation is required, costs will arise from transporting the

devices to and from their place of use, as well as from the labor and material

expended on the actual metrication. Finally, this method for accomplishing

metrication might require an exchange of devices by the manufacturer, since

device owners would probably still want one while theirs was being adapted.

To acquire and maintain an inventory for such an exchange operation,

could prove to be expensive for the device manufacturer.

VEHICLE TANKS USED AS MEASURES

Adaptation does not appear to be a problem for vehicle tanks used as measures (over 40,00017 are now in use). Such tanks 18 are calibrated by using

provers which discharge a known amount of liquid (usually water) into the

tanks. A marker on the tank is then adjusted and sealed indicating this

amount and the tank is used only to discharge this fixed amount of liquid. In

order to adapt these devices, either the markers now in use would have the

customary units converted to metric ones (this would not require calibration) or the devices would be recalibrated to indicate in even metric units.

Recalibration for these devices does not appear to be expensive.

OTHER FIXED MEASURED CONTAINERS NOW IN USE

(FARM MILK TANKS, MILK BOTTLES, ETC.)

The fixed dimensions of these devices limit metric adaptation to either

(1) translating present capacities into equivalent metric terms (probably

hard to use figures), or (2) reducing capacity levels to SI units having

convenient numbers. Like the vehicle tanks above, metrication for these

devices appears to be inexpensive.

16 NBS Handbook 44, Specifications, Tolerances, and Other Technical Requirements for

Commercial Weighing and Measuring Devices (1970) pp. 141-144 (see Suppl.. p. 91).

17 This statistic was obtained from the National Tank Truck Carriers, Inc., 1616 P St. NW.,

Washington, D.C. 20036.

18 In some cases tank compartments are calibrated individually.
COMMERCIAL WEIGHTS AND MEASURES

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ADAPTATION OF WEIGHING AND MEASURING DEVICES 35

COMMENTS

Comment / — Some of the devices appearing in the statistical analysis

chart are also used in noncommercial activities, e.g., production line filling

operations, quality control operations, etc. This is especially true of package

checking, over and under, and bench scales. Thus, not all of the devices

within any category will have to be adapted under a metrication program,

since they will not fall within the definition of a commercial weighing and

measuring device. Therefore, the total cost for field adaptation in the commercial weights and measures area should be less than indicated.

Comment 2 — The magnitude of the costs appearing in the statistical analysis chart are seen with a better perspective when compared with the output

of the various industries concerned. Only the scale (SIC Code 3576) and

meter (SIC Code 3586) industries will be analyzed since, as already noted,

the field adaptation cost for fabric measuring devices is their replacement

cost. Field adaptation costs will be compared via percentages using the aggregate value of shipments for these industries over a 10-year period, 1958

through 1967. Data were obtained from 1967 Census of Manufactures preliminary reports as published by the Bureau of the Census, U.S. Department

of Commerce.

SIC code

Aggregate value

of shipments

(10- year period)

Total field adaptation

costs Costs as a percentageof the aggregate value

of shipments

3576

3586

$967.0 million $1,572.4 million$225.1 million $96.6 million

23.3

6.1

Comment 3 — Initial Costs. Initial or "one time" costs for device manufacturers would include but would not be limited to:

(1) Purchasing metric weights and measures for testing purposes. Many

companies have metric standards but these are usually available

only in limited quantities for plant use. Also, those companies with

* Statistics have been taken from the responses to the questionnaires unless otherwise indicated.

I Office of Weights and Measures estimate.

- Some scales sell for $50,000.

:t American Petroleum Institute estimate.

J Withheld to avoid disclosing figures for an individual company.

5 Not available.

'• Not applicable.

; Total replacement cost. "Not available; there were 133,100 gasoline dispensing systems produced in 1967. This figure was obtained from the 1967 Census of Manufactures Preliminary Report on Measuring and Dispensing Pumps, SIC Code 3586, published by

the Bureau of the Census. U.S. Department of Commerce.

• A conservative estimate. One manufacturer felt that the total number of devices in use exceeded 500,000. However,

most of the devices in this classification are used for industrial purposes (i.e., not considered commercial devices). A conservative estimate was used in order to keep metrication costs realistic (see Comment I).

111 One major manufacturer of railroad track and motor truck scales felt that adaptation costs, per device, would be $4-5

thousand and $2-2.5 thousand, respectively.

II One manufacturer felt that adaptation costs, per device, for large capacity built-in-floor scales would be $2,500.

12 Approx. averages.
36 COMMERCIAL WEIGHTS AND MEASURES

service agencies would incur initial expenses in the purchase of test weights and measures for their service personnel.

(2) Designing the necessary parts (e.g., new charts, beams, and poises

for scales, and gears for meters) for device adaptation in the field or

in the plant.

(3) Preparing the plant for producing the necessary parts above and

making any needed production line or associated changes in order to

be able to manufacture metric recording and/or indicating devices.

(4) Training needed to familiarize company personnel with the metric

system.

Not enough data were received from device manufacturers so that definite

initial costs could be determined. However, the following general comments may be made:

(a) The scale and balance industry: One industry representative has

estimated that the overall initial costs for the scale industry

would be between $3 and $5 million. Evidence indicates that the

larger companies will account for most of these costs. In fact,

one large scale company has estimated its "one time" cost at over $500,000, and another large concern estimated such a cost

for its service department alone to be about $200,000 (see app.

1-4, p. 54).

(b) The meter industry: No data were received from this industry

concerning initial costs. Apparently, the impacts of such costs

are not substantial, as most companies indicate that metrication

difficulties at the plant level would be slight and it is at the plant

level where the majority of the initial costs would probably

occur.

(c) Fabric measuring device industry: No data were received on initial costs. However, since a device has been developed which

can be readily adapted to indicate in metric units, it would be

reasonable to assume that initial costs will not be large.

Comment 4 — Per Unit Field Adaptation Costs for Scales. Some scale

companies are of the "opinion" that a required field adaptation program

for commercial weighing devices, using a fixed period of time of reasonable

length, could result in lower per unit field adaptation costs than if a voluntary-evolutionary approach were used. Such an "opinion" appears to be

reasonable.

A required adaptation program, as previously described in the introduction, would probably result in a fixed demand situation; i.e., within

reason, the number of scales to be adapted would be known. Given the eco- nomic conditions of a fixed demand situation, it may be possible for companies to utilize their resources in a more efficient manner, thus making

possible lower unit costs. Under a voluntary-evolutionary approach it is doubtful that such a known demand situation would exist since scale users would be free to decide when they wanted their devices adapted. As a

result, the number of scales to be adapted in any given time period would
ADAPTATION OF WEIGHING AND MEASURING DEVICES 37

be in doubt. Under these uncertain conditions, it is doubtful whether

efficient use of resources could be achieved. (Note: It seems reasonable

to assume that this same reasoning could also be applied to other manufacturers of weighing and measuring devices.)

The information for this comment was obtained from a meeting between

representatives of the Scale Manufacturers Association and the National

Bureau of Standards to consider the impacts of metrication as they would

affect the scale industry. This meeting was held on May 28, 1971 at the

NBS site in Gaithersburg, Maryland.

Comment 5 -Postal Scales (SIC Code 3576051. Postal scales (i.e.,

scales used primarily to determine postal charges) are not within the definition of commercial devices as used in this report. In brief, this definition excludes devices that do not come under the testing authority of state

and local weights and measures officials. The major reasons why these

scales are considered non-commercial are as follows:

(1) Scales used by the U.S. Postal Service, even though used to sell a

service to the public, are Federal property and, consequently, it is

felt that state and local governments have no authority over them.

(See note.)

(2) Scales used, for example, by private concerns do not, as a rule,

render a service to the public for a price, but instead are used

primarily for internal operations. Therefore, these devices do not

come within the definition of a commercial weighing and measuring

device as found in NBS Handbook 44. (See part II, and suppl.)

Many different types of postal scales exist. These vary from the very inexpensive office types, e.g., small desk spring scales selling for under $10 each

to fan-type computing scales costing several hundred dollars a piece. Data

on postal scale categories, and the number of scales per category now in use, are not available in any detailed form; however, from data appearing in the

1963 and 1967 Census of Manufactures, Bureau of the Census, U.S. Department of Commerce, the following table was prepared:

Year

Number of

postal scales produced

(SIC code

3576051)

(1,000)

Value of

shipments

(SIC code

3576051)

(in millions)

Total value of

shipments for scales and

balances only

(SIC code 3576)

(in millions)

Average shipment value for postal scales (rounded to the nearest dollar)

Value of shipments of postal scales as a percentage of

the total value

of shipments

(percentage)

1958 126 2.0 71 16 2.8 1963 326 2.9 90 9 3.2 1967 n.a. 3.2 131 n.a. 2.4

n.a. = not available. From the above table the following two inferences may reasonably be

drawn:

(1) For the 10-year period 1958-1967, approximately 2.5-3.0 million

postal scales (of all types) were produced, and the aggregate value of
38 COMMERCIAL WEIGHTS AND MEASURES

shipments was about $27 million. This represented about 2.8 percent of the total aggregate value of shipments, (i.e., $967.0 million),

for the entire scale and balance industry for that period of time.

(2) The low average value (col. 5) apparently indicates that the vast

majority of the postal scales produced are of the inexpensive type.

From information received from various scale companies, it appears that

field adaptation for the inexpensive devices is not very economical; that is,

new devices could be purchased for what it would cost to adapt the old ones. Of course, for the expensive scales (i.e., fan computing type) it would be

more economical to adapt; adaptation for these devices will require the

same, or similar, types of changes as mentioned early in the report for commercial scales, e.g., metric charts, beams, poises, etc. (See app. 1-2, p. 45 for

more details.)

Finally, no attempt has been made to determine the total metrication

(replacement and/or adaptation) cost for postal scales. Such a determination

would be questionable, since as already noted, sound data on the types and

number of devices in use are not available. However, it is highly unlikely

that such costs would exceed the total replacement cost for these scales. At

the present time, such a replacement cost is estimated to be $30 million. This

estimate excludes the replacement cost of devices older than ten years, as these scales are probably obsolete and should be replaced anyway, and,

therefore, their replacement cost should not be considered a cost of

metrication.

Note: The reorganization of the Post Office Department into the U.S.

Postal Service, a type of public corporation, (P.L. 91-375, 84 Stat. 719), may

have ended that agency's immunity to state and local weights and measures

law enforcement. A recent court case in Great Britain will illustrate the point

as Britain's post office is now such a corporation. On May 14, 1970 in the

Poole Magistrates' Court a plea of guilty was entered by the post office to

the charge that one of its scales was incorrect. (From the Monthly Review,

Nov. 1970, published by the Institute of Weights and Measures Administration, Great Britain, Vol. 78, No. 11, p. 298, Title: "Post Office- Unjust

Scale.") Apparently, in Great Britain, the post office is now being treated, at

least in some respects, as if it were a private corporation. Whether or not the

U.S. Postal Service can be so treated (at least with respect to device testing)

is difficult to say at this time, and a court test may well be required to

establish whether or not that agency is subject to state and local weights and

measures laws.

Comment 6 — Cost of Adapting Scales for the U.S. Postal Service.

Because the U.S. Postal Service (USPS) is probably the largest single user

of scales in the country, it was thought desirable to determine the approximate cost of scale metrication upon that agency alone. This cost data has

been segregated from the other statistical data, because postal scales, as al- ready noted in Comment 4, are not considered commercial devices.

Even though most of the Postal Services' scales are of the postal type, SIC

Code 3576051, it should be pointed out that some devices used by the USPS
ADAPTATION OF WEIGHING AND MEASURING DEVICES 39

may not fall within this SIC classification, for example, 10 ton capacity vehicle scales.

The chart below was prepared from data submitted to the National Bureau

of Standards by the U.S. Postal Service and various scale companies. It should be understood that metrication unit costs are approximate averages

only.

Type Number

in use

Type of

metrication

adaptation/

replacement

Metrication

cost/unit

Total cost

for each type

(col. 2 times

col. 4)

Beam scales which have capacities between 100-1,250 lbs. Drum type computing and auto- matic meter scales. Fan type computing scales 10 ton capacity vehicle scales 16 oz beam scales 500 lb parcel post dial scales

Totals

4,720

3,320

36,000

50

205,000

220

Adaptation

Adaptation

Adaptation

Adaptation

Replacement

Adaptation

300.00

150.00

75.00

500.00

1 35.00

100.00

$1,416,000

498,000

2,700,000

25,000

7,175,000

22,000

249,310 1 1 ,836,000

1 Retail price. Through contract bidding, this unit price may be significantly reduced.

Finally, since many postal scales will be replaced due to obsolescence,

and so forth, new metric ones could be purchased in their place. Since the

cost of replacement is really not a metrication cost and since the number of

scales to be replaced may be as high as 25 percent of the total number

(mostly small capacity scales which have a short life), the total metrication

cost estimate is probably higher than should be expected. Note: It is estimated that at least 5 years will be required in order to complete postal scale

metrication.
Appendix 1-1

GENERAL STATISTICS

INTRODUCTION

The statistics for this appendix (as well as for 1-7) were based on a 75 percent return on questionnaires as sent to twenty (20) manufacturers of

weighing and measuring devices chosen by a judgment sampling process. 19 The questionnaires for each of the three industries surveyed (scale, meter,

and fabric measuring) were not perfectly identical since certain technical in- formation needed from each of these industries would obviously vary. However, the format of the questionnaires was basically the same, and certain

general information questions (some results of which appear in this appendix) were the same. Finally, the comments section of this appendix also in- corporates information obtained from interviews with various industry and

trade association personnel.

It has been estimated that scale (SIC Code 3576) and meter (SIC Code

3586) manufacturers, responding to the industry questionnaires, represented

approximately 50 percent of the yearly value of shipments for each of these

industries.

STATISTICS

Number of service personnel:

1. Scale industry 2,955

2. Meter industry 2,370

Total 5,325

Estimates of the increase in service personnel that would be needed if device adaptation were

required.2 "

1. Scale industry 33.3%

2. Meter industry 54.0%

Benefits to metrication:

Percentage OpiniOH of responses Yes 73.4

No 13.3 Do not know 13.3

Total 100

Attitudes toward metrication:

Opinion

Strongly for 27

Mildly for 40

Neutral 27

Mildly against 6

19 Nine (9)s scale and balance companies, ten (10) meter manufacturers (two of these companies merged), and one (1 ) fabric measuring device manufacturer. See also 1-1 for the organizations who helped prepare the judgment samples.

20 Sixty-three percent of the scale and 50 percent of the meter companies indicated that they

would have to increase service personnel due to a metric adaptation program.

40
APPENDIX 1-1 41

Strongly against 0

No opinion 0

Total 100

Courses of action to be taken in the event that the United States should decide to increase the use of the metric system:

Opinion

No national program of metrication 0

A coordinated national program based on voluntary metrication 33

A mandatory program based on legislation 67

Total 100

COMMENTS

From respondent questionnaires and from interviews with industry

representatives (company and trade association personnel) the following

areas of concern became apparent:

1 . The problems of retraining or educating plant and field personnel to un- derstand the metric system. Note: Considering the fact that thousands of

people would have to be involved in metric education programs, it is not difficult to see that man-hours lost from regular work for such new training,

computed in dollars and cents, could be substantial.

2. The problems of planning and coordinating any metrication program.

Before any metrication program could begin, careful planning would have to

take place. For adaptation, especially field adaptation, to be accomplished

efficiently, all of the elements of the weights and measures system (industry,

service agencies, and enforcement jurisdictions) would have to work

smoothly together. For example, (1) A scheduling plan would have to be

established so that devices could be adapted conveniently. Such a schedule

would probably have to be approved by device manufacturers and owners

and service agencies or departments. Weights and measures jurisdictions

would, no doubt, also have to approve such a schedule, since adapted commercial devices would have to be retested for accuracy and resealed for

commercial use. (2) The necessary infra structure would have to be in existence before adaptation could begin. This would include (this is not meant

to be all-inclusive); (a) new test weights and measures for service agencies

and enforcement jurisdictions; (b) the proper metric education programs; (c)

revision of tolerance tables and similar publications such as NBS Handbook

44; and (d) the publication of instructions describing how to adapt particular devices. (3) Manufacturers would need time to prepare (design and produce the necessary parts for adaptation; and (4) Parts inventories for

service agencies would have to be increased at the proper time to include

the necessary materials for adaptation.

