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Standards in Process: Foundations and Profiles of ISDN and OSI Studies NTiA Report 84-170 Standards in Process: Foundations and Profiles of ISDN and OSI Studies D.M. Cerni u.s. DEPARTMENT OF COMMERCE Malcolm Baldrige, Secretary David J. Markey, Assistant Secretary for Commu nications and Information December 1984 PREFACE The convergence of telecommunication and computer technologies is demanding increasingly close.cooperation among organizations responsible for standardization within the formerly distinct industries. This report was written to encourage and facilitate such cooperation by describing the historical background, objectives, structure, and work methods of U.S. and international organizations currently involved in computer communication standardization - specifically, development of the Integrated Services Digital Network (ISDN) and Open Systems Interconnection (OSI) standards families. The report is designed to provide coordinated answers to a broad spectrum of questions posed to staff members of the National Telecommunications and Information Adm inistration's Institute for Telecommunication Sciences in conjunction with their standards responsibilities. Many individuals outside ITS contributed to the development of this report by providing factual information and insights on the standardization process. Information interviews with the following U.S. standardization experts were of particular value: Elizabeth Bridgman (ANSI), Sophie Chuman (NBS/OPSP), George Codding CUniversity of Colorado, Boulder), Kathleen Dally (OMNICOM), Dorothy Hogan (ANSI), Hal Folts (OMNICOM), Mary Ann Gray (IBM), John Haeffner (NBS/ICST), Bruce Johnson (Rixon), Catherine Kachurik (CBEMA), Peg Kay (NBS/I CST) , Edward Lohse (Burroughs Corp.), Donald Mackay (NBS/OPSP), Eric Scace (GTE-BCS), Frances Schrotter (ANSI), Marty Weik (Naval Research Lab), and George White (NCS). Teresa Shanahan, GTE-Telenet, served as a technical reviewer of the draft manuscript. Bruce Johnson, Ed Lohse, and Donald Mackay also prov ided constructive comments on the, draft. (Organizational affiliations indicated are those existing at the time of the interviews. ) The report also benefitted from the contributions of many ITS staff members. Thijs de Haas, Christine Hemrick, Joseph Hull, Neal Seitz, and William UtIaut shared their expertise in many informative discussions. Neal Seitz offered supportive direction and continual interest in all phases of the report development. Christine Hemrick and Joseph Hull served as technical reviewers of the draft manuscript. Evie Gray prOVided a format review and did a score of emergency tasks. Carole Ax and Cathy Edgar did magic with the word processor. Rex Powell carefully executed the figures. To each of these, the author say s thanks. iii TABLE OF CONTEN'fS Page PREFACE ••..•. .. .. ... ... ... ... .. iii TABLE OF CONTENTS v LIST OF FIGURES xi LIST OF TABLES . xv LIST OF ACRONYMS xvi ABSTRACT ...••. 1 1 • INTRODUCTION •• ..•... 1 1.1 Background .••• 2 1.1.1 The U.S. Position in Telecommunications ...• 4 1.1.2 \The Information Age .••• 4 1.2 Purpose and Scope of Report ..•.•.•.•. 4 1.3 Structure of Report ••••.•.•••••••• 5 1.3.1 Section 2: Standards and Standardization: an Overv iew .••.••••.•••••• 6 1.3.2 Section 3: The Evolution of U.S. Standardization Activi ty . 6 1.3.3 Section 4: Development and Use of U.S. Standards and Regulations ••.••.•.••••...• 6 1.3.4 Section 5: ANSI's Role in the U.S. Voluntary Consensus System •••••.•.•.•••••••• 6 1.3.5 Section 6: The Significance of International Standards ..................... 7 1.3.6 Section 7: International Standards Organizations and Standards Development ....••.•••••• 7 1.3.7 Section 8: The ISDN and Worldwide Standardization Efforts ................. 7 1.3.8 Section 9: The OSI Reference Model and Worldwide Standardization Efforts .••••. 7 1.3.9 Section 10: The Standards Writer 8 2. STANDARDS AND STANDARDIZATION: AN OVERVIEW 8 2.1 The Meaning of Standards .•.••.••••• 9 2.1.1 Basic, Product, and "Integrated Systems" Standards ....•.........•. 11 2.1.2 The Advantages and Disadvantages of Standards 12 2.2 The Meaning of Standardization .•..••..• 14 2.2.1 Standardization as a Discipline ..•. 14 2.2.2 The Economic Benefits of Standardization •.•••• 15 3. THE EVOLUTION OF U. S. STANDARDIZATION ACTIVITY •. 