VISITING COMMITTEE ON ADVANCED TECHNOLOGY

National Institute of Standards and Technology

2018 Annual Report

Visiting Committee on Advanced 

Technology

of the

National Institute of Standards and 

Technology

U.S. Department of Commerce

April 2019
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Preface

The Visiting Committee on Advanced Technology (VCAT or the Committee) of the National Institute 

of Standards and Technology (NIST or the Institute) was established in its present form by the 

Omnibus Trade and Competitiveness Act of 1988 and updated by the America COMPETES Act in 2007

and the American Innovation and Competitiveness Act of 2017. The VCAT is a Federal Advisory 

Committee Act (FACA) committee and its charter includes reviewing and making recommendations 

regarding general policy for NIST, its organization, budget, and programs within the framework of 

applicable national policies as set forth by the president and the Congress. This 2018 annual report 

covers the period from the beginning of March 2018 through February 2019. 

The Committee reviews the Institute’s strategic direction, performance and policies, and provides 

the Secretary of Commerce, Congress, and other stakeholders with information on the value and 

relevance of NIST’s programs to the U.S. science and technology base and to the economy. At the first 

meeting of each year, the Director of NIST proposes areas of focus to the Committee and agreement 

is reached on a program for the year. Over the past year, the Committee has been active in assessing 

NIST’s contributions to and progress in the following areas: 

➢ NIST programs in emerging technologies and national priorities 

o Quantum Information Science

o Artificial Intelligence

o Advanced Communications

o Cybersecurity

o Advanced Manufacturing

➢ NIST efforts to strengthen Technology Transfer

o The Return on Investment Initiative

o The NIST-on-A-Chip Program

➢ NIST facility needs and ongoing renovation projects in both Gaithersburg and Boulder

The Committee reviews a significant portion of NIST programs through direct discussion with NIST 

leaders, scientists, and engineers. Reactions and observations of the Committee members are 

presented candidly to the NIST senior management and other attendees at each meeting. This 

feedback encourages continuous improvement in key areas in the overall operation. The Committee 

also visits various NIST laboratories and satellite facilities to discuss research projects directly with 

the technical staff. These laboratory tours help the Committee to assess the impact of NIST research, 

progress towards achieving research goals, the quality of the staff, institutional culture – especially 

related to safety and security - and the efficacy of the facility infrastructure. 

Under the Committee charter, the Director of NIST appoints the VCAT members. Members are 

selected on a clear, standardized basis, in accordance with applicable Department of Commerce 

guidance. Members are selected solely on the basis of established records of distinguished service; 

provide representation of a cross-section of traditional and emerging U.S. industries; and are eminent 
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in fields such as business, research, new product development, engineering, labor, education, 

management consulting, environment, and international relations. No employee of the Federal 

Government can serve as a member of the Committee. Members are appointed for staggered threeyear terms.

Seven new members were appointed during the period covered by this report: Mr. Jay Alexander 

(Keysight Technologies), Mr. George Fischer (Verizon Enterprise Solutions), Dr. Dana (Keoki) Jackson 

(Lockheed Martin), Ms. Katharine Ku (Stanford University), Dr. Mehmood Khan (PEPSICO), Dr. Eric 

Kaler (University of Minnesota), and Dr. Vinton Cerf (Google); three members were reappointed to a 

second term: Dr. Theodore (Tod) Sizer (Nokia Bell Labs), Dr. Allen Adler (HRL Laboratories, LLC), 

and Dr. Waguih Ishak (Corning Incorporated); and one member served two complete terms: Mr. 

William Holt (Intel Corporation Retired).

This report highlights the Committee’s observations, findings and recommendations. Detailed 

meeting minutes and presentation materials are available on the NIST web site at 

www.nist.gov/director/vcat. 
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VCAT Members during the Period Covered by this Report

Dr. Rita R. Colwell, Chair

University of Maryland at College Park 

Term: January 6, 2014 – January 5, 2020

Dr. Allen Adler

HRL Laboratories, LLC

Term: January 25, 2016 – January 24, 2022

Mr. Jay Alexander

Keysight Technologies

Term: May 22, 2018 – May 21, 2021

Dr. Eric Kaler

University of Minnesota

Term: December 21, 2018 – December 20, 2021

Dr. Rodney Brooks

Rethink Robotics

Term: June 1, 2014 – May 31, 2020

Dr. Mehmood Khan

PEPSICO

Term: November 13, 2018 – November 12, 2021

Dr. Vinton G. Cerf

Google

Term: December 21, 2018 – December 20, 2021

Ms. Katharine Ku

Stanford University, Emerita

Term: May 22, 2018 – May 21, 2021

Mr. George Fischer

Verizon Enterprise Solutions

Term: May 22, 2018 – May 21, 2021

Ms. Hemma Prafullchandra

Microsoft 

Term: October 27, 2014 - October 26, 2020

Mr. Michael Garvey

M-7 Technologies

Term: January 23, 2015 – January 22, 2021

Dr. Theodore Sizer

Nokia Bell Labs

Term: August 28, 2015 – August 27, 2021

Dr. Waguih Ishak

Corning Incorporated

Term: January 25, 2016 – January 24, 2022

Mr. David Vasko

Rockwell Automation

Term: February 2, 2017 – February 1, 2020

Dr. Dana (Keoki) Jackson

Lockheed Martin

Term: May 22, 2018 – May 21, 2021

Dr. Gail Folena-Wasserman

MedImmune

Term: January 30, 2017 – January 29, 2020
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Table of Contents

Contents

Preface............................................................................................................................................................... ii

Table of Contents.............................................................................................................................................v

1. VCAT Focus in 2018................................................................................................................................... 1

2. NIST Programs in Emerging Technologies and National Priorities ............................................. 1

2a. NIST and Quantum Information Science.......................................................................................................................1

2b. Artificial Intelligence................................................................................................................................................................3

2c. Advanced Communications..................................................................................................................................................5

2d. Advanced Manufacturing......................................................................................................................................................6

2e. Cybersecurity ..............................................................................................................................................................................7

3. NIST Efforts to Strengthen Technology Transfer .............................................................................. 8

3a. Return on Investment Initiative........................................................................................................................................9

3b. NIST-on-A-Chip Program....................................................................................................................................................10

4. NIST Facility Needs and Ongoing Renovation Projects in Gaithersburg and Boulder ..........11

5. NIST Budget ...............................................................................................................................................11

Appendix A .....................................................................................................................................................13
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1. VCAT Focus in 2018

In 2018, the work of the VCAT was centered around three major themes, the role of NIST in 

emerging technologies and area of national priority, technology transfer, and the facility and 

infrastructure requirements of NIST. The VCAT has long been engaged with NIST’s work in 

cybersecurity and advanced manufacturing and were updated on NIST’s efforts in these areas. 