3. The feeling that chaos might result in the adaptation of devices. Such

confusion would almost certainly lead to higher metrication costs.

4. The cost of buying new metric testing equipment for plant and service

personnel. It should be understood that such testing equipment is expensive.

For example, one company sells a metric test weight kit ranging from 20 kg
42 COMMERCIAL WEIGHTS AND MEASURES

to 1 g for $1375. In fact, one scale company estimated new metric testing

equipment for field personnel only, would require an investment of at least

$200,000. It would, therefore, be reasonable to project that the aggregate

costs for metric field equipment for scale companies alone would be over $ 1 million. Whether or not similar costs would exist for meter companies is unknown since no meter manufacturer advanced cost figures for this area. However, it is felt that such costs for these companies should not be anywhere

near those for scale manufacturers. The reason being that meter servicemen

do not need a lot of testing equipment in their work, maybe only one or two

provers. In the case of service agencies that use large capacity provers, these

may be adapted to indicate in metric units with very little cost. 21

5. Independent service agencies, usually under contract to scale or meter

companies would, of course, face the same cost problems in purchasing

metric testing equipment as company operated ones. However, for the most

part, they would have less monetary resources to purchase such equipment

and thus metrication may cause them severe economic hardships. Also,

given the reasons as mentioned before, the scale repair agencies would, no

doubt, face far higher costs than the meter ones.

21 See II., pp. 66-67.
Appendix 1-2

SCALE MANUFACTURERS ASSOCIATION

PRESENTATION OF VIEWS ON WEIGHING

SCALE CONVERSIONS TO METRIC SYSTEM

(September 1 5, 1 970)

GENERAL INFORMATION

1 . This presentation is prepared by the Scale Manufacturers Association,

Inc., 1 Thomas Circle, Washington, D.C. 20005.

2. Arthur Sanders, Executive Secretary of the Association is responsible

for the contents of the presentation. His address is the same as that shown

for the Association in item 1.

3. Arthur Sanders, Executive Secretary of the Association (as named in

item 2) will appear at the National Conference for the oral presentation on

weighing scales.

4. The Scale Manufacturers Association, Inc., is a nonprofit voluntary

membership Association in which all U.S. manufacturers are entitled to participate. It is composed of some 3 1 scale manufacturers who are estimated

to produce about 75 to 80 percent of the total U.S. production of weighing

scales.

The general objective of the Association is to provide the means for

cooperative endeavor in the interest of its members, the scale industry as a whole, the owners and users of scales, and the general public which is entitled to accurate and dependable weights.

A copy of the 1970 Information Handbook of the Association is enclosed

listing members, directors, officers, the types of scales produced by each

member as well as information about the Association and the industry (not

included in this appendix).

5. The entire membership of the Association was consulted through a questionnaire seeking information and views to serve as the basis of this

presentation. In addition, a meeting was held of the Association's Metric

Study Committee and the officers of the Association.

THE BASIS OF THIS PRESENTATION

The study by the scale association and this presentation are almost wholly

based on information and views as to U.S. conversion of weighing scales to

indicate and record weights in metric units. It was assumed that the invitation for the scale association to make written and oral presentations at the

National Conference was to obtain information and views of scale manufacturers on the conversion of new production of scales and existing scales to

reflect weight indications and recordings in metric units rather than the

customary system generally used in the U.S.

For the most part U.S. scale manufacturers produce parts and components and design scales in the customary system of linear measurement.

43
44 COMMERCIAL WEIGHTS AND MEASURES

We feel that our situation in this regard is similar to other manufacturers of

metal products who are better qualified to advise about the problems and opportunities in this area. The scale industry of the U.S. with long experience in producing and distributing scales with U.S. customary and metric weight indication and recor- dations strongly favors U.S. conversion to the metric system of weights and

measurement for several reasons: The metric system based on decimal

mathematics is very much simpler than the U.S. customary system of

pounds, ounces and common fractions of ounces such as 1 /8th or 1/1 6th

ounce; scales can be much more efficient and effective in design in the

decimal metric system than in the pound, ounce and common fraction

system; weights and measures can be much better understood and computed

for comparisons with the metric-decimal system than with the pound-ouncecommon fraction system presently in use; in the long run U.S. conversion to

the metric system will further influence a universal system of weights and

measures and will increase U.S. exports of weighing and measuring devices.

Even with its manifold problems of converting to the metric system the U.S.

scale industry still feels it is best for the nation.

For the greatest part weighing scales in domestic use in the U.S. and our

scale production indicate and record in the customary system of weight.

There are outstanding exceptions, of course, such as the pharmaceutical and

chemical industries, the research and scientific industries, educational and

industrial laboratories, etc. However, most replies to our questionnaire to

members indicated that metric domestic sales of U.S. made scales are only

0 to 4 percent of the total.

There are many millions of scales in use in the U.S. and several millions are being produced each year, practically all of which are in the customary

system of weight indication.

Thus, we have two big problems with respect to conversion of weighing

scales to the metric system of indication and recordation, namely, conversion of scale design for new production and conversion of the many millions

of scales, now in use, to metric indications. These will be covered separately

in this report.

DESIGN AND PLANT CONVERSION FOR

NEW PRODUCTION

1. A great many models of scales produced in the U.S. are produced with

weight indicators and recorders which reflect weight in the metric system.

These are for export to metric usage nations and for sale to U.S. industries or companies which utilize the simpler metric system. This is not to say that

all scale producing companies and all models of scales are produced to the

metric system. The scale industry of the U.S. produces scales to meet the

demands of its customers. Many models of scales used in the U.S. in our customary system of weights are not produced in metric measurement and

would require some redesign for metric production.

Also, numerous small manufacturers and those who do not export to metric nations, would be rather severely affected by cost of conversion to metric
APPENDIX 1-2 45

indications. We have no cost figures on the design and plant conversions of

such models but must predict that it will be substantial, considering the size

of the industry.

Weighing scales of course, will weigh the mass applied to the weighing

platform, in the measurement system used in the indicator system of the

scale. However, it is not always as simple as applying a new weight indicating chart, weight indicator beam or recording device.

For example, our attention has been called to the fact that it may be necessary in converting new scale production to metric indicating units to redesign

the weighing elements such as levers, springs and load cells for the appropriate capacities and calibration. Also, computing scales for retail food

and postal computations may require some costly redesign. Manually

operated retail food computing scales are presently produced for export,

with metric weight charts but are in foreign currency and not in U.S. dollars

and cents; automatic prepackage price computing and labeling scales (there are possibly 30,000 in use in food supermarkets today) are designed to

record weight in decimal hundredths of a pound to two decimals such as 2.24

pound. The smallest metric unit which could be recorded readily would be

0.01 kg (10 g). This is over twice the present smallest indication which is 0.01 lb (4.54 g). This may not be acceptable to weights and measures officials who promulgate specifications and tolerances for commercially used

scales.

With respect to postal computing scales (there are several millions in use — the U.S. Post Office Department is undoubtedly the owner of the lar- gest number of scales in the world) the design of the indicators and weighing

elements for capacities and calibrations to meet the over-under breaking

points for postal charges, will have to depend on the postal charges set under

the metric system by Congress or the P.O. Department. The charges set for

postage will very much affect the design requirements for new postal scales.

2. In addition to the cost of design conversion for new scale production

there is the cost of such matters as reeducation of plant and service personnel in the metric system, the redesign and republication of all catalogs to

reflect both metric and customary weights and most important, the dual in- ventories of parts and new scales required during the changeover periods.

CONVERSION TO METRIC OF SCALES IN USE

1 . Probably the most serious problem of U.S. conversion of weights to the

metric system is the adaptation of existing scales to metric indications and

recordations. This is the situation because there are millions of scales in use today which may need to be converted to metric under a planned-arrangement of U.S. conversion. As long as these "in use" scales continue to reflect

the customary system of indications they will continue to be used in this

manner, even though inexpensive conversion charts are made available. In

this connection most scale manufacturers have indicated in our survey that

conversion charts (customary to metric) can be prepared.

2. All scale manufacturers answering our survey have indicated that if U.S. conversion to metric weights is to be successfully and economically ac-
46 COMMERCIAL WEIGHTS AND MEASURES

complished it should be done on a mandatory planned schedule and not on

the present practice of allowing each sector of the economy to increase its metric usage if and when it sees fit to do so. There must be planned mandatory conversion or we will find that another hundred years will pass with little conversion (as in the past century during which metric has been legal). It might also be pointed out that Japan is now successfully converting to the

metric system after pressure from the U.S. Army of Occupation, but that for

several decades prior thereto little success had been achieved under a law

which did not establish a planned schedule of mandatory conversion.

3. Planned scheduling of conversion to metric weight indication must

mean not only conversion of new scale design, production and distribution,

but also conversion of existing scales to metric indication.

As has been indicated heretofore, there are quite a few millions of scales

in use now that would need to be converted. For example, it has been estimated by responsible scale manufacturers that there are two to three million

mail scales in use, all of which will need to be converted to metric usage

when and if the government changes the mail rates to metric breakpoints instead of the present customary system breakpoints.

Excluding bathroom and other household scales (which may not be practical to convert to metric from an economic and practical standpoint), our sur- vey indicates there may be some five million scales which could be converted to metric under a planned schedule, over a period of years. Most but

not all, of these scales could be converted to reflect metric indications, at a

price, provided the parts and qualified personnel are available with the un- derstanding that the conversions can be accomplished on a planned

schedule, meaning a stretch-out for the conversions. It is obvious that all conversions of a particular type scale in a particular area cannot be converted in the last month before the final deadline.

4. In the United States there are several thousand field scale ser- vicemen—possibly 4,000. Some of these servicemen are fully qualified to

convert many models of scales to metric indications, but not all. Many have

never had experience in such work and almost all would need rather extensive training for converting the very wide variety of scales used in the U.S.

(there are several thousand models of scales in use in the U.S.).

In addition, it must be remembered that the several thousand scale ser- vicemen presently operating in the nation even if qualified to convert most

models to metric, are presumably busy at present with servicing scales and

thus could not devote full time to a new program of converting to metric.

Therefore, it becomes significant that there be a planned schedule of conversion to metric weights if the program is to be successful.

In estimating the number of scales in use above, at five million or more, we

purposely excluded bathroom and household scales, of which there may be

25 to 40 million in existence in the U.S., all with customary weight indications. We have excluded these scales from the discussion of converting existing scales to the metric system for the reason that the conversion of such

a scale may be more costly than the purchase of a new scale produced with

metric indications. In addition, the availability of qualified personnel to convert these scales to metric indications is almost nil. And, the question can be
APPENDIX 1-2 47

asked, how many owners of these inexpensive scales would be willing to pay

for conversion? There is also the matter of the ownership of most of these

scales by mature citizens who are steeped in the U.S. customary measure- ment system, who may be willing to continue to use the scale for their time,

and until they are required to use metric indications.

If there is no planned schedule for converting scales in use to metric they

simply will not be converted. The public and business will not demand use of

the metric system in commercial transactions and a competitor who converts

before his competition may be at a serious disadvantage.

5. In our questionnaire to members we asked for estimates as to the years

needed for conversion of existing scales to the metric system. Most companies estimated that existing scales could be converted in 5 years, but some

important answers indicated that as much as 10 years would be needed on a planned schedule.

We also asked for estimates of the percentages of time of presently employed service personnel which would be needed to convert scales now in use over a reasonable planned schedule. The answers for the most part were

20 and 25 percent.

An important point about conversion of existing commercial scales is whether, after conversion, such scales are required to meet new scale accu- racy tolerances or used scale tolerances. New scale tolerances are called

"acceptance''' tolerances and are in the general range of l/20th of 1 percent

of the test load applied. Used scale tolerances are called "maintenance"

tolerances and are double the acceptance tolerances or about l/10th of 1 percent. The Specifications and Tolerances for commercial scales followed

in all states stipulate that "acceptance" or new scale tolerances shall be applied on official tests for the first time within 30 days after major reconditioning or overhaul.

A conversion of a commercial scale to metric indication would not be a "major reconditioning" or overhaul, but if weights and measures officials of

the states, counties, and cities require such converted scales to meet "acceptance" tolerances considerable time and parts must be used by ser- vicemen in overhauling the scale. Probably two to three times as many manhours will be needed to bring the scale to acceptable tolerance as would be

needed to meet the maintenance tolerance. Actually, if acceptance

tolerances are required on the official tests after conversion to the metric

system probably 75 to 80 percent of commercial scales would require a full overhaul. The additional service manpower would be staggering.

6. The cost of converting scales in use to the metric system was one of the

questions asked in our questionnaire. The companies replied only with estimates for the types of scales they produce and thus an overall estimate for all scales is not possible. Also, as indicated previously many inexpensive scales

(such as bathroom and household scales of which there are some 30 to 40

million in use) will not be converted because the conversion costs would

make it uneconomical to convert and as a practical matter the mature owner

would as soon have the device continue to reflect the customary system. In addition, there is a large percentage of scales in use which are old and in poor
48 COMMERCIAL WEIGHTS AND MEASURES

condition or which are obsolete and thus can or should be replaced with new

and up-to-date scales rather than be converted at rather high cost.

However, the cost of converting scales in use can still come to rather staggering figures. For example, the two most knowledgeable companies who

produce retail food computing scales estimate that there are several hundred

thousand in use in the United States, possibly 500,000 or more. To convert

the manually operated and manually read price computing scales (of which

there are several hundred thousands in use) might cost as much as $75 million. The more complicated automatic weighing, pricing and label printing

computation scale which is the heart of the production line operation of the

modern supermarket (there are about 30,000 units in use) would cost more

per unit to convert and the conversion cost has been estimated at $30 to $35

million.

In another example it has been estimated that there may be as many as 700,000 bench and portable scales in use in the U.S. and that the cost of converting all these scales may be over $100 million. Railroad track and motor

truck scales, with some 50,000 to 70,000 in use, may cost $50 to $70 million

to convert.

Thus, we cannot make an overall estimate of the total cost of converting

existing scales to metric system of indicating and recording weight but from

the estimates of knowledgeable people in the scale industry, the cost may

total $200 million or more, stretched out over the planned schedule of 5 to

10 years.

7. Test Weights and Unit Weights — In our study of the matter of U.S.

conversion to the metric system of weights our attention has been called to

the conversion of static test weights used in testing scales officially for accu- racy by federal, state, and local agencies, by field service agencies of the

scale industry and ""unit weights" which are a part of the scale itself for ex- tending upward the weighing capacity of large capacity scales. All of these

test weights and unit weights would have to be replaced when tests are made

in the metric system or when the scales utilizing unit weights are converted

to metric. During a conversion period test weights of both the metric system

and the customary system would be needed by testing officials and by field

service repair agencies — as some scales may have been converted and

others may not.

It has been estimated that there are at present several million test weights

in use by weights and measures officials, factories and repair agencies in the

nation. It has been estimated also that from 3 to 5 years would be required to

produce metric weights for the same use. In addition, since these weights

range from 1/16 ounce or less, to 1,000 pounds or more, the transportation

of duplicate sets of weights (metric and customary) will constitute a problem

for weights and measures officials and service agencies, unless a system of

conversion by supplementary weights between the two systems can be

developed.

Unit weights are frequently used to extend the capacity to higher capacities, of a scale for which larger capacities are needed than is shown on the

beam or dial indicator. In such a situation, as many as ten drop weights of

specified capacity — say 1,000 pounds or 10,000 pounds each — may be ap-
APPENDIX 1-2 49

plied to the mechanism, with an equivalent increase in the capacity of the

weight indicator and recorder. Also for load cell weighers special capacity

extension arrangements can be applied to extend the capacity of the dial. In

these situations, to convert these scales to metric, special arrangements

would be needed — either new metric drop weights or converted load cell

capacity extension arrangements. Whether or not special conversion ar- rangements can be made to continue to use the old drop weights and load cell

capacity is questionable.

8. Duplicate Inventories — During the conversion period of 10 years or so

scale companies expect that there will be the quite costly necessity of maintaining duplicate inventories of new scales and replacement parts in both

metric and customary indications. There seems to be no way to avoid this

situation as scales of both systems will be in demand. The serious impact can

be lessened, apparently, only by a short period of planned, scheduled, mandatory conversion.

In this period the scale companies would also have to maintain duplicate

engineering drawings for such large capacity scales as railroad track, motor

truck, built-in, and dormant scales.

9. Effect on Exports — Most of the companies responding to the questionnaire felt that U.S. conversion to metric would have no appreciable effect on

the volume of U.S. scale exports. However, about one-third of the respondents thought our conversion to metric would result in an increase in U.S.

scale exports. The U.S. is the world's second largest scale exporter — second

only to Germany. But less than 10 percent of U.S. scale production is ex- ported.

CONCLUSIONS

The scale industry is in favor of U.S. conversion from customary to metric

weights. However, there will be some rather serious problems including

design and production of some models of scales and the conversion of existing scales with the great use of qualified servicemen which would be necessary. Also, there will be the costly replacement of test and unit weights and

the use of test weights in both customary and metric during the conversion

period.

There will be a costly period of duplicate inventories of new scales and

parts, during the conversion period, even under a planned schedule of mandatory conversion.

If mandatory use of the metric system is not required for metric weights it

is doubtful that there will be a significant trend toward metric weights. History in this and other nations has proven this to be the case. While there may be some modest increase in U.S. scale exports after conversion to metric it is not expected that this will be substantial.
Appendix 1-3

NATIONAL SCALE MEN'S ASSOCIATION PRESENTATION

OF VIEWS ON CONVERSION TO THE METRIC SYSTEM 22

(October 30, 1 970)

The National Scale Men's Association (NSMA) 214Vi South Washington Street, Naperville, Illinois 60540, appreciates this opportunity to

express the views of its members on the issues before the U.S. Metric

Study.

The National Scale Men's Association is a nonprofit voluntary membership association composed of more than a thousand (1000) persons who are organized into local divisions. Membership is open to any individual whose

activities relate to weighing devices or weighing practices. Consequently,

the Association houses members of widely divergent backgrounds and

responsibilities. For example, there are servicemen, engineers, and state

and local weights and measures officials.

The general objectives of NSMA are:

( 1 ) to promote the knowledge and application of weighing devices,

(2) to foster legislation that will improve weighing practices, and

(3) to set up performance standards in the servicing, selling, and use of

weighing equipment.

DATA COLLECTION PROCEDURE

The information for this report was obtained from a questionnaire as circulated among the membership. The questionnaire, because of the diverse

backgrounds of the members, had to cover many facets of metrication as it affects, or would affect, their (the members') responsibilities. As a result,

many respondents had neither the knowledge nor interest to answer all of the

questions submitted; thus, most members answered only those questions

which were of importance to them.

SUMMARIZATION OF QUESTIONNAIRE RESULTS

Present or Anticipated Use of the Metric System, Assuming

Current Conditions Continue, e.g., No Formal Metrication

Program

1. Eighty percent of the respondents said they had no intention at present

to stock additional metric units.

2. Sixty-four percent of the respondents said they had no plans to expand

their service facilities to handle increased metric business.

3. Seventy-nine percent said their businesses had not experienced an in- crease in market demand for either new metric scales or for the servicing of

metric devices. Such increased demand, when it occurred, was attributed

22 This report was prepared by C. G. Gehringer, Chairman, Technical and Legislative Committee under authority granted by the Association's Board of Directors.

50
APPENDIX 1-3 51

specifically to the expanded use of the metric system in the paint, chemical,

and ink industries, and generally to the increased use of the metric system by

companies who are ( 1 ) expanding their export markets and/or (2) using more

metric units in their laboratories.

4. On the whole, companies have encountered very few difficulties in

using the metric system. The difficulties '"which did arise were centered

around changing the recording elements of devices to print out in metric

units. For example, weighing systems which use computer printouts encountered some interfacing problems between the weighing device and the computer-printer. However, our members report that the personnel of scale users have adjusted to the unfamiliar metric system rather well and, as a

result, few problems have arisen in the use of metric units.

Attitudes Concerning and Problems Arising from Metrication

1 . Eighty-five percent of the respondents indicated their preference for a

fixed time period of 10 years for converting to the metric system of measurement. A like number favored a planned conversion schedule as opposed to

one allowing each sector of the economy to increase its metric usage if and

when it sees fit to do so.

2. The estimated time required to convert existing scales varied considerably with 54 percent estimating 10 years, 35 percent 5 years, and 10

percent 3 years.

3. Respondents were almost equally divided as to whether or not converted scales should be required to meet maintenance or acceptance

tolerances. Fifty-eight percent favored maintenance tolerances and 42 percent acceptance tolerances.

4. Even if domestic demand for more metric scales increased, 53 percent

of the respondents felt there would be no significant changes in their operations unless there was a Federal program to encourage metrication.

5. Twenty-two percent felt if the conversion period was very long, thus

reducing the impacts of metrication in any one year, there would be very few

diverse effects on their operations.

6. Seven percent felt metrication would result in quite a bit of confusion.

7. Also, 7 percent felt that:

(a) double sets of standards would be required for all servicemen and

weights and measures officials;

(b) the demand for scales indicating in both metric and U.S. customary

units would increase;

(c) the use of two measurement systems simultaneously would result in

enforcement and servicing problems.

8. Problems that might arise due to the metric conversion of scales were

commented on as follows:

(a) Forty-four percent felt there would be additional problems in training personnel;

(b) Sixty-four percent felt increased inventory would result;

(c) Forty percent felt there would be problems with existing laws.
52 COMMERCIAL WEIGHTS AND MEASURES

(d) Other areas where problems might arise were freight computation

schedules, tariffs, etc.

9. In order to convert to the metric system, respondents felt they would

have to (in order of importance):

(a) establish metric education programs;

(b) make provisions for using dual measurements;

(c) plan for converting or replacing equipment now in use; and

(d) know when metric equipment, tools, and parts would be readily

available.

Costs of Converting to the Metric System

Companies' costs in converting to the metric system, including weights,

tools, dyes, fixtures, equipment and pit drawings, gauges, linear measuring

devices, stock of parts for two systems, training of personnel, instruments,

etc., were estimated as follows:

Percentage Cost range: ofcompanies

$5,000-$ 10,000 37Vi

$10,000-$25,000 12'/i $25,000-$50,000 8.3 $50,000-$ 100,000 8.3 $100,000-$200,000 8.3 $200,000-$300,000 4.2 Over $300,000 20.8

Miscellaneous Opinions and Data

1 . Respondents gave the following areas, in order of importance, in which

they feel the Federal Government should act in order to relieve the impacts

of metrication coming from both domestic and foreign sources:

a. The Government should authorize metric conversion as soon as

possible.

b. The Government should provide:

(1) the necessary educational material to all, (Note: Some

respondents felt that the Federal Government should conduct

seminars on the metric system throughout the country for

various industries and groups.)

(2) interim double standard equipment, and

(3) a detailed metric conversion program. Such a planned program should (a) take into account the ability of industries to

convert and (b) provide that industries in similar lines of busi- ness convert at the same time.

2. Respondents felt that the U.S. Metric Study staff and the Secretary of

Commerce should consider the following areas as they examine the metric

issue:

a. The cost of metric conversion and the cost of delaying metrication.

b. The U.S. position in international trade if no change is made.
APPENDIX 1-3 53

c. The problem of education and publicity on the metric system.

d. The time required to educate people in the metric system.

e. The possibility of arranging loans to small businesses to assist them

in changing to the metric system.

f. The capability of the scale industry to make a changeover.

3. The estimated number of new metric test weights that would be

required showed 5,800 units for weights and measures enforcement jurisdictions and 15,600 units for service agencies.

4. Members estimated that 94. 1 , 5.2, and 7 percent of the scales now used

by industry indicate or record in the customary system (avdp. weight), the

metric system, or other measurement systems, respectively.

CONCLUSIONS

No attempt will be made to draw conclusions. The information presented

herein is a compilation of answers as received from the membership and

reflects their views on the metrication problem.
Appendix 1-4

SERVICE AGENCIES 23

(GENERAL DISCUSSION)

INTRODUCTION

This appendix will identify the major cost areas that service agencies

(either owned by device manufacturers or independent) will face due to metric adaptation of weighing and measuring devices to record and/or indicate

in metric units.24 It should be understood that the major cost areas will only

be identified, and that estimated costs herein were not developed by a

detailed cost analysis and are included only as an aid to the reader so that he

may better understand the extent of the economic impacts of metrication

upon these agencies.

Service agencies in general will face costs arising from the need: (1) to

purchase new and/or adapt present testing equipment in/to metric units; (2)

to establish education programs for their personnel to understand the metric

system (SI); and (3) to be able to adapt devices now in use where practical,

to indicate or record in metric units.

EQUIPMENT - GENERAL

The equipment used by servicemen is similar to or the same as that used

by weights and measures inspectors. Thus, the equipment problems due to

metrication faced by service agencies will be about the same as those en- countered by weights and measures jurisdictions.25 The following conditions apply to the discussions that follow: 26

1 . Service agencies will have to purchase new small metric weight kits to

be able to efficiently test small capacity devices.

2. Because of the cost involved in either replacing large mass standards or

adapting them to convenient metric units, correction weights should be used.

3. Provers, except glass, can usually be adapted by replacing the scale

plate. This can be done at a nominal cost of about $ 1 0 each.

EQUIPMENT -SCALE SERVICE AGENCIES

The cost of metrication to scale service agencies could easily be over $1

million. In fact, one scale manufacturer estimates its costs would be at least

$200,000 to re-equip its service personnel and repair shops.27 Even though

there is no accurate breakdown of the different types of test weights now

used by repairmen, the National Scale Men's Association estimates that

23 See comments section of app. 1-1

24 Costs arising from other types of metrication have not been included.

25 See II-3, p. 61.

26 For a more complete discussion of these conditions, see 11-3, p. 62. (Cost Analysis: In- troductory Comments).

27 See comments section of app. I - 1 , p. 4 1 for more details.

54
APPENDIX 1-4 55

there are over 15,000 individual weights of all types now in use.

28 However,

it is reasonable to assume that most of these weights are of the small mass

type in convenient U.S. customary units. High costs would therefore arise

due to the fact that these mass standards would become obsolete under a

metrication program and new metric standards would have to be purchased

to take their place.

EQUIPMENT -METER SERVICE AGENCIES

It does not appear that meter service agencies would face severe cost

problems in adapting their testing equipment, mostly nonglass provers, to indicate in metric units. Provers, as mentioned previously, can usually be

adapted for $10 each, irrespective of type. Even though there is no accurate

accounting for numbers or types of provers now used by repairmen, it is doubtful that there would be more than 6,000 provers (of all types); weights

and measures jurisdictions have only 5,123 nonglass provers, and it is reasonable to assume that since the total personnel forces of both the meter

service agencies and weights and measures jurisdictions are about the same,

the total number of provers used would be about the same also. As a result

of the above deduction, it is estimated that the total equipment adaptation

cost would be around $60,000.

TRAINING -SCALE AND METER REPAIRMEN

Service agency personnel will have to undergo a training program that will

enable them (1) to understand and use the metric system of measurement in

their work and (2) to be able to adapt presently used devices, where possible,

to indicate and/or record in metric units. It now appears that the cost of educational materials to be used in these training programs will be small compared to the man hours spent by repairmen in such programs. Using (1) the

training time estimated for weights and measures officials as a guide, i.e., 50

to 80 hours of instruction per man, and (2) 6,000 servicemen as a base, the

total amount of time spent on training would be between 336,000 and

480,000 hours. The total economic cost would be, using $15 per man per

hour as an average estimate of labor and overhead, between $5,040,000 and

$7,200,000.

CONCLUSION

The impacts of the above costs will, it appears, fall most heavily on independent service agencies, especially the scale ones. These agencies may not

have the financial resources to incur such costs unless they are spread over

a reasonable period of time, say 5 to 10 years.

28 See app. 1-3, p. 53.
Appendix 1-5

GLOSSARY

1. Customary System: the system of measurement units (yard, pound,

second, degree Fahrenheit, and units derived from these) most commonly

used in the United States. Often referred to as the "English system" or the

"U.S. system." Our customary system is derived from, but not identical

to, the "Imperial system"; the latter has been used in the United Kingdom

and other English-speaking countries, but is being abandoned in favor of the

metric system.

2. Metric System: the measurement system that commonly uses the meter

for length, the kilogram for mass, the second for time, the degree Celsius

(formerly "Centigrade") for temperature, and units derived from these. This

system has evolved over the years and the modernized version today is identified as the "International System of Units," which is abbreviated "SI."

3. International System of Units (SI): popularly known as the

modernized metric system, it is the coherent system of units based upon and

including the meter (length), kilogram (mass), second (time), kelvin (temperature), ampere (electric current), and candela (luminous intensity), as established by the General Conference on Weights and Measures in 1960,

under the Treaty of the Meter. A seventh base unit, the mole (for amount of

substance) is being considered as another SI base unit. The radian (plane angle) and the steradian (solid angle) are supplemental units of the system.

4. Metrication: any act tending to increase the use of the metric system

(SI), whether it be increased use of metric units or of engineering standards

that are based on such units.

5. Planned Metrication: metrication following a coordinated national plan

to bring about the increased use of the metric system in appropriate areas of

the economy and at appropriate times. The inherent aim of such a plan

would be to change a nation's measurement system and practices from

primarily customary to primarily metric.

6. Cost of Metrication: that increment of cost, monetary or otherwise,

directly attributable to metrication over and above any costs that would have

been incurred without metrication.

7. Benefits of Metrication: monetary and other advantages accruing as a

result of increased use of the metric system.

8. Measurement Standard: a device or physical phenomenon that is used

to define or determine a characteristic of a thing in terms of a unit of measurement established by authority. Examples are gage blocks, weights, thermometers, and mean solar day.

9. Engineering Standard: a practice established by authority or mutual

agreement and described in a document to assure dimensional compatibility,

quality of product, uniformity of evaluation procedure, or uniformity of en- gineering language. Examples are documents prescribing screw thread

dimensions, chemical composition and mechanical properties of steel, dress

56
APPENDIX 1-5 57

sizes, safety standards for motor vehicles, methods of test for sulphur in oil,

and codes for highway signs. Engineering standards are often designated in

terms of the level of coordination by which they were established (e.g., company standards, industry standards, national standards).
II. REPORT OF THE TASK FORCE ON

METRICATION (DECEMBER 17, 1970)

NATIONAL CONFERENCE ON WEIGHTS

AND MEASURES

The National Conference on Weights and Measures, sponsored by the

National Bureau of Standards, is an organization of approximately 500

members. The membership is comprised of state and local weights and measures officers, Federal officials, and representatives of business, industry,

and consumer organizations.

The objectives of the National Conference of Weights and Measures are:

(a) To provide a national forum for the discussion of all questions re- lated to weights and measures administration as carried on by regulatory officers of the States, Commonwealths, Territories, and Possessions of the United States, their political subdivisions, and the

District of Columbia.

(b) To develop a consensus on model weights and measures laws and

regulations, specifications and tolerances for commercially-used

weighing and measuring devices, and testing, enforcement, and administrative procedures. To further this objective, the Conference

has developed and recommends the adoption of such publications as "The Model State Law on Weights and Measures," "The Model

State Packaging and Labeling Regulation," and NBS Handbook 44,

"Specifications, Tolerances, and Other Technical Requirementsfor

Commercial Weighing and Measuring Devices."

58
REPORT OF THE TASK FORCE ON METRICATION 59

(c) To encourage and promote uniformity of requirements and methods

among weights and measures jurisdictions.

(d) To foster cooperation among weights and measures officers themselves and between them and all of the many manufacturing, industrial, business, and consumer interests affected by their official activities.