Additionally, with the administration placing high-priority on areas of emerging technology that 

impact national security and economic competitiveness the VCAT felt it essential to focus on the 

role that NIST is playing in Quantum Information Science, Artificial Intelligence, and Advanced 

Communications. The VCAT received detailed programmatic briefings in all these areas, toured the 

unique NIST facilities and met with key policy makers. In the area of technology transfer NIST has 

undertaken a major effort to strengthen and enhance the transfer of technology from federal 

laboratories, which is known as the Return on Investment Initiative (ROI). The VCAT was briefed 

on NIST’s ROI-related efforts as well as programs to improve the transfer of NIST-developed 

technologies. To continue to track these efforts and bring in additional relevant expertise the VCAT

formed a subcommittee on Technology Transfer. The VCAT was also briefed on the status of NIST’s 

physical infrastructure and laboratory facilities, as well as ongoing renovation projects in both 

Gaithersburg and Boulder. The VCAT believes that the deteriorating state of many of NIST’s 

facilities, the majority of which are over 50 years old could have significant impacts on NIST’s 

ability to remain at the cutting edge of measurement science research. This 2018 Annual report 

summarizes the VCAT’s work, observations, and recommendations related to these topics. 

2. NIST Programs in Emerging Technologies and National Priorities

NIST is well positioned to play a key role in supporting the advancement of multiple emerging 

technologies that will be critical to future national security and economic competitiveness for the 

U.S. The VCAT reviewed NIST plans, which build upon the planning work that the VCAT was briefed 

on in 2017, and its efforts focused on the development of administration R&D priorities and policies 

in the areas of Quantum Information Science, and Artificial Intelligence. In addition, the VCAT had 

the first-hand opportunity to review NIST’s research programs, facilities, partnerships, and 

industry services targeting advanced communications, including efforts focused on public safety 

communications when it visited the NIST Boulder labs in October. Additionally, the VCAT was 

updated on NIST’s continuing efforts to advance and support work in advanced manufacturing and 

cybersecurity. The work of the VCAT on these issues is summarized below.

2a. NIST and Quantum Information Science

Leadership in Quantum Information Science is a key priority for the nation that will have lasting 

impact on national security and our long-term economic competitiveness. NIST’s world-leading 

expertise in quantum science, conducted with academic and industry partners, is furthering the 

development of new quantum measurement technologies upon which U.S. companies can build new 

businesses and services and has positioned NIST to be a key player in the National effort to achieve 

“quantum supremacy”. In 2018 the VCAT reviewed NIST’s engagements in the development of a 
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National Quantum Initiative, and in the ongoing and planned NIST programmatic efforts in this 

space.

Over the past year it was clear to the VCAT that NIST has been effectively working with interagency 

partners in OSTP, DOE, NSF, DOD and other agencies to build a comprehensive National Quantum 

Initiative. The VCAT is pleased to see that NIST’s role in developing the scientific and technical 

foundation upon which a quantum industry can be built is recognized and called out in both the 

National Strategic Overview for Quantum Information Science developed and released by OSTP, as 

well as in the National Quantum Initiative Act which codifies much of NIST’s ongoing role. The NQI, 

which passed the House in September calls on NIST to:

• Continue and expand QIS research and the development of measurement and standards 

infrastructure

• Train scientists in QIS

• Establish or expand existing partnerships or consortia

• Provides OTA for the NQI related activities

• Hold within 1 year a workshop that convenes stakeholders on future measurements and 

standards

• Report to Congress not later than 2 years the results of that workshop

The VCAT believes that NIST is well positioned to succeed in this field, but to ensure that the U.S. is 

able to attain “quantum supremacy” additional resources will be needed. NIST has laid out a very 

well thought out plan for its future work in the area of QIS that focus on the following three 

elements:

• Quantum Engineering: NIST will develop the measurement tools to engineer materials, 

structures, and devices that will be the core building blocks for a broad collection of future 

quantum technologies, including a true quantum computer. With additional resources NIST 

would be able to grow new capabilities at NIST and also expand existing and establish new 

joint institutes and centers of excellence in quantum engineering. NIST’s efforts in quantum 

engineering will help accelerate the establishment of capabilities in quantum-based sensors, 

quantum enabling technologies (e.g. transducers, interconnects), and quantum engineering 

(fabrication and characterization methods). The new metrological tools developed by NIST 

will underpin a robust quantum engineering framework and enable an entire industry to 

tackle core challenges of developing and manufacturing quantum technologies. Program 

elements will fast-track the application of quantum science, leverage advances in quantum 

technology for standards and measurements, and provide U.S. leadership in fundamental 

research into quantum phenomena. 

• Foundational Quantum (Information) Science and Metrology: NIST is positioned to build 

upon its foundational quantum successes such as the quantum logic clock, near quantumlimited amplification of weak signals, and characterization of quantum many-body systems, 
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and the pioneering of quantum simulation. NIST needs the capability to exploit the benefits 

of quantum information science for improved measurement capabilities.

• Quantum SI (Système International d’Unités): Quantum breakthroughs will allow NIST to 

redefine how weights and measures are disseminated, improving accuracy and precision 

while eliminating the costly and time-consuming calibration chains. With the 2019 

redefinition of the SI to one based on laws of nature instead of physical artifacts, additional 

resources will position NIST to exploit its leadership in quantum science to deliver a new 

suite of measurement technologies upon which U.S. companies can build new businesses 

and services.