MEMBERS OF THE TASK FORCE ON METRICATION

Matt Jennings (Chairman)

Director, Division of Marketing

Department of Agriculture

Melrose Station, Box 9039

Nashville, Tennessee 37204

R. T. Williams, Director

Consumer Service Division

Texas Department of Agriculture

John Reagan Building

P.O. Drawer BB

Austin, Texas 7871

Trafford F. Brink, Director

Division of Standards

Department of Agriculture

Agriculture Building

Montpelier, Vermont 05602

Kendrick J. Simila

Assistant Chief for Weights and Measures

Dairy & Consumer Services Division

Agriculture Building

Salem, Oregon 97310

James H. Akey

City Sealer of Weights and Measures

400 Myron Street

Wausau, Wisconsin 54401

Maynard H. Becker

County Sealer of Weights and Measures

3200 North Main Street

Los Angeles, California 9003

Ronald R. Roof, Metrologist

Bureau of Standard Weights and Measures

Room B- 1 30, Highway and Safety Building

Harrisburg, Pennsylvania 17120

II— 1 . INTRODUCTION

AUTHORITY AND AREA OF INVESTIGATION

The National Bureau of Standards, under authority granted by Public Law

90-472 (82 Stat. 693), requested the National Conference on Weights and

Measures to assist it by investigating the impacts (costs, time, etc.) of metrication upon weights and measures jurisdictions. As a result, the 54th National Conference authorized the establishment of this Task Force and the

Conference's Executive Secretary formally instituted this committee on

April 20, 1970. 1

1 Report of the 54th National Conference on Weights and Measures, 1969, NBS Special

Publication 318, Resolution on Metric Study, p. 236 (see III. Suppl., p. 87).

Ibid, Motion on the Establishment of a Metric Task Force, p. 161 (see III. Suppl., p. 87). Ibid, The Role of Weights and Measures Officials in the Metric Study, A. G. McNish, pp. 108-1 1 1. App. 1 1-3, Organization of the Task Force on Metrication.
60 COMMERCIAL WEIGHTS AND MEASURES

BACKGROUND

Historical evidence indicates that evolutionary metrication in commercial

weights and measures is unlikely. The proof of this prediction rests primarily

on the fact that since 1866, when the U.S. Congress legalized the use of the

metric system for commercial transactions (15 U.S.C. 204, Supp., p. 96)

there has been almost no movement to adopt the use of metric units in the

buying, selling, or primary labeling of products. {Note. The Fair Packaging

and Labeling Act (FPLA), P.L. 89-755, precludes the exclusive voluntary use of metric units on package labels; i.e., U.S. customary units must be

used to describe the quantity of contents of a packaged consumer commodity as defined in this law. However, FPLA does not prohibit the use of metric

units on labels. Thus, both metric and customary units may be used together

on a label.) One reason for this appears to be a reluctance on the part of both

retailers and consumers to change, or, for that matter to want to change, existing measurement traditions. Since weights and measures officials prefer

to operate with the measurement system used in commerce, now the

U.S. customary system, it is doubtful that they will change to the metric

system until that system becomes, or will become dominant in commercial

use. (Note: Mr. Akey of Wausau, Wis. was of the opinion that under present

conditions, weights and measures officials had to use the customary system

in their testing operations.)

It has, therefore, been concluded that legislation requiring the use of metric units in commercial transactions will be needed in order to bring about

metrication in commercial weights and measures, i.e., measurements made

in conjunction with commercial transactions would have to utilize metric

units for determining length, volume, and weight. The immediate statement

should not be construed as a Task Force endorsement for such legislation

(Federal or state) nor is such legislation a subject of this report. However, it does appear reasonable to foresee that any action requiring metric usage in

such a sensitive area would, no doubt, have to have a great deal of citizen

support before it was taken.

To conclude, the impacts of metrication mentioned in this report were

determined assuming there would be a required metrication program, since

it is doubtful that few if any measurement changes and their associated impacts would occur without one.

11-2. WEIGHTS AND MEASURES JURISDICTIONS

"The primary function of the weights and measures official is to see to it that equity prevails in all commercial transactions involving determinations

of quantity." 2 Whenever goods or services are bought and sold by weight or measure, it is his duty to eliminate unjust transactions which may be caused

by intentional fraud or misrepresentation, carelessness, or ignorance.

The Congress has left the control and regulation of commercial weighing

and measuring devices and activities almost exclusively to the states. How2 NBS Handbook 82, Weights and Measures Administration, p. I
REPORT OF THE TASK FORCE ON METRICATION 61

ever, weights and measures statutes and the degree and form of regulatory

controls are not alike in all states. Note: The National Conference on

Weights and Measures is promoting uniform laws, etc. Despite the fact that

the Conference can only make recommendations, it has earned a reputation as an authority in the weights and measures area, and many jurisdictions do accept its proposals. Thus, through voluntary cooperation, uniform

regulations and test methods are being established.

To protect the interests of both the buyer and the seller, the official does

work in two major areas — mechanical and supervisory. The mechanical activities of the official consist of testing at regular intervals, all commercial weighing and measuring devices in his jurisdiction. Equipment

which does not meet the necessary standards is removed from use until

it is corrected.

In his supervisory activities, the official checks the quantity of contents of

packaged goods put up by manufacturers, and he also checks bulk commodities. It is his job to investigate complaints, educate buyers and sellers to their

rights and duties under weights and measures laws, and to try to develop

cooperation between his office, consumers, and industry.

Finally, there is diversity in the forms of weights and measures organizations in the states, but they generally follow one of three basic plans

as follows: The first plan is for all supervision to be exercised by the state

government through a state office of weights and measures. This allows for

uniform test methods throughout the state by inspectors who are responsible directly to the state office.

The second plan combines the use of both state and local (city and/or

county) officials. The state officials usually work in areas not under local su- pervision or in testing operations where local officials do not have the necessary expertise or equipment required. Under this form of organization the

state generally has some control over all weights and measures activities.

The third plan calls for all inspections and testing to be conducted by

local officials, with the state office performing such functions as supervision,

promulgation of rules and specifications, and the testing of standards of local

officials.

11-3. INSPECTOR'S EQUIPMENT 3

INTRODUCTION

The vast majority of weights and measures jurisdictions in the United

States have little or no metric field testing equipment. Present equipment

would have to be adapted to metric units, where possible, or new metric

equipment would have to be purchased.

Note: It is more desirable to test weighing and measuring devices in the

system in which they are indicating or recording. Similarly, package quantities should be checked in the system in which they are labeled. This practice

3 Equipment is defined as scales, balances, and standards (mass, volume, and length) used by

weights and measures officials in their field operations.
62 COMMERCIAL WEIGHTS AND MEASURES

would avoid errors caused by converting from U.S. customary units to metric units in testing operations, thus enhancing the correctness of such

operations.

COST ANALYSIS

Introductory Comments

1. As a rule it is less expensive to buy new metric small capacity weight

kits than to convert present U.S. customary ones. This fact has the added

benefit of enabling jurisdictions to maintain, indefinitely, a dual system in

small capacity weights. (See fig. 2 1 .)

2. It is not possible to convert existing glass test measures to metric

values. Thus, new metric glassware will be needed. Like small capacity

weight kits, this will enable jurisdictions to maintain a dual system in small

capacity volumetric measurements. (See fig. 21.)

3. Present package checking scales may be used to check quantities in the

metric system provided the scale is used as a comparison device, a "null" or zero balance indicator only. This may be accomplished by (1) setting all poises at the zero indication and (2) adjusting the scale by using metric

weights so that the tower indicator always reads zero. Thus, the metric

HBH

GRADUATED GLASS

LIQUID MEASURING PACKAGE

FLASKS CHECKING SCALE

.001-.3 LB. Inspector's Equipment

FIGURE 21
REPORT OF THE TASK FORCE ON METRICATION 63

FIXED MASS STANDARD

Large Capacity Testing Unit

FIGURE 22

weights would be read in order to find the weight of the unknown item.4 This

procedure could be used until devices could be adapted or until new ones

could be purchased. The costs to adapt these devices will be given below so

that a complete cost picture may be obtained. (See fig. 21.)

4. It is felt that adapting present, or purchasing new, large capacity

field mass standards (fig. 22) would be prohibitively expensive for almost

all weights and measures jurisdictions. Therefore, it is suggested that

correction weights be used with present standards to achieve convenient

metric weight units. This conclusion has been reached despite the fact that, even though the use of correction weights is a sound principle, it is generally discouraged because there is always the danger that the right number

of correction weights will not be used in conjunction with present standards

on any test. Thus, inspectors would have to be extremely careful in con- ducting tests when correction weights are required.

The procedure for using correction weights would be to use one correction

weight of 51.1 16 lb (23.204 kg) for every 500 lb (226.796 kg) to achieve a mass of 250 kg. Thus a 1,000 lb standard would require two correction

weights to achieve an even metric mass of 500 kg.

4 Since this procedure works equally well with U.S. customary weights, devices which have

been adapted could still be used to check packages labeled in the U.S. customary system.
64 COMMERCIAL WEIGHTS AND MEASURES

These correction weights of 51.1 16 lb (23.204 kg) each could be prepared

by adapting present 50 lb field standards. This adaptation, adding weight to

the adjusting cavity, does not appear to be expensive and could be readily

accomplished by state weights and measures laboratory metrologists as state

primary mass standards include metric weights for calibration. These cor- rection weights, being unique, should be specially marketed, such as by

being painted red, so that they will not be confused with similar field standards. Note: Even though this approach may reduce metrication costs, it has the disadvantage of leaving jurisdictions with a complex testing

procedure for large capacity scales for an indefinite period of time. Therefore, it would seem reasonable to conclude that most jurisdictions, sooner or

later, would want to purchase metric field standard weights or adapt present

mass standards to even metric units in order to avoid using inconvenient cor- rection weights.

5. Other 50 lb (22.6796 kg) mass standards, not being used as correction

weights above, could be adapted to 20 kg by, for example, machining or

cutting down the bottom of the standards. This does not appear to be an ex- pensive operation as the mass of material to be removed is not large (5.9075

lb or 2.6796 kg).

6. Finally, the adaptation of most field standard (test) measures or standard provers (fig. 23 and 24), except measuring flasks made of glass, could

100 Gallon Liquid Petroleum Gas Prover

FIGURE 23
REPORT OF THE TASK FORCE ON METRICATION 65

Field Test Measures

FIGURE 24

be accomplished by changing the reading scale plate. However, this may in- troduce inconvenient numbers in metric units. Since it is less expensive to

convert than to purchase new metric test measures, total costs will be estimated using the adaptation cost figures. The cost of new metric measures

is noted.

Conditions

The following conditions limit the interpretation of cost figures and the

types of equipment considered for discussion:

1 . Cost figures given herein should be considered only as estimates of the

magnitude of the costs involved. Too many economic variables, such as inflation, make precise estimates extremely difficult both for present and future costs.

2. Because of the large varieties of equipment used by weights and measures officials, it has become necessary to restrict this discussion to equipment which is widely used. Because of this limitation, cost estimates

should be considered on the conservative side as equipment not considered

may also have to be adapted.

3. The discussion excludes all equipment used in weights and measures

laboratories. The National Bureau of Standards is supplying the states with

new laboratory equipment and basic standards in both U.S. customary and
66 COMMERCIAL WEIGHTS AND MEASURES

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68 COMMERCIAL WEIGHTS AND MEASURES

metric units. See appendix 1 1-4 for a list of the items being provided each

state by the National Bureau of Standards.

4. Cost estimates are based on a direct changeover from one system to

another with no allowances for any increase in testing capability.

5. Conversion or replacement costs were obtained from the Office of

Weights and Measures, National Bureau of Standards.

6. The cost analysis reflects the fact that jurisdictions, during any measurement change process, are going to have to be able to operate in a dual

measurement environment for some time.

7. Finally, the costs for purchasing new metric equipment were arrived at by assuming that such equipment will be offered for sale at or near present

market prices for similar equipment in U.S. customary units.

To arrive at some estimate of the impact of equipment conversion and/or

purchases upon individual state and local weights and measures jurisdictions, the total costs and costs per inspector, based upon the above equipment only, were determined nationally and for two states and three large

urban areas separately.

To be in conformity with the State-County-City Service Center (see app.

1 1-2), the States of California and Kentucky were chosen for individual analysis. Also chosen were three large urban areas within the State of California

(City and County of San Francisco, the County of Los Angeles, and San

Diego County).5

Jurisdiction

Estimated magnitude of costs

Total costs ($) Cost/inspector ($)

1 . State of California: With jurisdictions below 195,617 380.58

Without jurisdictions below 160,525 373.31

(a) San Francisco (city and county) 5,244 655.50

(b) County of Los Angeles 23,425 354.92

(c) San Diego County 6,423 642.30

2. State of Kentucky 16,213 324.26

3. National (compilation of all jurisdictions answer- 1,113,466 371.77

ing questionnaire).

11-4. WEIGHTS AND MEASURES LAWS,

REGULATIONS, AND TECHNICAL SPECIFICATIONS

INTRODUCTION

Weights and measures laws have, as their primary objective, the protection of the buyer and seller from quantity misrepresentation in all commercial transactions. Therefore, these laws and the regulations and technical

5 The Service Center is under contract to the National Bureau of Standards to supply an in- depth study on the possible impacts of metrication on state and local government operations.
REPORT OF THE TASK FORCE ON METRICATION 69

specifications promulgated under them are measurement sensitive. The

areas that appear to be the most measurement sensitive, and thus, subject to

possible problems due to metrication are as follows:

1 . Definition of the measurement system(s) to be used in commercial

transactions.

2. Technical specifications for determining the accuracy of (a) weighing

and measuring devices and (b) the labeled net quantity of contents of

packaged commodities.

3. Requirements for labeling packaged consumer commodities.

4. Legal provisions requiring certain commodities to be sold in

specified quantities.

MEASUREMENT SYSTEM

Most state weights and measures laws recognize both the U.S. customary

and metric systems of measurement for commercial transactions; 6 thus,

there is no general impediment to metric usage. However, there are many

special cases in which measurement units are defined by these laws. For

example, many weights and measures laws define the "barrel" 7 as 31

gallons and a "cord of wood" as 128 cubic feet. These terms would become

obsolete and thus they should be removed from weights and measures

statutes if the metric system were adopted. Liquid commodities now sold

by the barrel would, using the metric system, be sold by the liter; and

likewise, wood would be sold by the cubic meter instead of by the cord.

Note: As a rule, the states accept the definitions of measurement units and

the relationships between different measurement systems as established

by the National Bureau of Standards.

NBS HANDBOOK 44

In all but two states 8 NBS Handbook 44, Specifications, Tolerances and

Other Technical Requirements for Commercial Weighing and Measuring

Devices, is recognized as the principal legal and technical document for

establishing the accuracy that all commercial weighing and measuring

devices must meet before they may be used. The technical requirements

contained in this handbook were developed through, and approved by, the

National Conference on Weights and Measures.9 This Conference provides

procedures for all interested parties, public and private, to participate in the

development of the technical requirements. Amendments to Handbook 44

are made at the National Conference's annual meeting, and, upon approval

by the voting delegates, these amendments become part of the Handbook.

6 Congress has never fixed the standards for weights and measures in the United States as

provided by the Constitution (Art. 1, sec. 8). However, the Congress by law (15 U.S.C. 204)

has legalized the metric system for commercial transactions. Thus, in order to clarify their

legality in commerce, the states have established definitions of measurement systems.

7 When used in connection with fermented liquor.

8 Arizona and Rhode Island.

9 Sponsored by the National Bureau of Standards.
70 COMMERCIAL WEIGHTS AND MEASURES

For the most part, this Handbook uses the U.S. customary system of measurement as a base for establishing its specifications and tolerances. To cite a few examples, ( 1 ) the minimum graduated interval for retail food scales

with a capacity of 50 lb or less shall be not greater than one ounce; 10 (2)

retail gasoline pumping systems must dispense gasoline within ±7 cubic

inches in 5 gallons (1,155 cu in.) order to remain in commercial use; 11 and

(3) the physical dimensions of each graduation on scale recording or indicating elements and the intervals between such graduations must be designed so

that the scale can be conveniently read. H-44 establishes the minimum width

(.008 in.) for graduations and the minimum clear interval between graduations (.02 in. for money graduations and .03 in. for all other graduations).

These minimums, as indicated in parentheses, are based on the U.S. customary inch. 12 H-44, however, does give the basic tolerances for certain

types of scales indicating or recording in metric units,13 and the maintenance

tolerances for metric weights used in conjunction with commercial weighing devices.

If commercial weighing and measuring devices were required by law to

record or indicate in metric units, it would be best if Handbook 44 were

revised to include metric specifications and tolerances in convenient metric

units where none now exist. The use of H-44 in its present state to test metric recording or indicating devices, except as noted, could result in the

weights and measures inspector having to use a good many conversion

factors. The use of conversion factors would, no doubt, result in replacing

convenient numbers (customary units) with inconvenient ones (metric

units).

Any revision of H-44 will require a good deal of effort on the part of both

weights and measures officials and device manufacturers working through

the National Conference on Weights and Measures. It is very difficult to

predict or to decide what type of procedures should be used in revising this

Handbook. One method of revision would simply adjust units where necessary to round metric units. Another method would be to prepare a second

version of H-44 which would be used only for testing of metric indicating or recording devices.

The application of H-44 by weights and measures officials will be most

difficult during any transition period. The present H-44, in many cases,

would make testing metric recording or indicating devices difficult. Similarly, testing devices in customary units would be difficult if H-44 were

revised to convenient metric units. One possible solution to the transition

problem (as well as the revision problem), would be to express tolerances in

terms of percentages of any test loads or measures. This would standardize

tolerances and would eliminate the use of difficult conversion factors

between measurement systems.

"'H-44; UR. 1.1.1. (see III. Suppl., p. 90).

11 H-44; p. 81; table 1 (see III. Suppl., p. 91 ).

12 H-44; S. 1 .2.2. and S. 1.2.3. (see III. Suppl., p. 88).

13 H-44; table 5, p. 56, and table 2, p. 68 (see III. Suppl., 88, 90).
REPORT OF THE TASK FORCE ON METRICATION 71

PACKAGES

Two of the most important weights and measures operations are the inspection of packages to determine the accuracy of labeled net quantity of

contents and the correctness of label statements. NBS Handbook 67,

Checking Prepackaged Commodities, and the laws and regulations governing what must appear on the label of a packaged commodity would be the

most important items affected by metrication.

NBS HANDBOOK 67

NBS Handbook 67 provides weights and measures officials and other interested parties with procedures for determining the accuracy of the net

quantity of contents for prepackaged commodities. It appears almost certain

that, in the advent of metrication, this publication will have to be extensively

revised as H-67's testing procedures and tolerances are based entirely

on the U.S. customary system. To give but one, for example, the table of

reasonable variations (quantity) is based on pounds, ounces, or common

or decimal fractions of the ounce. 14 Consequently, this table will have to

be revised, not just translated, in order for the metric system to be easily

used for package checking tests. PACKAGE LABELING

In the area of package labeling, it appears that the Federal Government

will have to take the initiative toward metrication. 15 Federal laws, in many

cases, restrict the freedom of the states and local governments to legislate in

this area. For example, the Fair Packaging and Labeling Act (FPLA),16 and

the regulations promulgated thereunder, supersede all state and local laws or ordinances, respectively, which are less stringent than or inconsistent with

FPLA or its regulations as they apply to the labeling of the quantity of contents of a packaged consumer commodity as defined in the law. 17 For

another example, the U.S. Department of the Treasury has authority to

make regulations governing the labeling of tobacco and alcoholic beverages.

These regulations again supersede state and local controls. Note: The effects of metrication upon the Fair Packaging and Labeling Act, Public Law

89-755 (80 Stat. 1296), are covered in the following U.S. Metric Study Reports: "Federal Government: Civilian Agencies," and "The Consumer,"

NBS Special Publications 345-2 and 345-7 respectively.

SPECIFIED QUANTITIES

Most weights and measures laws, as well as other statutes, require that

some packaged consumer commodities be sold at retail in certain speci14 H-67, p. 8 (see III. Suppl., p. 86).

15 For example, requiring package labels to have their quantity of contents statements in metric terms.

16 P.L. 89-755 (see III. Suppl., p. 94).

17 Section 12 of P.L. 89-755 (see III. Suppl., p. 95).
72 COMMERCIAL WEIGHTS AND MEASURES

fied quantities; for instance, in many states fluid dairy products are re- quired to be sold in the following units: 1 gill, 1/2 liquid pint, 10 fluid

ounces, 1 liquid pint, 1 liquid quart, 1/2 gallon. 1 gallon, 1 1/2 gallons, 2 gallons, 2 1/2 gallons, or multiples of 1 gallon; usually packages of less than

1 gill are also permitted.

The translation of these sizes to their metric counterparts would result in

inconvenient metric units. This same situation applies to other staple

commodities (bread, butter, flour, etc.) that are, as a rule, required to be sold

in specified amounts. Thus, in order to eliminate awkward units, size

changes would be desirable. However, since size changes would affect

manufacturing practice, great care should be taken to insure that industry

could comply with any new size requirements without incurring large

costs (see III. Suppl., pp. 95-96).

11-5. EDUCATION AND TRAINING

INTRODUCTION

Since more than 85 percent of the weights and measures officials are unfamiliar with the metric system of measurement, it appears that a national

metric education program, especially designed for them, will be required.

One possible metric education program is presented below.

BACKGROUND CONDITIONS

By assuming the two conditions listed below, it should be possible to keep

the training program relatively brief and uncomplicated:

1 . Since weights and measures officials, as a rule, use only the three basic

units of measurement (length, mass, and volume) in their operations, they

will only have to learn what these units are in the metric system (meter,

kilogram, and liter respectively). They probably will not have to learn the

more complicated derived units such as force (Newton), energy (Joule), etc.

2. A complete retraining program for weights and measures officials will

not be necessary. This is because officials will essentially only have to adjust

to using different numbers in their operations and, as a result, there will be

little or no basic change to the inspector's work routine.

COURSE CONTENT

It is felt that the education program should include at least the following:

1 . History of the metric system (SI).

2. Descriptions and explanations of the metric system including discussions on the relationships between length, mass, and volume, and the

equivalences between the U.S. customary and metric units of measurement.

3. Application of the metric system to (a) testing weighing and measuring

devices for accuracy, and (b) checking packaged commodities for the accu- racy of their quantity of contents statements. (It would seem that NBS
REPORT OF THE TASK FORCE ON METRICATION 73

Handbooks 44 and 67 would have to be revised and metric standards

and equipment would have to be available before this part of a training

program could begin.)

Note: In any training program, consideration will have to be given to

the general education level of weights and measures officials. The data in

appendix II- 1 indicate that the vast majority of officials have completed

high school. The program should be, of course, established accordingly.

PROGRAM ADMINISTRATION

The proposed education program, i.e., course content, could be administered by dividing the training course into two parts. In Part 1 , instruction in SI understanding and usage would be given to laboratory metrologists and field supervisors. In Part 2 such instruction would be given

to field personnel and private persons concerned with weights and measures enforcement.

In Part 1 it is suggested that the Office of Weights and Measures, National

Bureau of Standards conduct training seminars for state metrologists and

field supervisors who in turn will have the responsibility of training field personnel (and other interested parties) in their states in the use of the metric

system. Part 1 seminars could be conducted at the National Bureau of Standards, and at regional state laboratories and should provide for 40 hours of

instruction in the use of metric units and computations associated therewith.

Instruction would also include examination procedures as they relate

to the testing of packages and commercial weighing and measuring devices.

In Part 2, the metrologists and field supervisors would then schedule specialized training programs for state and local weights and measures field personnel, as well as for other parties concerned with metrication in the

weights and measures field, e.g., the service personnel of scale and meter

manufacturers and for persons connected with firms engaged in packaging

and labeling. These training courses should consist of 40 hours of instruction in the use of the metric system with special emphasis on the application of this system to the examination procedures (i.e., H-44 and H-67)

used in the testing of commercial weighing and measuring devices and

packages.

Finally, it is felt that the Office of Weights and Measures should assume

the responsibility for coordinating this nationwide program. In fact, the instruction in the use of the metric system could complement OWM's present

technical education programs for weights and measures officials. It is estimated that this metric education program could be completed in about

1 year.

COST AREAS

Since a detailed analysis of both actual and overall economic costs of this

education program would be purely speculative, only the areas where costs

are likely to arise will be discussed. To repeat, quantitative analysis has been

avoided because of the high probability of inaccurate or misleading results.
74 COMMERCIAL WEIGHTS AND MEASURES

The purchase of needed educational materials and travel to training

seminars, will represent the two areas where the states or local weights

and measures jurisdictions will encounter actual costs. On the whole,

it would seem that the above actual costs will be minimal.

However, other economic costs areas which would not require additional

funding must be considered. The largest economic cost area appears to be

the man-hours spent by officials in acquiring the necessary metric

knowledge. This would include time spent in classroom instruction, on the

job training, and the longer time required to complete routine operations

until officials became proficient in using the metric system. As a result,

economic costs arising other than from actual costs, above, could be rather

high. Of course, if this training could be combined with present training programs its economic impact would no doubt be reduced.

COMMENT

In brief, the cost areas considered in this section may be classified as follows: (1) Those that will require additional spending (actual costs), and (2)

those that do not but will indirectly result in a loss in productivity, i.e., man

hours lost in training.

These cost areas and their magnitudes considered are judgment opinions

only and may be interpreted as reflecting a feeling that costs arising from

man hours lost in training (productivity loss) will be higher in a relative sense

than the actual costs. On the other hand, the productivity loss may be insignificant with respect to the total economic impact of metrication.

Such conclusions are reasonable. For instance, actual costs, Part 1 and 2

training costs, can be estimated as consisting of $29,950 for needed materials (based on $10 of training aids, such as booklets, for 2,995 inspectors),

and travel expenses for metrologists and field supervisors estimated at $30,000 for 100 persons. The total cost would therefore be $59,950.

However, the costs due to man hours lost would be, not considering the

time spent by officials acting as instructors, $3,054,900 (based on 68 hours

of instruction per inspector for 2,995 inspectors, i.e., a total of 203,660

hours, at $15 per hour per inspector for salary and overhead). This figure is 5 1 times higher than actual costs and, therefore, the costs due to man

hours lost in training may be considered high in a relative sense to actual

costs.

Finally, such a productivity loss probably is insignificant with respect to

the total national cost of metrication. Note: This comment is not a part of the

Task Force Report.
Appendix II

SUMMARY OF STATISTICS

INTRODUCTION

These data are based on a 93 percent return on questionnaires sent to

the following weights and measures jurisdictions: (1) All state jurisdictions;

(2) The District of Columbia; (3) Puerto Rico; and (4) 16 major urban areas

(see list at the end of this appendix).

Totals or percentages combine both state and local jurisdictions within

any particular state (provided a state has local jurisdictions), except that

data on the 16 major urban areas (listed as cities in the tables below) are not included in any of the state and/or local figures. 18

PERSONNEL STATISTICS

The following is a breakdown of the total number of weights and measures

officials in the United States by percentages into three distinct categories:

(1) Full or part time personnel; (2) place of employment; and (3) level of education.

Percent oj

total officials

(a) Total number of officials = 2,995

(b) Type of employment:

Full time 75

Part time 25

Total 100

(c) Place of employment:

State/local 88

Cities 12

Total 100

(d) Level of education: Less than high school 4 High school graduate 65

2 years of college 15 4 years of college 12 University or college graduate study 4

Total 100

SUMMARY OF METRIC KNOWLEDGE

The following summarizes the general level of metric knowledge and attitudes toward metrication among weights and measures officials by general

jurisdictions. Each questionnaire is treated as a unit and the answers

represent a consensus among the personnel of the jurisdiction(s) covered. 19

,s The District of Columbia and Puerto Rico are treated as states in this data.

1!l The Directors of weights and measures in the states and large city jurisdictions, or their

representatives, estimated these consensuses.

75
76 COMMERCIAL WEIGHTS AND MEASURES

Percent of jurisdictions

State/local Cities Total

(a) Knowledge of the metric system:

Very well 2 0 1.5 Well 6 13 8 Slightly 90 87 89

Not at all 2 0 1.5

Total 100 100 100

(b) Attitudes toward metrication:

Strongly for 13 27 16 Mildly for 46 53 48

Neutral 14 13 14 Mildly against 23 7 19 Strongly against 2 0 1.5 No opinion 2 0 1.5

Total 100 100 100

COMMENTS

The following summarizes the comments of directors of weights and measures jurisdictions (or their representatives). Only the most prevalent comments will be listed.

(a) The metric system was thought to be a simpler system of measurement

to understand and use as compared with the U.S. customary one.

(b) However, there would be disadvantages (such as costs) of changing over to the metric system. Jurisdictions would need new equipment and their

personnel would have to learn the new measurement system.

(c) Opinions among officials on who should pay the metrication costs

varied. Most felt that the state and local jurisdictions should "pay their own

way." However, others felt that the Federal Government should assume this

cost, and, of course, there were some who suggested sharing the costs.

(d) Finally, if a measurement change should come about, many officials

felt that state and jocal jurisdictions should definitely have a part in educating the public to understand the metric system.

LIST OF MAJOR URBAN AREAS

1. New York, New York 9. Milwaukee, Wisconsin

2. Chicago, Illinois 10. San Francisco, California

3. Los Angeles, California 11. Boston, Massachusetts

4. Philadelphia, Pennsylvania 12. Dallas, Texas

5. Detroit, Michigan 13. San Diego, California

6. Baltimore, Maryland 14. Seattle, Washington

7. Cleveland, Ohio 15. Buffalo, New York

8. St. Louis, Missouri 16. Cincinnati, Ohio
APPENDIX II- 1

Equipment Statistics

77

Type of equipment or standard

Total

Percent accounted for by jurisdictions

in use

State Local Large

cities

841 53 36 1

455 50 42 8

11 ?7_ 1 6 1 28 ] i 29 9 62

34,647 37 57 6

191 n.d. n.d. n.d. 140 n.d. n.d. n.d.

1 ZO ,4,4 4-0 0o

H-O A 11

1

-1

I J

Z 1 Z n.o. nII. HU. n rl 1 1. u. 97 n.d. n.d. n.d.

1,400

1

1 , 141 1

J uu J o 7 29 J Q 1 7 2 17 70 22 g 7 n11. Hu. n.d. n.d. 16 ouRfi i i 1

3 AH 0 75

16 n.d. n.d. n.d.

3,993

i 1 1 *>

I ,J I z

">Q ZV OD CJ 2,793 37 57 6

251 32 61 7 380 36 58 6

5 100 0 0

58 48 38 14 24 58 17 25

300 n.d. n.d. n.d.

5,123

47 66 34 0

15 n.d. n.d. n.d.

62

Cube weight kits (1/16 oz to 2 lb) Decimal pound weight kits (.001 lb to .3 lb). Decimal ounce weight kits (.01 oz to .5 oz).. 8 pound test weight kits Small individual mass standards: 50 pound mass standard

25 pound mass standard

Miscellaneous mass standard

Total

Scales, balances, etc.: Over and under 5 pound capacity package checking scales. 10 pound capacity field balance

Miscellaneous scales and balances

Platform scales

Total

Large capacity mass standards: 500 pound mass standard

1 ,000 pound mass standard

2,500 pound mass standard

5,000 pound mass standard

Miscellaneous mass standard

2,500 pound moving dollies (calibrated)...

5,000 pound moving dollies (calibrated)...

Miscellaneous moving dollies (calibrated).

Total Test measures and provers (except LPG provers):

1 gallon

5 gallon

50 gallon

100 gallon

100 gallon (stainless steel) 500 gallon

1000 gallon

Miscellaneous test measures and provers

Total

LPG provers:

100 gallon

Miscellaneous LPG provers.

Total.

n.d. = not determined.
78 COMMERCIAL WEIGHTS AND MEASURES

Equipment Statistics — Continued

Type of equipment or standard

Total

number

Percent accounted for by jurisdictions

in use

State Local Large

cities

Glass test measures (1 gallon- 1 gill) (kits) 160 78 12 10

2 oz graduated cylinder 222 31 64 5 No. 8 size sieve, pan and cover 42 83 7 10 Length standard:

16-foot 199 35 61 4

50-foot 373 21 72 7 100-foot 199 23 70 7 Fabric measuring test tapes 454 34 51 15 Miscellaneous length standard (except rules) 1 12 n.d. n.d. n.d.