The VCAT believes that NIST’s focus on quantum engineering will be of significant benefit to overall 

U.S. efforts. In establishing themselves as a world leader in Atomic, Molecular, and Optical science, 

NIST researchers have built unique competencies in quantum engineering and technology. As the 

field matures and opportunities are identified to transition scientific breakthroughs to the 

marketplace, NIST is well positioned to facilitate such transitions. The VCAT believes that at this 

point in the evolution of Quantum Science, pre-competitive consortia would be helpful, and we are 

glad to see that NIST is participating in the establishment of the Quantum Economic Development 

Consortia (QED-C) in partnership with SRI. The QED-C will play an important role in helping 

expand U.S. leadership in global quantum R&D and the emerging quantum industry in computing, 

communications and sensing. With funding from both the government and private-sector member 

organizations, the consortium fosters public-private sector coordination and will help determine 

workforce needs, provide access to technology platforms and processes, foster sharing of 

intellectual property, and other developments required to support the quantum 

economy. However, the VCAT also recognizes that engagement in rapidly developing new markets 

carries certain reputational risks. We are pleased to see that NIST leadership is mindful of these 

risks and is committed to managing them proactively.

RECOMMENDATIONS:

• Quantum SI (Système International d’Unités): NIST has played a crucial role in redefining 

weights and measures allowing improved accuracy and precision while eliminating the costly 

and time-consuming calibration chains. We encourage NIST to work to transfer these 

technologies to industry where they can be leveraged in the next generation of selfcalibrating sensors. 

2b. Artificial Intelligence

Advances in artificial intelligence (AI) promise transformative technologies and scientific 

breakthroughs that will improve our lives in myriad ways, such as driverless cars, smart buildings, 

automated health diagnostics, and improved security monitoring. This disruptive technology will 

also bring with it significant challenges related to workforce, security, privacy, and a host of other 

issues. It is therefore no surprise that this technology area has been identified as a top 

technological priority by the Trump administration. 
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The economic impacts of poorly designed or implemented AI and data systems could be devastating 

to our nation, as skepticism and distrust may cause the U.S. to collectively neglect the potential 

advantages and lose out on the economic gains from AI. To overcome this, we must address the 

widespread concerns about reliability in applications of AI, from self-driving cars to automated 

health diagnostics. Agreed upon measures for AI systems and methods for assessing performance 

are lacking and must originate from a neutral and reputable source. NIST can play an important 

role in the development of these needed tools. The VCAT reviewed NIST’s plans to provide this 

foundation of trust for AI systems and technologies.

NIST efforts in AI are focused on 2 primary lines of effort:

1. Improving confidence in AI: NIST is working to grow and expand its technical capabilities 

in order to develop the rigorous scientific testing necessary for trustworthy and safe AI, by 

both recruiting new FTEs, establishing a visiting fellows program, and working to provide 

training opportunities to NIST staff. NIST will establish trust and confidence in AI by 

creating datasets, testing procedures, and associated tools that allow AI developers and 

users to assess the performance of their systems. Working in close partnership with 

industry will be important to the success of these activities.

2. Drive applications of AI to meet the NIST mission: Scientists across NIST are applying AI 

and machine learning solutions in areas such as Novel materials discovery, biosciences (e.g. 

protein folding), and medical imaging. For instance, AI techniques were recently applied by 

NIST that made possible the computational prediction and discovery of new metal-glass 

material hybrids at speeds 200 times faster than typically possible. The application of AI 

will be further advanced in other NIST research areas, such as the use of AI to improve the 

agility of robots to safely learn and quickly adapt to manufacturing environments in U.S. 

factories. These expanded NIST research capacities will be targeted at building the 

confidence and trust in AI systems necessary for American businesses to take full advantage 

of these transformational technologies. 

The VCAT was provided in-depth briefings on NIST highlighting NIST efforts to date in each of these 

areas. NIST efforts to improve confidence in AI are largely built around the newly established NIST 

Fundamental and Applied Research and Standards for AI (FARSAI) program that is led by the 

Information Technology Laboratory. This program, in the short term, is designed to build the 

machine learning and AI expertise at NIST through AI training, the development of AI computing 

platform, the creation of an AI community of interest, and an AI visiting fellows program. The VCAT 

was particularly impressed with the AI community of interest that has been organized over the past 

year that represents over 50 distinct research projects across all the NIST labs. In long term, the 

FARSAI program will provide the tools and infrastructure necessary to measure and enhance the 

security and trustworthiness of AI systems and machine learning and augment capabilities in 

cybersecurity. 

The VCAT’s exploration of NIST efforts to apply AI and machine learning solutions to different NIST 

mission areas primarily focused on NIST work in advanced materials. An area where AI and 
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machine learning are having a particular impact, NIST has already begun to apply and utilize AI and 

machine learning tools is the Materials Genome Initiative (MGI) program. Early examples of success 

include improved materials modeling, enhanced classification of microscopy images, efficient phase 

diagram measurements, and enabling new materials measurements like strain tensor.

The VCAT is pleased to see the level of engagement and visibility that NIST has had in the 

development of the administration’s priorities around AI, with key roles on the Office of Science and 

Technology Policy’s Select Committee on Artificial Intelligence, as well as being a co-chair of the 

National Science and Technology Council’s Subcommittee on Artificial Intelligence. 

RECOMMENDATIONS:

Concerns regarding trust and safety of AI could limit adoption and place the US at a competitive 

disadvantage. NIST work to improve confidence is crucial to the well-planned adoption of AI. 

To accelerate research, increase utility for practitioners, and instill public confidence, NIST could 

play an important role in providing a framework and standards for validation of developing and 

existing Free and Open Source Software libraries in the AI/ML domain (currently this is done via 

crowdsourcing). NIST could also create new and credible ideas for evaluating the reliability of 

AI/ML processes, to include demonstrations of detection of ML failure modes.

2c. Advanced Communications

The VCAT held its October meeting at NIST’s Boulder campus and as such had the opportunity to do 

an in-depth exploration of NIST’s newest research laboratory, the Communications Technology 

Laboratory (CTL). The VCAT was briefed on the programs of the CTL and toured the unique 

facilities that NIST has developed to support advanced spectrum measurements. 