Total 1,337

n.d. = not determined.
Appendix 11-2

STATE-COUNTY-CITY SERVICE CENTER

1612 K STREET, N.W.

WASHINGTON, D.C. 20006

The State-County-City Service Center is a coordinating body for the following organizations:

1 . Council of State Governments

2. International City Management Association

3. National Association of Counties

4. National Governors Conference

5. National League of Cities

6. United States Conference of Mayors

79
Appendix 11-3

ORGANIZATION OF THE TASK FORCE

ON METRICATION

ESTABLISHMENT

Under authority granted by the Executive Committee on the 54th National Conference of Weights and Measures, a Task Force on Metrication is hereby established by the Conference Executive Secretary to study the

possible effects that increased use or non-use of the metric system might

have on the weighing and measuring field.

FUNCTION

The Task Force shall study the problems and costs associated with in- creased use or non-use of the metric system in the commercial weighing and

measuring field.

MEMBERSHIP

1. The Task Force shall be composed of members appointed by the Executive Secretary representing the field of weights and measures.

2. Members of the Task Force shall be appointed for the duration of the

study unless they voluntarily terminate such membership. In such cases, the

Executive Secretary will select appropriate replacements.

ORGANIZATION

1. The Executive Secretary shall designate one member of the Task

Force to serve as chairman.

2. The Office of Weights and Measures, National Bureau of Standards,

shall serve as the secretariat of the Task Force, and as such it will provide

clerical, administrative, and technical staff along with the necessary support

facilities and materials to assist the Task Force in carrying out its objectives.

The manager of the Commercial Weights and Measures Survey, U.S. Metric

Study, shall be ex officio, the secretary of the Task Force.

3. The Task Force will meet at the times and places designated by its chairman, subject to the advance approval of the Executive Secretary, by

means of written notices to the Task Force members.

4. Members of the Task Force will be reimbursed for travel and expenses

(per U.S. Government per diem rates) connected with attendance at Task

Force meetings.

PROCEDURES

1 . Business will be transacted by the Task Force at meetings and by cor- respondence and telephone.

80
APPENDIX 11-3 81

2. A majority of the members of the Task Force shall constitute a quorum

for the transaction of business. A vote of the majority shall decide any

question that may come before the Task Force. If at any meeting of the Task

Force there shall be less than a quorum present, those present may act on

the business before it subject to ratification in writing by a majority of the

members.

3. The Task Force shall observe in all of its procedures the principles of

due process and the protection of the rights and interests of affected parties.

REPORTS

1. The Task Force shall submit a report, including any recommendations

it may have, to the Executive Secretary not later than November 30, 1970,

unless another time shall be established by the Conference or the Executive

Secretary.

2. The Task Force may also submit interim reports, data, and recommendations to the Executive Secretary for his information, advice, or action.

TERMINATION

The Task Force shall expire at the close of the 56th National Conference

on Weights and Measures in July of 1971, unless it is decided to extend its existence beyond this date.

Harold F. Wollin, Executive Secretary

National Conference on Weights and Measures

April 20, 1970
Appendix 11-4

NEW STATE STANDARDS

(authorized by Public Law 89-164)

1. Metric Mass Standards, 30 kg to 1 mg (5:3:2:1 Series)

2. Avoirdupois Mass Standards, 50 lb to 1 /x\b (5:3:2: 1 Series)

3. 500 Pound Mass Standards (2)

4. Precision Balances:

1 60 g capacity, 0.02 mg precision

1 kg capacity, 0.2 mg precision

3 kg capacity, 1 mg precision

30 kg capacity, 2 mg precision

5000 lb capacity, 0.01 precision

5. Length Bench, 5 meter/ 16 feet

6. Tension Weights, 20 pound

7. Laboratory Microscope, 0.300 inch x 0.002 inch

8. Precision Steel Tape, 7 meter/25 feet

9. Steel Tape, 30 meter/ 1 00 feet

10. Precision Steel Rule, 18 inches x 0.01 inch

1 1 . Metric Pipet-Buret Assembly, 5 liters to 1 0 milliliters

12. U.S. Customary Pipet-Buret Assembly, 1 gallon to 120 minims

13. Five Gallon Standard, slicker plate type

82
ill. SUPPLEMENT

SUPPLEMENT

Public Law 90-472 2to 2kt 82 STAT. 693 To authorize the Secretary of Commerce to make a study to determine the advantages and disadvantages of increased use of the metric system in the United

States.

Be it enacted by the Senate and House of Representative!! of the United States of America in Congress assembled, That the Secretary of Metric system. Commerce is hereby authorized to conduct a program of investigation, Study,

research, and survey to determine the impact of increasing worldwide

use of the metric system on the United States; to appraise the desir- ability and practicability of increasing the use of metric weights and

measures in the United States; to study the feasibility of retaining

and promoting by international use of dimensional and other engineering standards based on the customary measurement units of the United States; and to evaluate the costs and benefits of alternative courses of action which may be feasible for the United States. Sec. 2. In carrying out trie program described in the first section of investigation

this Act, the Secretary, among other things, shall— and appraisal

(1) investigate and appraise the advantages and disadvantages requirements,

to the United States in international trade and commerce, and in military and other areas of international relations, of the increased use of an internationally standardized system of weights and

measures

(2) appraise economic and military advantages and disad- vantages of the increased use of the metric system in the United

States or of the increased use of such system in specific fields and

the impact of such increased use upon those affected

(3) conduct extensive comparative studies of the systems of weights and measures used in educational, engineering, manufacturing, commercial, public, and scientific areas, and the rela- tive advantages and disadvantages, and degree of standardization of each in its respective field

(4) investigate and appraise the possible practical difficulties which might De encountered in accomplishing the increased use of the metric system of weights and measures generally or in

specific fields or areas in the United States;

(5) permit appropriate participation by representatives of United States industry, science, engineering, and labor, and their

associations, in the planning and conduct of the program authorized by the first section of this Act, and in the evaluation of the information secured under such program; and

(6) consult and cooperate witn other government agencies,

Federal, State, and local, and, to the extent practicable, with

foreign governments and international organizations. Sec. 3. In conducting the studies and developing the recommenda- Results of tions required in this Act, the Secretary shall give full consideration to ohanges in

the advantages, disadvantages, and problems associated with possible measurement changes in either the system of measurement units or the related di- sy8**"* mensional and engineering standards currently used in the United

States, and specifically shall

(1) investigate the extent to which substantial changes in the

size, shape, and design of important industrial products would be

necessary to realize the benefits which might result from general use of metric units of measurement in the United States;

(2) investigate the extent to which uniform and accepted engineering standards based on the metric system of measurement

un!ts are in use in each of the fields under study and compare the extent to such use and the utility and degree of sophistication of

such metric standards with those in use in the United States; and

(3) recommend specific means of meeting the practical diffi- culties and costs in those areas of the economy where any recom- mended change in the system of measurement units and related dimensional and engineering standards would raise significant

practical difficulties or entail significant costs of conversion. Sec. 4. The Secretary shall submit to the Congress such interim Report to reports as he deems desirable, and within three years after the date of Congress, the enactment of this Act, a full and complete report of the findings

made under the program authorized by this Act

? together with such recommendations as lie considers to be appropriate and in the best interests of the United States. Sec. 5. From funds previously appropriated to the Department of Funds. Commerce, the Secretary is authorized to utilize such appropriated sums as are necessary, but not to exceed $600,000, to carry out tne purposes of this Act for the first year of the program.

Sec. 6. This Act shall expire thirty days after the submission of the Expiration

final report pursuant to section 3. dat*

Approved August 9, 1968.
86 COMMERCIAL WEIGHTS AND MEASURES

Excerpts from NBS Handbook 67, Checking Prepackaged Commodities

UNREASONABLE MINUS OR PLUS ERRORS

Minus error Greater than Pliu error Greater than LabeUd quantity 0 to 2 ounces « ounce K c-unce. 2+ to 8 ounces Mo ounce.--- jounce.

8 ounces+ to 2 pounds % ounce % ounce. 2+ to 4 pounds Me ounce.— % ounce. 4+ to 7 pounds K ounce % ounce. 7+ to 14 pounds H ounce 1 ounce. 14+ to 24 pounds % ounce 1% ounces 24+ to 36 pounds — 1 ounce 2 ounces. 36+ to 51 pounds 8 ounces 1 pound

51+ to 101 pounds 2 pounds.-- 4 pounds.

Page 8

These tables have been superseded by the following:

Packages Labeled in Terms of Units of Linear or Square Measure

Minus errors greater than 3 percent of the labeled quantity, and

plus errors greater than 6 percent of the labeled quantity should be

considered unreasonable.

Packages Labeled in Terms of Count

Minus errors greater than 2 percent of the labeled quantity, and

plus errors greater than 4 percent of the labeled quantity should be

considered unreasonable.

Unreasonable Minus or Plus Errors

I

Labeled Quantity

Minus Error

Greater than

Pounds Ounces

Plus Error

Greater than

Pounds Ounces

0 to 2 ounces

2+ to 4 ounces

4+ to 8 ounces

8 ounces+ to 1 pound

1+ to 2 pounds

2+ to 3 pounds

3+ to 4 pounds

4+ to 5 pounds

5+ to 6 pounds

6+ to 7 pounds

7+ to 8 pounds

_8+_to 9 pounds

9+ to 10 pounds

Over 10 pounds

008

012

016

02 0

02 3

031

039

047

063

071

079

094

110

1/8

3/16

1/4

5/16

3/8

1/2

5/8

3/4 _

1/8

1/4

1/2

3/4

2% of labeled

quantity

. 016

, 023

, 031

, 039

, 047

, 063

, 079

094

12~5"

, 127

156

188

219

1/4

3 '8 1'2

5/8

3/4

1/4

1/2

1/4

1/2

1/2

4% of labeled

quantity
SUPPLEMENT 87

Unreasonable Minus or Plus Errors

Minus Error Plus Error

Labeled Quantity Greater than Greater than

Dram Ml Dram Ml

0 to 2 fl oz 1 3. 7 ;

7. 4

p!T+ to 4 fl oz 1. 5 5. 5 3 11.1

4+ to 8 fl oz 2 7.4 4 14.8

j 8 fl oz+ to 1 pt I 2. 5 9.2 5 18.5

i A_pt±.. tp i qt i 3 11.1 . 6 , 22.2 j

L 1+ to 1.5 qt 14. 8 8 29. 6

j 1 • D*r CO £ qt i 5 18. 5 10 37. 0

2+ to 2. 5 qt ] 6 22.2 12 44. 4

i 2 . 5+ to 3 qt j 8 29. 6 16 59. 2

j 3+ to 3. 5 qt 9 33. 3 18 66. 5

3. 5+ to 4 qt 10 37.0 20 73. 9 4+ to 4. 5 qt 12 44.4 24 88. 7

4. 5+ to 5 qt 1 15 55. 5 30 110. 9

i Above 5 qt 2 % of labeled 4% of labeled

i quantity quantity

Excerpts from the Report of the. 54th National Conference on Weights

and Measures 1969, NBS Special Publication 318

RESOLUTION ON METRIC STUDY

Whereas, the Congress of the United States has enacted Puhlic Law 90-^172 authorizing the Secretary of Commerce to make a study to determine the advantages and disadvantages of increased use of the Metric System in the United

States ; and

Whereas, changes in the measurement system at home and ahroad would no doubt ltave substantial impact on the weighing and measuring field ; and

Whereas, the National Bureau of Standards, which has been assigned the

responsibility for conducting this study, has requested that the National Confer- ence on Weights and Measures assist it in gathering pertinent information in the weights and measures area : Therefore, be it ' '• Resolved by the 54th National Conference on Weights and Measures, that the Executive Committee is hereby authorized to conduct a study into the problems

that measurement changes might have on the weighing and measuring field and to coordinate its efforts fully with the National Bureau of Standards, and is authorized to take whatever action is deemed appropriate in this matter. Page 236

Executive Committee Motion Establishing the Task Force on Metrication

The Executive Committee hereby authorizes the Executive Secretary

to establish a task force on metrication, composed of the representatives from the active, advisory, and associate members of this Conference and

such consultants as may be necessary to study the possible effects that increased use or non-use of the Metric System might have on the weighing and measuring field and to report such effects along with any recom- mendations it may have to the Conference in 1970.

? Such task force would be expected to give special attention to, but not

limit itself to, the impacts that metrication might have on (1) State and

local laws, regulations, and on the duties of weights and measures officials : (2) device manufacturers ; and (3) users of commercial weighing and measuring devices. In carrying out its responsibilities, the task force would coordinate its

efforts with similar ones at the National Bureau of Standards. The Executive Secretary is further authorized to take whatever action or actions deemed necessary and proper to aid the task force in its assignment. Page 161

The Conference Executive Secretary, because of budget restrictions, limited

the scope of the Task Force's inquiry to investigating the impacts of metrication upon weights and measures jurisdictions.
88 COMMERCIAL WEIGHTS AND MEASURES

Excerpts from NBS Handbook 44, Specifications Tolerances, and Other

Technical Requirements for Commercial Weighing and Measuring —

Devices (1970 version]

G-A.l. COMMERCIAL AND LAW-ENFORCEMENT

EQUIPMENT.—These specifications, tolerances, and

other technical requirements apply as follows:

(a) To commercial weighing and measure equipment;

that is, to weights and measures and weighing and

measuring devices commercially used or employed

in establishing the size, quantity, extent, area, or measurement of quantities, things, produce, or articles for distribution or consumption, purchased,

offered, or submitted for sale, hire, or award, or in computing any basic charge or payment for services rendered on the basis of weight or measure.

(b) To any accessory attached to or used in connection

with a commercial weighing or measuring device

when such accessory is so designed that its operation affects the accuracy of the device.

(c) To weighing and measuring equipment in official use for the enforcement of law or for the collection of statistical information by government agencies.

[1968]

i (These requirements should be used as a guide by the

weights and measures official when courtesy examinations

are made, upon request, of noncommercial equipment.)

Page 2 7

S.L2.2. WIDTH.—In any series of graduations, the width of a graduation shall in no case be greater than

the width of the minimum clear interval between graduations, and the width of main graduations shall be not more than 50 percent greater than the width of subordi- nate graduations. Graduations shall in no case be less than 0.008 inch in width.

Page 39

Sl.2.3. CLEAR INTERVAL BETWEEN GRADUATIONS.—The clear interval shall be not less than 0.02 inch for graduations representing money values and not

less than 0.03 inch for other graduations. If the graduations are not parallel, the measurement shall be made

(a) along the line of relative movement between the

graduations and the end of the indicator, or

( b) if the indicator is continuous, at the point of widest separation of the graduations.

Page 40
SUPPLEMENT 89

H-44 (continued)

• TABLE 5.—BASIC TOLERANCES FOR SCALES INDICATING

OR RECORDING IN EITHER APOTHECARIES OR METRIC

UNITS, EXCEPT FOR PRESCRIPTION, JEWELERS, CREAMTEST, MOISTURE-TEST, ANIMAL, LIVESTOCK, CRANE,

AXLE-LOAD, VEHICLE, AND RAILWAY TRACK SCALES,

AND WHEEL-LOAD WEIGHERS. (See T.l., T.2., and T.3.)

Test load ivi ai nteii ance

^"rtl AVI T1/>AC< loierdnces

AccepCeline

LUlcidllCtJS

From to but Expressed in Expressed in

not in- Grains Grains

cluding

Ounces apoth.