Secure, reliable, high-speed wireless communications are critical to the economic and national 

competitiveness of the United States. Advanced communications are enabling dramatic changes in 

how consumers, manufacturers, governments and others provide and consume information, 

transact business, provide and use essential services, and shop, among other tasks. Gartner 

forecasts that there will be approximately 20.8 billion connected devices by 2020, up from the 

estimated 6.4 billion connected devices currently in place. This insatiable societal demand for 

connectivity will require significant advancements in communication technologies. 

NIST’s role in advanced communication includes:

• the National Advanced Spectrum and Communications Test Network (NASTCN), which is 

organizing a national network of Federal, academic and commercial test facilities that will 

provide the testing, modeling and analyses needed to develop and deploy spectrum-sharing 

facilities;

• the Public Safety Communications Research (PSCR) program, which is leading the 

development of the standards and performing the associated research, development and 

testing to provide the public safety community access to a dedicated, nationwide LTE 

broadband network (FirstNet);
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• Developing and improving the measurement tools and technologies that will 

improve spectrum utilization, and the novel spectrum sharing techniques, to address the 

current spectrum crunch; and

• Providing the measurements and data needed for the development of the next generation of 

wireless communications systems and the improvement of optical communication 

technologies.

While CTL is NIST’s smallest lab, the VCAT feels strongly that the role it plays in advancing 

spectrum sharing and enabling next generation communications technologies to take hold (like 5G 

communications) is of critical importance now, and the need will only continue to grow in the 

future. 

2d. Advanced Manufacturing

A partner to the U.S. manufacturing sector for more than a century, NIST has a proven track record 

in delivering useful tools and technical assistance that existing manufacturers and aspiring startups need. Timely technical assists from NIST can help the nation’s manufacturers to invent, 

innovate and create new products and services more rapidly and more efficiently than their 

competitors around the world. NIST works with the nation’s manufacturers to invent, innovate, and 

create through precision measurements, development of advanced materials, and collaborative 

partnerships. In FY2018 the VCAT was provided an update on NIST activities focusing on advanced 

manufacturing, specifically examining the collaboration between the NIST programs.

The estimated support of manufacturing in the laboratory programs is $172 million, which is over 

20 percent of the Scientific and Technical Research and Services budget and combined with $155 

million from the Hollings Manufacturing Extension Partnership Program (MEP), it is approximately 

one-third of the total non-construction budget. The following NIST programs all contribute to 

NIST’s support for advanced manufacturing:

• NIST Laboratory Programs collaborate with industry, academia, and other government 

agencies to develop the measurement and standards solutions to accelerate the 

development of the next generation of manufacturing technologies. A few key areas of NIST 

activity include robotics, Materials Genome Initiative, emerging technologies, and smart 

manufacturing.

• The Hollings Manufacturing Extension Partnership (MEP) facilitates and accelerates the 

transfer of manufacturing technology in partnership with industry, universities and 

educational institutions, state governments, NIST and other federal research laboratories 

and agencies.

• Manufacturing USA consists of linked Manufacturing Innovation Institutes with common 

goals, but unique concentrations. Here industry, academia, and government partners are 

leveraging existing resources, collaborating, and co-investing to nurture manufacturing 

innovation and accelerate commercialization.
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The VCAT was pleased to see examples of collaborations between the NIST research programs and 

the MEP and Manufacturing USA programs, which showcases the increased impact that NIST can 

have on an area when it takes a “One NIST“ approach, although the VCAT would note that there is 

still room for enhanced two-way collaboration and partnership. One particular area of opportunity 

is in workforce development. A number of the emerging technology areas that NIST is engaged in 

will have significant implications for the U.S. workforce, either requiring retraining in the case of 

mitigating the impacts of automation and AI, or in helping ensure the availability of a technically 

focused workforce in the case of microelectronics or quantum science and technology. Partnerships 

with MEP and Manufacturing USA give NIST a unique asset to potentially address these unique 

workforce challenges and NIST could contribute to filling the need for improved standards in 

certification and credentialing in advanced manufacturing.

RECOMMENDATIONS:

US Advanced Manufacturing branding: The US lacks a single program to focus advanced 

manufacturing, such as Germany’s Industrie 4.0, and China’s China 2025. There are dozens of 

advanced manufacturing programs around the world and the US seems alone in not having a 

common focus, even though the significant contributions NIST has done on Manufacturing USA, 

MEP, National Strategic Plan for Advanced Manufacturing, NIST Cyber security framework and the 

“Current Standards Landscape for Smart Manufacturing Systems” exceeds the body of work of

nearly every national program. A common program focus would increase the impact, collaboration 

and consistency of US efforts and enable the US to be more competitive worldwide.

2e. Cybersecurity

In 2018 the VCAT reviewed NIST’s ongoing efforts in cybersecurity and discussed the potential 

ramifications of attempts to expand NIST’s roles in cybersecurity, including legislation that would 

give NIST an audit and quasi regulatory function. 

NIST cultivates trust in technology through cybersecurity through a program that revolves around 

research, development, and transition to practice with industry. The VCAT was briefed on the 

progress that NIST has made in cryptography, risk management, and IOT cybersecurity:

• In cryptography NIST is leading a world-wide competition in quantum resistant 

cryptographic standards. NIST has received and is reviewing with industry and academia 

worldwide about 70 algorithms and supporting technical packages. To adequately review 

these standards, NIST has increased its capabilities through additional funding and hiring of 

eight new cryptographers. NIST has also been updating its cryptography testing and 

accreditation program to keep pace with the growing number of requests. NIST has also 

been growing cryptography capabilities as they relate to blockchain applications and 

lightweight cryptographic algorithms.

• In the area of risk management, NIST is building better mechanisms to understand and 

manage cybersecurity risks. NIST has been working to incorporate privacy and security 

controls throughout its risk management program. NIST continues to build its system 

lifecycle to support strong risk management. Supply chain is another area of importance, to 
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understand not only what, but also where the parts and pieces came from that are being 

employed into digital capabilities.

• In the area of IoT cybersecurity the NIST’s laboratories are working on definitions, 

guidelines, and best practices, as well as coordination of standards across sectors of the 

digital economy. In addition, the NIST Cybersecurity Center of Excellence is working on IoT 

use cases. For example, the NCCoE staff worked with over 80 percent of the manufacturers 

in the U.S. on security, architectures, and capabilities for IoT in health care environments 

with wireless infusion pumps.

It is clear that NIST continues to have significant impact in the area of cybersecurity. It is the VCATs 

position that NIST’s ability to have this success is directly linked to its ability to convene and work 

directly with stakeholders across the entire industry. The VCAT is extremely concerned that adding 

auditing, and other more regulatory responsibilities to NIST, will damage the trust that the 

community has in NIST will ultimately jeopardize NIST’s ability to work effectively with all 

stakeholders. 

Additionally, the VCAT is concerned that the NIST programs in this space are already overstretched, 

and that NIST will not be able to keep up with the increasing demands to assess and mitigate the 

ever-changing cyber threat without additional resources. 

RECOMMENDATIONS:

NIST’s ability to have this success is directly linked to its ability to convene and work directly with 

stakeholders across the entire industry. Auditing, and regulatory responsibilities may undermine 

NIST ability to work with stakeholders.

While NIST utilizes a robust public comment process for the cybersecurity standards it develops, 

the process is relatively inflexible and would benefit by bringing trusted industry partners into the 

development and review process earlier, enabling more timely, targeted and balanced products 

that account for the most current threats and adopt the latest approaches to cyber defense, 

resilience and risk mitigation within the operations of the engineering and production enterprise. 

This landscape is ever changing and transforming in the digital enterprise.

3. NIST Efforts to Strengthen Technology Transfer

Enhancing and improving the processes and policies that govern technology transfer both for the 

federal system and for NIST specifically remains a top NIST priority. In 2018 the VCAT was actively 

engaged in the launch and implementation of NIST’s Return on Investment Initiative. The VCAT 

was also briefed on a new pilot project being launched at NIST to enhance the transfer and 

commercialization of highly advanced quantum-based NIST measurement technologies – the NIST 

on A Chip Program. 

To provide further advice on both of these issues the VCAT established a subcommittee on 

technology transfer at the request of Dr. Copan to review and provide recommendations on NIST’s 
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technology transfer-related programs. The subcommittee is chaired by Ms. Katharine Ku and 

addresses the following charge:

1. Review NIST’s current technology transfer policies and practices, and provide their 

individual technical assessments on the principles that should drive these policies and 

practices for effectively engaging the business community and communicating with 

stakeholders; 

2. Assess NIST’s performance in the development and dissemination of work products and 

knowledge and recommend improvements. Specific areas that the visiting technical experts 

should address include the development and use of intellectual property and collaborative 

research. 

3a. Return on Investment Initiative

In 2018 Dr. Copan outlined for the VCAT his vision for the Return on Investment (ROI) Initiative. For 

NIST the Return on Investment Initiative objectives are to assess, streamline, and accelerate the 

transfer of technology from Lab-to-Market by identifying critically needed improvements to federal 

technology transfer policies, practices, and efforts. The federal research and development investment 

is approximately $150 billion per year, with one-third invested in 300 federal laboratories and twothirds invested at university and industry R&D institutions. To produce economic gain and expand a 

strong national security innovation base, the results of this investment must be put to productive use 

through applied research and services to the public as well as tech transfer to private companies to 

create new products and services.

Over the course of the year NIST conducted broad stakeholder outreach with a kick off meeting in 

May at the U.S. Institute of Peace, a request for information, and a series of 4 listening sessions across 

the country to gather input on the policy, regulatory, and legislative changes that would have the 

most impact on strengthening and making the U.S. technology transfer system more efficient and 

effective. Based on this community feedback NIST plans to publish a Green paper outlining a series 

of recommended potential actions for public comment in December.

In August 2018, a VCAT Subcommittee on Technology Transfer was established. The subcommittee 

developed recommendations focused on strengthening NIST’s delivery of advanced technology to 

enhance national security and improve our Nation’s economic competitiveness and quality of life. 

The Subcommittee was specifically charged to:

• Review NIST’s current technology transfer policies and practices, and provide the 

Subcommittee’s recommendations on the principles that should drive these policies and 

practices for effectively engaging the business community and communicating with 

stakeholders; 

• Assess NIST’s performance in the development and dissemination of work products and 

knowledge and recommend improvements. Specific areas that the Subcommittee should 

address include the development and use of intellectual property and collaborative research.
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One of the first task undertaken by the subcommittee was to review and provide feedback on the 

Draft ROI Green Paper. The VCAT was briefed on the work and recommendations of the 

subcommittee at the February 2019 meeting. The full report of the subcommittee is attached as 

Appendix A. The VCAT voted unanimously to adopt the subcommittee’s report and endorse its 

recommendations to NIST.

RECOMMENDATIONS:

• The VCAT recommends that NIST consider the recommendations of the VCAT Subcommittee 

on Technology Transfer as it develops its plans to implement the recommendations outlined 

in the Return on Investment Green Paper.

3b. NIST-on-A-Chip Program

During the October meeting the VCAT was provided with an overview of the NIST on A Chip (NoAC) 

program, an effort NIST is making to transfer the breakthroughs that it has made in quantum 

metrology into commercially viable technologies that can be manufactured at scale providing NIST 

quality standards and sensors directly where our customers need them, thereby eliminating the 

need for a costly calibration chain. Currently NIST calibrates about 14,000 artifacts per year for 

industry. NIST must be able to maintain traceability chain over time to ensure measurement 

certainties, which is a very expensive modality. Being able to move into quantum-based chip scale 

standards will be transformative both for NIST and industry. NIST has already had some initial 

successes with developing and commercializing chip scale technology. The chip-scale atomic clock 

created in Boulder has been commercialized and now it sits in cell phone towers all over the 

country. This one component plays a critical role, directly providing the accurate timing needed for 

a multi-trillion-dollar industry. Currently NIST has 24 different quantum SI chip-scale devices in 

development. Some are more mature than others, but NIST either has existing CRADAs with 

industry or is negotiating partnerships for all of these technologies. The current portfolio of NIST 

efforts covers a broad range of measurement needs including resistance, voltage, temperature, 

radiometry, pressure, vacuum, humidity, and laser power.