0 1 1 0.5

1 2 2 1.0 2 4 4 2.0 4 6 7 3.5 6 8 10 5.0 8 12 12 6.0 Grams Milligrams Milligrams

0 10 15 g

10 20 50 25

20 40 100 50

40 60 loU I7jr <0 60 100 250 125

100 150 350 175

150 200 500 250

200 300 650 325

300 400 800 400

Grams Grams

400 500 1.0 0.5 500 750 1.5 0.75

750 1,000 2.0 1.0 Kilograms

1 2 4.0 2.0 2 3 5.5 2.8 3 5 7.5 3.8 5 10 11.0 6.0 10 15 15.0 7.5 15 20 19.0 8.5 20 30 25.0 12.5

30 40 35.0 17.5

40 50 45.0 22.5

v 50 kilograms 0.1 percent of 0.05 percent of

and over test load test load

Page 56
COMMERCIAL WEIGHTS AND MEASURES

H-44 (continued)

UR.1.1.1. FOR RETAIL FOOD SCALES ONLY.-

The value of the minimum graduated interval on a scale

used for the retail sale of foodstuffs, with a nominal

capacity of 50 pounds or less, shall be not greater than 1

ounce. - • Page 57

TABLE 2.—MAINTENANCE TOLERANCES FOR METRIC

WEIGHTS

ivx ai ii v cii a1 1 \j c t.nlpm npp

Milligrams Milligrams

& or Ipss 0. 1 10 . 3

A. 30 . 6

^0 Q . o

i on 1! ou zuu 1 ^ OUU 300

OUU ^00 3 0

(jrcLins

i2 6

3 8

5 10

10 15

20 20

30 30

50 40

100 70

200 100

300 150

500 175

Kilograms

1 250

2 400

3 500

5 800

10 1, 000

20 1, 500

Carats Milligrams

0. 25 (25 points) or 0. 6

less

. 5 (50 points) 1. 0

1. 0 1. 5

2. 0 2. 0

3. 0 3. 0

5. 0 4. 0

10. 0 0. 0

20. 0 10. 0

30. 0 12. 0

50. 0 15. 0

100. 0 25. 0

Page 68
SUPPLEMENT

H-44 (Continued)

TABLE 1

. —TOLERANCES FOR RETAIL DEVICES, EXCEPT

SLOW-FLOW METERS AND EXCEPT ON ELAPSED-TIME

TESTS 2

Indication

Maintenance tolerance Acceptance tolerance

(On normal and on

special tests) (On normal and on

special tests)

Gallons

or less.

1 .

Cubie inches 2

34

56

7 Add 1 cubic inch per

indicated gallon

Cubic inches

11%

2

2}i 33%

Add \i cubic inch per

indicated gallon

2

3

4

5 . Over 5_ . . .

Page 81

WIRE AND CORDAGE-MEASURING

DEVICES

(See also General Code Requirements)

A. APPLICATION. (Pertaining to the application of code

requirements.)

A.l.—This code applies to mechanisms and machines designed to indicate automatically the length of cordage, rope,

wire, cable, or similar flexible material passed through the

measuring elements.

S. SPECIFICATIONS. (Applicable with respect to the design of wire and cordage-measuring devices.) [1969]

5.1. UNITS.—A wire or cordage-measuring device shall indi- cate lengths in terms of feet or feet and inches. [1969]

5.2. DESIGN OF INDICATING ELEMENTS.

&2.1. GRADUATIONS.

5.2.1.1. LENGTH.—Graduations shall be so varied in

length that they may be conveniently read.

5.2.1.2. WIDTH.—In any series of graduations, the

width of a graduation shall in no case be greater than

the width of the minimum clear interval between graduations, and the width of main graduations shall be not more than 50 percent greater than the width of subordinate graduations. Graduations shall in no case be less than 0.008 inch, nor more than 0.04 inch, in width.

5.2.1.3. CLEAR INTERVAL BETWEEN GRADUATIONS.—The clear interval between graduations

shall be at least as wide as the widest graduation, and in no case less than 0.03 inch.

e. g. , Retail Gasoline Dispensing Systems
COMMERCIAL WEIGHTS AND MEASURES

H-44 (Continued)

5.2.2. INDICATOR.

Si.2.1. SYMMETRY.—The index of an indicator shall

be symmetrical with respect to the graduations with

which it is associated and at least throughout that portion of its lencrfh that is associated with the graduations.

S.2.2.2. LENGTH.—The index of an indicator shall

reach to the finest graduations with which it is used,

unless the indicator and the graduations are in the same

plane, in which case the distance between the end of the

indicator and the ends of the graduations, measured

along the line of the graduations, shall be not more than

0.04 inch.

C.2.2.3. WIDTH.—The index of an indicator shall not

be wider than the narrowest graduations with which it is used, and shall in no case exceed 0.015 inch.

5.2.2.4. CLEARANCE.—The clearance between the index of an indicator and the graduations shall in no case be more than 0.06 inch.

5.2.2.5. PARALLAX.—Parallax effects shall be reduced

to the practicable minimum.

5.2.3. ZERO INDICATION.—Primary indicating ele- ments shall be readily returnable to a definite zero indication. [1969]

5.3. DESIGN OF MEASURING ELEMENTS.

5.3.1. SENSITIVENESS.—If the most sensitive element

of the indicating system utilizes an indicator and graduations, the relative movement of these parts corresponding

to a measurement of 1 foot shall be not less than ^4 inch.

5.3.2. SLIPPAGE.—The measuring elements of a wire or cordage-measuring device shall be so designed and con- structed as to reduce to the practicable minimum any slippage of material being measured and any lost motion

in the measuring mechanism. [1969]

5.3.3. ACCESSIBILITY.—^ wire or cordage-measuring

device shall be so constructed that the measuring elements

are readily visible and accessible, without disassembly of

any supporting frame or section of the main body, for

purposes of cleaning or removing any foreign matter car- ried into the mechanism by the material being measured.

[1969]

5.4. MARKING REQUIREMENTS.

5.4.1. LIMITATION OF USE—If a device will measure

accurately only certain configurations, diameters, types, or

varieties of materials, or with certain accessory equipment,

its limitations shall be clearly and permanently stated on

the device.

5.4.2. OPERATING INSTRUCTIONS.—Any necessary

operating instructions shall be clearly stated on the device.

5.4.3. INDICATIONS.—Indicating elements shall be

identified by suitable words or legends so that the values

of the indications will be unmistakable.

5.5. DESIGN ACCURACY.—Indications of length shall be

accurate whether the values of the indications are being increased or decreased.
SUPPLEMENT

H-44 (Continued)

N. NOTES. (Applicable with respect to the testing of wire

and cordage-measuring devices.) [1969]

N.l. TESTING MEDIUM.—A wire or cordage-measuring

device shall be tested with a steel tape not less than 14 inch

in width and at least 50 feet in length. The tape shall have a smooth surface or intaglio figures and graduations (i.e., the

figures and graduations shall not be raised). When a wire

or cordage-measuring device cannot be tested in such a manner because of the design of the device, it shall be tested with

a kink-free length of No. 12 vinyl-covered electrical wire appropriately marked and compared at frequent periodic

intervals with a calibrated steel tape at various increments

from 20 through 50 feet. [1969]

N.2. MINIMUM TEST.—Tests shall be conducted at a minimum initial increment of 20 feet and appropriate increments up to at least 50 feet. [1969] T. TOLERANCES. (Applicable with respect to the per- formance of wire and cordage-measuring devices.)

[1969]

T.l. TOLERANCE VALUES.—Maintenance and accepttolerances shall be as shown in table 1.

TABLE 1.—MAINTENANCE AND ACCEPTANCE TOLERANCES

FOR WIRE AND CORDAGE-MEASURING DEVICES

Indication of device

Acceptance and maintenance tolerances

On underregistration On overregistration

Feel 20Inches

68

10

12 Add 2 inches per

indicated 10 feet

Inches

34

5

6 Add 1 inch per

indicated 10 feet

Over 20 to 30 Over 30 to 40

Over 40 to 50 Over 50. .

UR. USER REQUIREMENTS. (Applicable with respect

to the installation and use of wire and cordage-measuring devices. [1969]

UR.1. INSTALLATION REQUIREMENTS.

UR.1.1. INSTALLATION. A wire or cordage-measuring

device shall be securely supported and firmly fixed in position. [1969]

UR.2. USE REQUIREMENTS.

UR.2J. LIMITATION OF USE.—A wire or cordagemeasuring device shall be used to measure only those materials that it was designed to measure, and in no case shall it be used to measure a material that a marking on the device

indicates should not be measured. [1969]

UR.2^. RETURN TO ZERO.—The primary indicating

elements of a wire or cordage-measuring device shall be re- turned to zero before each measurement. [1969]

UR.2.3. OPERATION OF DEVICE.—A wire or cordage

measuring device shall not be operated in such a manner

as to cause slippage or inaccurate measurement. [1969]

UR.2.4. CLEANLINESS.—The measuring elements of a wire or cordage-measuring device shall be kept clean to prevent buildup of dirt and foreign material that would

adversely affect the measuring capability of the device.

[1969]

Pages 141-144
94 COMMERCIAL WEIGHTS AND MEASURES

Excerpts from Various Laws

Fair Packaging and Labeling Act, Public Law 89-755 (80 Stat. 1296)

Section 4 ( 80 Stat. 1297 & 1298)

Sec. 4. (a) No person subject to the prohibition contained in section

3 shall distribute or cause to be distributed in commerce any packaged consumer commodity unless in conformity with regulations which shall be established by the promulgating authority pursuant to section 6 of

this Act which snail provide that

(1) The commodity shall bear a label specifying the identity of the commodity and the name and place of business of the manufacturer,

packer, or distributor;

(2) The net quantity of contents (in terms of weight, measure,

or numerical count) shall be separately and accurately stated in a uniform location upon the principal display panel of that label

(3) The separate label statement of net quantity of contents appearing upon or affixed to any package

(A) (i) if on a package containing less than four pounds or one

gallon and labeled in terms of weight or fluid measure, shall, unless subparagraph (ii) applies and such statement is set forth in accordance with such subparagraph, be expressed both in ounces

(with identification as to avoirdupois or fluid ounces) and, if applicable, in pounds for weight units, with any remainder in terms of ounces or common or decimal fractions of the pound; or

in the case of liquid measure, in the largest whole unit (quarts,

quarts and pints, or pints, as appropriate) with any remainder in terms of fluid ounces or common or decimal fractions of the pint or quart;

(ii) if on a random package, may be expressed in terms of pounds and decimal fractions of the pound carried out to not more than two decimal places;

(iii) if on a package labeled in terms of linear measure, shall be

expressed both in terms of inches and the largest whole unit

(yards, yards and feet, or feet, as appropriate) with any remainder in terms of inches or common or decimal fractions of the foot or yard

(iv) if on a package labeled in terms of measure of area, shall be

expressed both in terms of square inches and the largest whole

square unit (square yards, square yards and square feet, or square

feet, as appropriate) with any remainder in terms of square inches or common or decimal fractions of the square foot or square yard

(B) shall appear in conspicuous and easily legible type in distinct contrast (by typography, layout, color, embossing, or molding) with other matter on the package

(C) shall contain letters or numerals in a type size which shall be (i) established in relationship to the area of the principal dis- play panel of the package, and (ii) uniform for all packages of

substantially the same size ; and

(D) shall be so placed that the lines of printed matter included

in that statement are generally parallel to the base on which the

80 stat. 1297 _E2£^aSe rests 85 it is designed to be displayed ; and

80 stat. 1298 (T) The label of any package of a consumer commodity which bears a representation as to the number of servings of such commodity con- tained in such package shall bear a statement of the net quantity (in terms of weight, measure, or numerical count) of each such serving. "Random paok- (5) For purposes of paragraph (3) (A) (ii) of this subsection the

age." term "random package" means a package which is one of a lot, shipment, or delivery of packages of the same consumer commodity with

varying weights, that is, packages with no fixed weight pattern.

(b) No person subject to the prohibition contained in section 3

shall distribute or cause to be distributed in commerce any packaged consumer commodity if any qualifying words or phrases appear in conjunction with the separate statement of the net quantity of contents required by subsection (a), but nothing in this subsection or in para- graph (2) of subsection (a) shall prohibit supplemental statements,

at other places on the package, describing in nondeceptive terms the net quantity of contents: Provided, That such supplemental statements of

net quantity of contents shall not include any term qualifying a unit of weight, measure, or count that tends to exaggerate the amount of

t he commodity contained in the package.
SUPPLEMENT 95

FPLA (continued)

Section. 12 (80 Stat. 1302)

EFFECT UPON STATE LAW

Sec. 12. It is hereby declared that it is the express intent of Congress

to supersede any and all laws of the States or political subdivisions thereof insofar as they may now or hereafter provide for the labeling of the net quantity of contents of the package of any consumer com- modity covered by this Act which are less stringent than or require information different from the requirements of section 4 of this Act or

regulations promulgated pursuant thereto.

Model State Weights and Measures Law, as adopted by the

National Conference on Weights and Measures (1970)

(Almost all weights and measures statutes contain provisions which

are the same as or similar to the ones listed below.

SEC. 2. SYSTEMS OF WEIGHTS AND MEASURES . —The system of weights and measures in customary use in the United States and the metric system

of weights and measures are jointly recognized, and either one or both of

these systems shall be used for all commercial purposes in the State of

• The definitions of Dasic units of weight and

measure, the tables of weight and measure, and weights and measures equivalents as published by the National Bureau of Standards are recog- nized and shall govern weighing and measuring equipment and transactions

in the State.

SEC. 33. BREAD . —Each loaf of bread and each unit of a twin or multiple loaf of bread made or procured for sale, kept, offered, exposed for

sale, or sold, whether or not the bread is wrapped or sliced, shall weigh

1/2 pound, 1 pound, 1 1/2 pounds, or a multiple of 1 pound, avoirdupois

weight, within reasonable variations or tolerances that shall be promulgated by regulation by the director: Provided , That the provisions of

this section shall not apply to biscuits, buns, or rolls weighing u ounces or less, or to "stale bread" sold and expressly represented at the time

of sale as such, and that the marking provisions of section 26 shall not

apply to unwrapped loaves of bread.

SEC. 34. BUTTER, OLEOMARGARINE, AND MARGARINE . —Butter , oleomargarine,

and margarine shall be offered and exposed for sale and sold by weight, and

only in units of 1/4 pound, 1/2 pound, 1 pound, or multiples of 1 pound,

avoirdupois weight.
96 COMMERCIAL WEIGHTS AND MEASURES

Model State Weights and Measures Law (continued)

SEC. 35. FLUID DAIRY PRODUCTS . —All fluid dairy products, including but

not limited to whole milk, skimmed milk, cultured milk, sweet cream, and buttermilk, shall be packaged for retail sale only in units of 1 gill, 1/2 liquid

pint, 10 fluid ounces, 1 liquid pint, 1 liquid quart, 1/2 gallon, 1 gallon,

1 1/2 gallons, 2 gallons, 2 1/2 gallons, or multiples of 1 , gallon : Provided , That packages in units of less than 1 gill snail oe permittee;: And provided

further , Tnat sour cream and yogurt shall be sold in terms ot .veignt, and sour cream snail be packaged for retail sale only in units of ^ , 8, 12, 16,

32, 64, and 128 ounces avoirdupois. The effective date of the requirements

for the sale of sour cream and yogurt by weight shall be July 1, 197i.

SEC. 36. FLOUR, CORN MEAL, AND HOMINY GRITS .--When in package form,

and when packed, kept, offered, or exposed for sale or sold, wheat flour,

whole wheat flour, graham flour, self-rising wheat flour, phosphated wheat

flour, bromated flour, enriched flour, enriched self-rising flour, enriched

bromated flour, corn flour, corn meal, and hominy grits shall be packaged

only in units of 2, 5, 10, 25, 50, or 100 pounds, avoirdupois weight:

Provided , That packages in units of less than 2 pounds or more than 100

pounds shall be permitted.

United States Code 1964 Edition

15 U. S.C. 204 - Metric System Authorized

It shall be lawful throughout the United States of America

to employ the weights and measures of the metric system;

and no contract or dealing, or pleading in any court, shall

be deemed invalid or liable to objection because the weights

or measures expressed or referred to therein are weights

or measures of the metric system. (R. S. § 3569. ) (Derivation: Act July 1866. ch. 301, Section 1, 14 Stat. 33 9.)
SUPPLEMENT 97

Excerpt from the Report of the 47th National Conference on Weights

and Measures 1962, NBS Miscellaneous Publication 244

JAPAN'S TRANSITION TO THE METRIC SYSTEM

By Mitsuo Tamano, Director, National Research Laboratory of

Metrology, Tokyo, Japan

It is a great honor for me to have been invited to this Conference

and to have an opportunity to speak to you. I would like to report

today on the recent transition to the metric system in Japan. The main

reason why I chose this subject is that Japan, as a nation which has

converted its confused measuring systems to the metric one, has a

great interest in the advancement of the metric system in the United

States. I think my brief address might give you further information

useful in your examination of the adoption of the metric system.