To more effectively and intentionally facilitate the transfer and commercialization of these NoACbased technologies NIST has created a portfolio management-based approach that will bring 

together expertise from the labs, the Technology Partnerships Office, the newly formed Technology 

Discovery Office, and the Business Operations Office. This team will be building an R&D roadmap, 

conducting targeted outreach to potential users, putting in place the necessary agreements, and 

creating the process management tools and systems to enable efficient workflow across the 

different organizations involved. NIST will be evaluating the performance of this pilot over the 

course of the next year, and if successful will apply it more broadly across NIST. 

The VCAT is excited about NIST efforts in this area and looks forward to reviewing progress during 

the coming year.

RECOMMENDATIONS:

Tech transfer of NIST developed technology though tech transfer programs, such as NIST on a Chip,

are critical to US adoption of these technologies and serves as a feedback mechanism to ensure NIST 

is working on technologies that can have real world application.
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4. NIST Facility Needs and Ongoing Renovation Projects in Gaithersburg and Boulder

In 2018 the VCAT was briefed on the state of NIST’s physical infrastructure, NIST’s ongoing 

renovation projects in both Boulder and Gaithersburg, and the master site plans for future 

construction projects. The VCAT was pleased to see that 2018 enacted budget for NIST provided 

the necessary funds to complete the renovation of the Radiation Physics building in Gaithersburg. 

However, the VCAT remains extremely concerned with the deteriorating infrastructure in both 

Boulder and Gaithersburg. The $40M requested for construction and renovation of facilities in the 

President’s FY 2019 budget is woefully inadequate. The majority of NIST’s facilities were 

constructed in the sixties and decades of deferred maintenance due to chronically low renovation 

and repair budgets have led to accelerated facility deterioration. 

The long-term facility renovation plans presented to the VCAT for the Boulder and Gaithersburg 

campuses are sound. The VCAT strongly urges Congress to provide funding at a level that can both 

support substantial progress in ongoing NIST Construction projects as well as provide adequate 

funding for maintenance and major repairs. Based on the current facility footprint it is estimated 

that NIST should be spending close to $120 M a year to keep up with facility maintenance costs., 

and to complete a major portion of ongoing renovations in Boulder, an additional $69M in FY2019 

would allow NIST to complete renovation of Wing 5 in Boulder. 

5. NIST Budget 

NIST Budget (Dollars in Millions) (Under Continuing Resolution) 

FY 2019

President’s FY 2019 FY 2019

FY 2018 Budget House Senate

Enacted Request Mark Mark

STRS $724.5 $573.4 $720.0 $724.5

Laboratory Programs 628.0 516.6 647.7 628.0

Corporate Services 17.3 11.6 17.3 17.3

Stds Coord & Special Pgms 79.2 * 45.2 55.0 79.2

ITS $155.0 $15.1 $145.0 ** $155.0

Hollings Mfg Ext Partnership 140.0 0.0 140.0 140.0

Manufacturing USA 15.0 15.1 5.0 15.0

CRF $319.0 $40.5 $120.0 $158.0

 Construc & Major Renovations 255.0 0.0 TBD 94.0

Saf, Cap, Maint & Maj Repairs 64.0 40.5 TBD 64.0

Total, NIST Discretionary 1,198.5 629.0 985.0 1,037.5

Mandatory

* Includes $2.2M Baldrige Performance Excellence Program funding.

** With $2M recission of prior year unobligated balance.
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The VCAT was briefed on the FY 2019 President’s Request for NIST and updated on budget 

discussions with Congress. Unfortunately, no progress has been made on the enactment of a 2019 

budget at the time of this report. The VCAT again offers the following observations:

• Operating on continual resolutions for prolonged periods of time makes planning difficult 

and as no new programs can be initiated. It makes it extremely difficult to meet increasing 

demands from stakeholders in industry and across government. 

• As the VCAT has noted in the past NIST is under resourced compared to the increasing 

number of important measurement and standards challenges it must address in areas like 

quantum science, AI, cybersecurity, IoT, etc. that will directly impact the future 

competitiveness of the U.S. With a 47:1 return on investment1, adding resources to NIST is 

sound long-term investment for the U.S. 

• The Committee is concerned about the decreasing support for the NIST infrastructure and 

facilities. As previously noted, recommended support for facility maintenance is more than 

double that in the FY 2019 Budget Request. Without adequate support, NIST facilities will 

fall further into disrepair, undermining the science and engineering work of the NIST staff 

and causing increased safety risks. The Committee also notes that it is likely that repair and 

maintenance funds are needed but also funds for renovation to bring in the latest 

technologies and methods. Without additional funds, resources will be increasingly pulled 

from programmatic resources, compounding the already steep cuts outlined in the FY2019 

request.

• In our experience, uncertainty and the threat of decreasing resources is likely to cause highperforming staff to look for other opportunities. Because of this, the Committee is 

concerned about attrition of NIST’s outstanding research staff, which is so critical to its 

success and mission delivery. In addition, since NIST’s exceptional scientists are a 

significant recruiting tool, losing those top researchers because of budget uncertainty would 

likely have significant long-term effects. 

The VCAT was briefed by NIST leadership on the effects of the Government Shutdown and the steps 

that the agency was taking to bring operations back to normal. The VCAT applauds the resilience 

that NIST has shown during this unfortunate situation. Shutdowns like this are highly disruptive. 

For example, NIST leads US participation in critical international standards setting forums and 

events for technologies such as 5G. Failure of the US to engage in a timely manner could result in 

US industry, economy and national security being significantly disadvantaged vs. foreign 

competitors and adversaries. We recommend that critical engagements be identified and permitted 

under policy and statute to continue during government shutdown periods.