The weights and measures in all of Japan have been regulated by

one law. This law, the "Measurement Law" we call it, controls various

kinds of measuring instruments and devices when these are manufactured, repaired, and sold. At the same time, the "Measurement Law"

establishes the legal measuring units and, in commercial transactions

and certifications, only these units are permitted. Since January 1, 1959, the metric system has been the unique measuring system authorized in Japan. Of course, there are some exceptions in the period

of transition in which units of nonmetric systems can be used, as well

as the metric ones. I will discuss these exceptions later. First I will give you a brief history of the advancement of the metric

system in Japan. It was in 1891 that the regulations of weights and

measures were established for the first time in the form of law. Six

years earlier, Japan had already decided to sign the Treaty of the

Meter, and the Treaty had been enacted in 1886. In 1890, Japan re- ceived the prototype meter and kilogram from the International Bureau of Weights and Measures in accordance with the Treaty.

In the law of 1891, the traditional measuring units "shaku" and

"kan" were taken as the fundamental units. At the same time, in this law the use of the metric system was approved, and the conversion

factors between these two systems were also fixed. This law came into

effect in 1893, the same year in which your country approved the use of the metric system and defined the yard and pound in terms of the

meter and kilogram.

Since then, there have been several amendments in this old law,

and in 1909 the units of the foot-pound system were adopted also as

legal. So, since 1909, Japan had three measuring systems approved

as legal. The actual measurements became more and more complicated and troublesome, and a desire to unify these measuring units

arose. In 1919, the Ministry of Agriculture and Commerce set up a Committee for Weights and Measures and Industrial Standards to in- vestigate which measuring system was to be adopted in Japan and to study procedures for pushing the plan.

According to the advice of the committee, the Ministry decided to revise the old law and prepared a bill in which the metric system was taken as the unique measuring system. The bill passed the Diet in March 1921, and the revised law was promulgated in April of the same

year. The date of enforcement of this law fixed by the Imperial

Ordinance was July 1, 1924. But in the same Imperial Ordinance, the use of measuring units other than those of the metric system was also ^permitted as a transitional measure.
COMMERCIAL WEIGHTS AND MEASURES

47th NCWM (continued)

The compulsory changeover to the metric system was to take place

in two steps. In the first step, government offices, public services, and

other leading industries were required to change their system to the

metric one in 10 years. In the second step, all actives and enterprises

other than those mentioned were required to convert during the second

decade.

With these legislative arrangements, various preparative actions for

the changeover to the metric system started. In education or public

services such as railroads, postal services, gas, and city water, in which

the changeover was possible by administrative directive, the conversion to the metric system began gradually. The promotion in this area was carried out positively with the aid of the national and local governments and the Japanese Weights and Measures Association. The

preparation for the changeover proceeded rather smoothly at the be- ginning. But as the date of legislative compulsory changeover drew

near, the opposition gradually became large. The opponents of the

metric system believed that the adoption of a foreign measuring system

would have a bad influence on the national sentiment, cause disloca- tions in the public life and needless expense of the nation, prove dis- advantageous for foreign trade, and hurt the national language and

classics. They claimed that the 1921 law had been made while the

nation did not fully realize its consequences. At that period Japan

had a very difficult time in foreign affairs, nationalism became powerful throughout Japan, and the opposition to the changeover became

furious beyond all reason. On the other side, the preparations in the official services and lead- ing industries were not sufficient for the complete changeover, so in 1933, just one year before the compulsory changeover specified for the

first group, the government postponed the date of conversion another

5 years for the first group and 10 years for the second group.

This resulted in the disappointment of those concerned with pro- moting the changeover to the metric system. A second postponement

followed the first postponement. After the first postponement, the

oppositions to the metric system became more and more strong.

Pressed by these oppositions, the Investigating Committee for Weights

and Measures System, newly organized in the government, advised

in 1938 that the "Shaku-Kan" system should be adopted as well as the

metric one. Thus, the intention of the 1921 law of adopting the metric system

as unique was largely changed. The Imperial Ordinance was revised

in 1939. This revision did not exactly follow the committee advice,

but it allowed customary units to be used in special cases indefinitely

that is, for special historical objects, houses, or treasures. Real estate and houses were allowed the customary units for the time being. The

compulsory enforcement of the other items was postponed until December 31, 1958. But in spite of these obstacles, the state textbooks

in primary school had been adopting the metric system since 1925. In Japan, primary school education is compulsory, so at the time of

present changeover in 1959 the persons who were not over 40 years old

had been educated under the metric system. The number of these—the

"metric population," if I may so call them—amounted to 56 million

that means 63 percent of the whole nation. Thus, almost all of the

people had come to know the metric system regardless of what they

used in their daily life.
SUPPLEMENT

47th NCWM (continued)

The defeat of our country in 1945 brought considerable confusion in many respects because of the shortage in living necessities. But as the recovery proceeded, the economic activities gradually grew larger,

and measuring instruments lost during the war were needed. It was

just in this period that we could unify our confused systems to the

metric one, but unfortunately our leadership for the unification and

promotion among the nation was not strong enough to push the idea. We really regret that we lost our most suitable chance at that time.

After the war, foreign armies and their families came and stayed in our country, and many materials for economic rehabilitation were

imported from America or England. Because of this, the use of the

foot-pound system in our country gradually increased. Materials pre- viously sold in the metric system changed their indications to the foot- pound system—for example, gasoline from liter to gallon, cloths from

meter to yard. Again we came to use a mixture of the three systems,

Shaku-Kan, foot-pound, and meter-kilogram.

Meanwhile, there arose the necessity to revise the old weights and

measures law completely, because it had become partly out of date. In the deliberation of the revision of the old law, the committee members agreed unanimously to unify the confused system to the metric

one. It was very fortunate that the leaders of the occupation armies

also believed that it was reasonable to adopt the metric system that had

already spread widely in Japan.

The new "Measurement Law" passed the Diet in 1951, was promulgated in June, and enforced on March 1, 1952. The measuring units in this new law were based on the metric

system, and the use of the Shaku-Kan and foot-pound systems were

allowed transitionally with some exceptions until December 31, 1958,

the same date set by the old law after the postponement as the compulsory conversion day.

There was no serious opposition to this bill in the Diet. However,

promotion activities were not undertaken immediately, as there was

thought to be ample time before the conversion. But from the earlier

bitter experiences, we. felt the need of a strong campaign for the pro- motion of the metric system lest we should repeat the same failure as

before. So we organized the Metric System Promotion Committee in August

1955 and began to take practical action in preparing for the conversion. This committee is not an official one, but is composed of national

and local government officials, scholars, members of the Japan Weights

and Measures Association, and other representatives from firivate organizations.

Starting in 1956, the Ministry of International Trade and Industry

shared a part of its expenses, and the promotion became more active

in many fields. Even so, the largest amount subsidized by the Ministry was not more than $24,000 a year. In the first step, the committee tried to deepen the nation's understanding of the metric system

in general, and issued many pamphlets and posters. The information

media, such as newspapers, radio, and TV, were also cooperative in

this compaign. Though the money available for the committee was

limited, it could do many things effectively with the aid of these co- operating organizations.

The committee thought the best way to realize the compulsory

changeover smoothly was to accomplish as much of the actual transition as possible before the specified day of transition. First, the

committee attempted to convert to metric units the dealings of foodstuffs and cloths where the traditional system had been predominant,

thus making the metric system familiar to the people through then- daily shopping. The committee maintained close contact with various

commercial bodies, especially department stores, which have great in- fluence in cities upon the customers as well as the manufacturers and

wholesale dealers, on account of their large-scale trading.
COMMERCIAL WEIGHTS AND MEASURES

47th NCWM (continued)

On the other hand, the committee issued monthly pamphlets, "Way

to the Metric System," for the general campaigns of metric system pro- motion. These pamphlets were designed to help the local campaigner

to promote the metric system and were delivered to each city, town,

and village free of charge.

An early fruit of this campaign was in the changeover of selling

confectionery by the gram instead of by the, former Monme in the

Shaku-Kan system in Tokyo department stores since the first of September 1956. The success of confectionery sales was followed by the

conversion of other foodstuff sales to the metric system. Gradually

this conversion extended to the other goods. While the department

stores began to sell goods in metric units, the fish or vegetable wholesale markets also began to use the metric system. Thus, the changeover to the metric system proceeded in many commercial transactions

without waiting for the legal enforcement day.

The information industry, while cooperating with the Metric System Promotion Committee, organized their own planning committees

and studied how to use the metric system in newspapers, radio, and

TV.

For example, NHK, which has the largest radio and TV networks

in Japan, published a brochure, "The Guide to the Metric System

Adoption, and started to use the metric system in radio and TV

before the legal changeover date. The other information media took

the same stand. This movement could not have been imagined during the preparatory period of the 1930's, and we cannot overestimate the role that the

information media played for conversion in the past seven years. On the government side, the bill "Metric Unit Law to Coordinate

Metric Revisions in Other Laws" was drafted to change the nonmetric units used in other laws and regulations to metric ones. This

law passed the Diet in 1958 and was promulgated. The biggest diffi- culty encountered was the rewriting of the registration list of land

and buildings. As to this changeover, in the ordinance based on the

Registration Law of Real Estate, the conversion is expected to be

completed by March 31, 1966, and the rewriting already started in 1960. The metric Industrial Standards of constructing materials for

houses and furniture were also introduced, and a new module of Japanese houses based on the metric system was also decided.

In industry, at the time of resumption of the metric campaigns in 1955, the percentages of adoption of the metric system differed for

each enterprise—for example, in electric, gas, and city water enter- prises 95 percent, chemical industry 90 percent, metal working in- dustry 80 percent, machine industry 70 percent, textile industry 60

percent. The average of other industries was 60 percent. Among

those which were still nonmetric, there were, for example, screw and

pipe size in the machine industry and raw cotton and raw wool in the

textile industry.

In industrial fields, the legal regulations were relatively few, but

(1) the indication of quantity of products, (2) measurement for trans- portation or sale, (3) measurement in buying raw material, and (4)

indications of quantity in giving or accepting orders were regulated

by law and required to use metric units. The industrial rationalization and simplification should lead to benefits through the adoption of

the metric system.

So, in spite of the difficulties induced by the large import of goods

from Anglo-American countries just after the war, the percentages of

adoption of the metric system were rather reasonable as mentioned

before.
SUPPLEMENT

47th NCWM (continued)

The ultimate goal of unification of measuring units by the metric

system should be that only the metric system is needed, regardless of

whether the legal regulations are extended or not. But, in practice,

it is difficult to make machines and apparatus metric at once, so here

aguin a course of adopting over a period of time was taken. Industrial standards in Japan are regulated in the Japan Industrial Standards, and these regulations were also revised so as to be based on the

metric system in accordance with the changeover. It was desirable in

this revision to round off the conversion factors between the metric

and nonmetric systems, but these procedures caused many difficulties in other areas, so we made only a few roundings in the present transition. In cases where the values converted to the metric system were

too complicated—for example, for a quarter inch screw—we had to be

satisfied with dropping the expression "inch," yielding in this example

only "14 screw." For some machine tools, the attached scales were changed to metric ones, or some gear mechanisms were inserted to make the machines fit the metric system. In manufacturers' drawings the metric system came gradually to be used. Though in some

areas the changeover in the industrial field is not yd completed, the

movement is expected to proceed steadily. This changeover in in- dustry depended entirely upon the individual cooperation on the part

of business circles, and there has not been any demand for compensation by the government of large expense in making their equipment

metric.

As mentioned before, the educational campaign of spreading the

metric system throughout the nation played an important role in the

present transition, but you should also realize that in Japan most

measuring instruments, even though they were not for metric measuring purposes, were also equipped with metric graduations. So it was

unnecessary to buy new instruments based on the metric system at the

time of transition. This was also very effective in the changeover.

However, in the course of the transition campaign, it turned out

that the average person did not intend to become accustomed to the

metric system as long as older, more familiar systems were indicated

in the same instruments. So the government decided to establish a regulation to abolish the verification and use of instruments with nonmetric indications, and the date of the enforcement of this regulation was set at the end of 1961. This regulation was very drastic, and

many measuring instruments and devices were forced to change their

indications or weighing beams. These changes are expected to be

accomplished in the near future, though they are not complete at the

present.

At the beginning of the transition, the price cards at shops showed

the quantities closest to customary expressions so as to make shopping

convenient, for housewives. For example, meat had been sold per

100 "Monme," which equals 375 grams in the metric system, so they

sold the meat per 400 grams. But these indications were found tin- suitable, because they lost the benefit of the decimal system. Through

the enforcement of the transition, most housewives acquired good

understanding of the metric system and preferred to buy things with

the indication of price per 100 grams or per kilogram.

The complaints during the early period of enforcement disappeared

in these days, with the exception of occasional complaints made by

old-fashioned persons. But we still often express our body weights

by "Kan" according to the custom. And in sports, especially baseball, football, boxing, wrestling, and golf, that are popular in America or in England, the foot-pound system is largely used.
COMMERCIAL WEIGHTS AND MEASURES

47th NCWM (continued)

So the Metric System Promotion Committee published the Conversion Table for weights and measures for the convenience of the

public. The complete conversion, therefore, was not achieved at the

time of transition January 1, 1959. But a survey conducted in February 1959 and in December of the same year in the field of commercial transactions showed the average percentage of compliance

throughout Japan was 85 percent. This means that there remain some elements where nonmetric units are used in daily life, and shows

that we must intensify the campaign to make the nation understand

the system.

In the Measurement Law, any person who has violated the provisions concerning legal units shall be punished with a fine not more

than about $140, but we hope that the transition will proceed smoothly, not by enforcement with the penalty, but through the nation's voluntary using of the metric system.

Of course, in the import and export businesses, exceptions are per- mitted, though the imported goods are regulated by the measure- ment law when traded within Japan. Planes, flight navigation,

weather observation for flight, and the munitions industry remain as exceptions. The reason for the former is that the flight has an inter- national connection, and the reason for the latter is because of the

special circumstances of our country after the war. Land and building measuring remains in transition.

This is the brief review of Japan's transition to the metric system.

To make this system more complete in Japan, and also to unify the

measuring units to one system throughout the world, depend largely on the adoption of the metric system in the United States and Great

Britain. I hope the adoption of the metric system in the United

States and Great Britain will be realized as soon as possible.

Pages 31-37
FORM NBS-114A (1-71)

U.S. DEPT. OF COMM. BIBLIOGRAPHIC DATA

SHEET

1. PUBLICATION OR REPORT NO. NBS-SP-31+5-3

2, Gov't Accession No.

3. Recipient's Accession No.

4. TITLE AND SUBTITLE

U.S. Metric Study Interim Report:

foTnm v r* *i n H Wp> n cr Vi I

- Q anfl Mpa onypc

5. Publication Date July 1971

6. Performing Organization Code

7. AUTHOR(S)

Stephen L. Hatos

8. Performing Organization

9. PERFORMING ORGANIZATION NAME AND ADDRESS

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D.C. 20234

10. Project/Task/Work Unit No. 1+063129

11. Contract/Grant No.

12. Sponsoring Organization Name and Address 13. Type of Report & Period Covered

Interim

14. Sponsoring Agency Code

15. SUPPLEMENTARY NOTES

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

bibliography or literature survey, mention it here.)

This publication, one of a series prepared pursuant to the U.S. Metric Study Act,

explores the impacts metrication would have on commercial weights and measures

activities. More specifically, the report, concerns: (l) the cost of adapting or changing commercial weighing and measuring devices to record and/or indicate in metric

units, and (2) the effects of metrication on state and local weights and measures

jurisdictions

.

17. key words (Alphabetical order, separated by. semicolons) . commerc ial weights and measures. . Internat iona!

.

System of Units; metric conversion; metric system; metric usage; metrication; metrication, attitudes toward; metrication, costs and benefits of; metrication, impact of;

SI; U.S. Metric Study

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