 

1 https://www.nist.gov/director/summary-nist-laboratory-economic-impact-studies
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Appendix A

Subcommittee on Technology Transfer

NIST Visiting Committee on Advanced Technology (VCAT)

The Return on Investment (ROI) Initiative for Unleashing American Innovation is a bold move by 

NIST and the Department of Commerce to begin a national conversation about how to maximize the 

benefits of Federal investments in science and technology. NIST’s goal is to remove barriers, reduce 

friction, and create incentives to innovation. Innovation expands the U.S. entrepreneurial 

ecosystem and attracts private sector investment in new products, businesses, and industries. 

These benefits create value for Americans and improve the human condition for people all over the 

world. 

The VCAT Subcommittee on Technology Transfer commends NIST on a very well organized, clear 

draft Green Paper based on the feedback from the U.S. stakeholder community. It identifies both 

short-term and long-term goals, and implementation strategies that would enable these goals to be 

met. The Green Paper is an important contribution to NIST’s efforts to develop a roadmap for 

increasing the outcomes from the Federal government’s investment in research and development.

General Comments:

The Subcommittee believes that the overriding–and perhaps most difficult–goal of the ROI initiative 

is to align incentives so that all stakeholders have a strong interest in maximizing the transfer of 

Federally funded science and technology to the private sector. 

• Companies see the potential value of accessing the significant intellectual and physical 

assets that Federal laboratories and universities possess in order to be able to develop new 

and improved products. Regrettably, companies–from small to large–often find it 

challenging to engage Federal laboratories and universities in technology transfer. The 

proposed changes detailed in the Green Paper should make it easier for the companies to 

obtain the benefits of Federally funded research. 

• Universities believe that formal technology transfer is part of their mission to transfer the 

results of their research to the public for society’s benefit. Universities recognize that 

effectively licensing inventions and building an entrepreneurial ecosystem can help regional 

economic development and provide jobs for graduates. Royalty revenues are returned to 

the inventors, and to universities to fund further research and education. Clarification of 

Bayh-Dole provisions will make it easier for universities to engage with companies. 

• The National Competitiveness Technology Transfer Act (NCTTA) of 1989 explicitly 

establishes technology transfer as a mission of Federal laboratories. Execution of that 

mission needs to be an important part of the laboratories’ performance evaluation in order 

to maximize the transfer of Federal laboratory science and technology to companies. The 

desired essential culture change is to create a more entrepreneurial, flexible environment 

that supports and encourages effective technology transfer. New flexible partnering 

models are critical for increased private sector engagement with the Federal laboratories. 

These models should be crafted after there is clear articulation and consensus on what the 
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intended outcomes from these new approaches should be and should be consistently 

adopted across the Federal laboratory system. 

Equally important, Federal laboratories need to create a more entrepreneurial 

environment. In recent years, universities have recognized that to do technology transfer 

well, they must embrace and encourage entrepreneurial activity at all levels of the 

organization. In tandem, they have learned how to manage both individual and institutional 

conflicts of interest. Federal laboratories should do the same: develop Federal employee 

educational entrepreneurship programs, encourage entrepreneurial activity and manage 

conflicts of interest. Most Federally funded technologies are very early stage and inventor 

participation in transferring the technology to the private sector is critical to successful 

technology development. If the Federal Laboratories can develop a flexible mechanism to 

enable inventors to be actively involved in technology transfer, there would be a much 

higher return on investment of our Federal research dollars. 

Priorities:

The Subcommittee felt that the following proposed actions should be the highest priority to 

address:

1. Strategy 1. Identify regulatory impediments and administrative improvements in 

Federal technology transfer policies 

Intended Action 6 – Strengthen Technology Transfer at Federal Laboratories.

a. The Secretary of Commerce must have authority to issue regulations and 

implement policies government-wide, under Stevenson-Wydler. 

b. The Secretary of Commerce needs to confirm the mission requirement for all 

Federal entities engaged in research and development to contribute to US 

innovation. 

The Subcommittee unanimously believes this Intended Action is the most important priority. The 

Federal R&D agencies must truly believe that effective technology transfer is a priority for the 

country and make strategic cultural changes to show their commitment. The ability of these 

entities to make this cultural change will be the driver of success. Prior, good faith efforts to 

fundamentally change how Federal laboratories engage with outside groups have failed due to the 

lack of support and flawed approaches to garner such needed support. Failure to achieve cultural 

change and buy-in will undermine or, at the very least, dilute the potential impact of the other 

Intended Actions.

2. Strategy 3. Build a more entrepreneurial R&D workforce. 

a. Intended Action 11 – Technology Entrepreneurship Programs. 

i. Establish government-wide technology entrepreneurship programs at 

all Federal R&D agencies. 
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The Subcommittee believes that enthusiastic and genuine support by Federal laboratory leadership 

is critical to the success of changing the culture of the Federal laboratories to be more 

entrepreneurial. We recognize that a program like iCorps, for example, requires a significant time 

commitment of researchers, and therefore recommend that a system-wide iCorps-lite program be 

developed and implemented. We encourage synergistic partnerships between the Federal 

laboratories and academia in leveraging the entrepreneurial programs already mature at some 

universities.

b. Intended Action 12 - Managing Conflicts of Interest.

i. Authorize scientists and engineers at Federal Laboratories to engage in 

entrepreneurial activities that support technology transfer and 

commercialization. Implement harmonized and consistent 

requirements for managing conflicts of interest. 

The Subcommittee believes the country will see a much better return on their Federal research 

dollars if Federal laboratory researchers can help transfer their technology to industry. They 

should be able to receive a financial benefit for their inventive contributions. The Subcommittee 

also recognizes that while it may seem easier to prohibit rather than manage conflicts of interest 

(as is currently the case), prohibition merely dissuades entrepreneurial initiative and leads to 

inefficient or ineffective technology transfer. The Federal government should therefore develop 

balanced conflict of interest requirements and systems to manage conflicts in a transparent way, 

and all agencies must agree to the same requirements and systems. Many Universities have 

developed robust conflict of interest management systems that can be used as models to develop 

Federal laboratory conflict of interest requirements/systems. Actions 11 and 12 go hand-in-hand 

and must be addressed at the same time. 

3. Strategy 2. Increase Engagement with Private Sector Technology Development 

Experts and Investors. 

a. Intended Action 8 -- Streamline Partnership Mechanisms. 

i. Implement streamlined, transparent, and balanced partnership 

agreements. 

ii. Develop cross-agency consistent and balanced indemnification terms. 

The Subcommittee believes that the best way to increase engagement with the private sector is for 

the Federal laboratories to be able to move quickly with minimal transaction delays. While large 

firms have a bevy of lawyers, small firms do not, and they typically cannot afford to spend the time 

or money to negotiate with the Federal laboratories. The private sector is very clear that 

transactional delays hinder potential partnerships. The Federal laboratories need to have greater 

creativity and flexibility at the local level to tailor specific licensing terms to a particular situation. 

The Subcommittee recognizes that each Agency engages with the private sector differently; this 

makes it very difficult for private sector partners because there is no government-wide consistency. 

Harmonized, pre-determined indemnification terms, clear and consistent terms for company trade 

secret protection, etc. for all Federal laboratories will help decrease transaction time. 
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b. Intended Action 9 -- New/Expanded Partnership Mechanisms. 

As mentioned above, industry partners will greatly appreciate any/all mechanisms that will speed 

up and simplify the establishment of partnership agreements. We encourage all interested parties 

to meet and discuss desired outcomes for any new partnering agreements, and then seek to develop 

agreements that are consistent with these motivations. Too often, one party creates agreements 

without the other side’s input and this unnecessarily delays collaboration opportunities.

c. Intended Action 10 -- Technology Maturation Funding. 

The biggest challenge for university and Federal laboratory technology transfer is that many 

technologies are considered to be “too early stage” for companies to take on. The ability of Federal 

laboratories to locally deploy flexible government funding to accelerate technology maturation will 

increase technology transfer–and the return on investment--to the private sector. Many 

universities are establishing such funds and the Federal laboratories should follow suit. 

Noteworthy Intended Actions:

The Subcommittee supports:

• Intended Action 1 -- Government Use license

• Intended Action 2 -- March-In Rights

• Intended Action 13-15 – Reporting Systems. With respect to Intended Action 15, we 

encourage NIST to work with Association of University Technology Managers (AUTM) to 

coordinate and expand upon AUTM’s ongoing efforts to establish metrics and benchmarks. 

Concerns:

Intended Action 3 – Preference for U.S. Manufacturing. Expansion of the preference for U.S. 

manufacturing to nonexclusive licenses is of concern to the Subcommittee. In general, we are 

skeptical that this will increase U.S. competitiveness. We understand, and are supportive of, 

encouraging manufacturing in the U.S. However, the additional requirement of substantial U.S. 

manufacture to nonexclusive licenses will discourage nonexclusive licensing of widely used, 

ubiquitous technologies by multinational or non-U.S. companies. We want to encourage such 

companies to recognize university and Federally owned patents and to take nonexclusive licenses--

and pay royalties to the U.S. entity--to patents as appropriate. In many cases, broad, worldwide 

dissemination of technology will be in the best interest of America and will provide economic 

growth and robust competitiveness. Some universities are already finding companies choosing to 

license competing, non-government funded technologies to avoid the U.S. manufacture 

requirements. If these requirements are extended to nonexclusive licenses, university technology 

transfer may be detrimentally impacted. 

The Subcommittee feels that Intended Action 4 – Software Copyright needs to be clarified as to 

whether or not this is intended for the Federal laboratories only or also includes universities. Most 
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universities have copyright policies that allow for copyright protection, notwithstanding Bayh-Dole. 

This Action may be more useful to the Federal laboratories to enable them to license copyrighted 

software. Additionally, today, Government Owned Contractor Operated (GOCO) laboratories are 

able to assert copyright and license software with the approval of the Federal funding agency. To 

achieve maximum impact from Federally funded software, we recommended that the GOCO 

laboratories be authorized to assert copyright and license software without case-by-case agency 

approval under a process similar to that for electing title to patentable inventions. 

The Subcommittee believes that Intended Action 8 – Streamline Partnership Mechanisms 

should be applied to the Federal laboratories only; we do not see a need to modify Bayh-Dole. The 

Subcommittee further believes that the Federal laboratories should retain local control of 

negotiating financial terms for license agreements to maximize flexibility and responsiveness to 

partner needs. 

Additional comments:

Several of the private sector Subcommittee members feel that it is difficult to easily identify the 

capabilities and assets available at the Federal laboratories. While the Federal Laboratory 

Consortium (FLC) provides a mechanism for publicizing Federal laboratory technologies, the 

private sector often does not have the time to search technologies on the website. One suggestion 

was to have a “concierge,” or explore other ways to expand and make it easier for companies to 

understand what the laboratories have to offer. 

We note Federal laboratories are very different from universities and to compare technology 

transfer metrics (especially royalties) between the two sectors may not be reasonable. 

We encourage universities and Federal laboratories to continue to develop exclusive and 

nonexclusive licensing programs in the public interest, always with the goal of increasing the 

probability of commercialization by the private sector. 

The Subcommittee appreciates the opportunity to comment on the draft Green Paper. We suggest 

communicating real results from the proposed actions to industry, universities, and the Federal 

laboratories through workshops and progress reports so that the public knows that the final 

Intended Actions are being taken, and not just sitting dormant as a report. We look forward to 

hearing about NIST’s success in bringing about a greater Return on Investment of our Federal 

research dollars. 

Respectfully submitted, 

The Subcommittee on Technology Transfer

NIST Visiting Committee on Advanced Technology
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VCAT Subcommittee Members:

• Katharine Ku, Chair

• David Vasko

• Waguih Ishak

• Gail Wasserman

• Vinton Cerf

Subject Matter Experts:

• Leslie Millar-Nicholson

• Nancy Kamei

• Mike Paulus

• Tony Boccanfuso

• Terri Fiez

• Laurie Locascio

Sethuraman “Panch” Panchanathan