17 3.1 The Beginnings: 1850-1918 •••••••••••••• 19 3.2 The "Crusade for Standardization": 1919-1946 21 3.3 Post World War II Expansion: r947-1970 .••......• 22 3.4 Attempts to Regulate Voluntary Standards: 1971-1982 23 3.5 The United States and International Standards: 1980-? 24 3.6 Implications for the Future of the U.S. Standards Cornrnuni ty ....................... 27 v TABLE OF CONTENTS (cont'd) Page 4. DEVELOPMENT AND USE OF U. S. STANDARDS AND REGULATIONS 28 4.1 The U.S. Voluntary Standards System. •...•...... 29 4.1 .1 Voluntary Consensus Standards ..... 29 4.1.2 Consensus through "Due Process" .. •. .... 30 4.1.3 Criticisms of this Process. ...... 33 4.1.4 Legal Aspects of the Voluntary Standards System 34 4.2 U.S. Federal Regulations .•.........•... 37 4.2.1 General Overview of Federal Regulatory Activity 37 4.2.2 The Federal Communications Commission (FCC): an Independent Regulatory Agency, Telephone Deregulation, and the ISDN .......... 38 4.2.3 Regulatory Standards. •.......... 47 4.2.4 The Regulatory Use of Voluntary Standards. 49 4.3 The Federal Government and the Voluntary Standards Sy stem •. GI ••••••••••••••••• 52 4.3.1 Government Activities ......•.. 52 4.3.2 Private-Sector Activities: The National Policy on Standards for the United States ........• 59 4.3.3 The National Bureau of Standards . 62 4.4 Federal Canputer and Telecommunication Standards •.... 68 4.4.1 NBS/ICST and Federal Information Processing Standards ..................... 68 4.4.2 NCS and Federal Telecommunication Standards (FTS) .. 73 5. ANSI'S ROLE IN THE U.S. VOLUNTARY CONSENSUS STANDARDS SYSTEM 77 5.1 What is ANSI? ................... 78 5.1.1 Organization and Major Roles. ........... 78 5.1.2 ANSI and the U.S. Government. ......... 82 5.2 ANSI Plans and Coordinates Preparation of American National Standards .................... 83 5.3 ANSI Approves Standards as American National Standards 84 5.3.1 Approval Criteria ......•....... 84 5.3.2 Accreditation of American National Standards Developers .. .......... 85 5.3.3 Recent Changes in ANSI Procedures . 86 5.4 Accredited Standards Committees (ASC) .. 87 5.4.1 Model Procedures for an ASC 88 5.4.2 ASC X3: Information Processing Systems 89 5.4.3 ASC T1: Telecommunications . 95 6. THE SIGNIFICANCE OF INTERNATIONAL STANDARDS. ...... 104 6.1 The Changes Occurring in International Standards 104 6.1.1 The Product-Performance Standard. .•..... .. 106 6.1.2 The Planned Interdisciplinary System of Standards.. 106 6.2 The Changes Occurring in International Standardization 107 6.3 The Role of International Standards in International Trade ...... 0•••••••••••• 108 6.3.1 The Growth of World Trade ....•..••. 108 6.3.2 International Standards Facilitate World Trade. 109 6.3.3 The GATT Standards Code and the United States 109 vi TABLE OF CONTENTS (contI d) Page 6.4 The Developing Countries and International Standardization .• .. •. .•...•.••••• 113 6.4.1 The Developing-Country View of International Standards .................. 115 6.4.2 Developing-Country Participation in International Standardization .••.••.. 117 6.5 The Effect of the Information Age on International Standardization ..•.•.•...•.•.•. 118 7. INTERNATIONAL STANDARDS OFGANIZATIONS AND STANDARDS DEVaOPIv1:ENTS ••••••• .• •••••••••••••••••• 120 7.1 The International Organization for Standardization (ISO) 121 7 .1 .1 Membership. .................... 121 7.1.2 Organization and Technical Work ..•.•• 122 7.1.3 ISO TC97: Information Processing Systems •.••• 124 7.1.4 Development of ISO Standards .•.•••.•• 128 7.2 The International Electrotechnical Commission (IEC) • 130 7 .2.1 Membership. .• •••..•. •. ... 130 7 .2.2 Organization and Technical Work. •..• 131 7.2.3 Development of IEC Standards ••.••.••. 133 7.3 The International Telegraph and Telephone Consultative Committee (CCITT) .•••••••.••.••••••••. 133 7.3.1 The CCITT: A Consultative Committee of the ITU 135 7.3.2 Technical Work and Recommendation Development • 139 7.3.3 The U.S. Organization for the CCITT •••••••• 141 7.4 The Future of the International Standards Organizations 146 7.5 ANSI's Role in International Standardization •• 149 7.5.1 ANSI and International Organizations •.•• 149 7.5.2 ANSI and Regional Standards Organizations • 151 7.5.3 The Cost to ANSI ••••••••••.•••• 152 7.5.4 ANSI's Interest in International Information Processing-Related Standards ••. 153 7.5.5 The Relationship of X3 to TC97 ••••. 154 8. THE ISDN AND WORLDWIDE STANDARDIZATION EFFORTS .• 155 8.1 The CCITT and the Development of ISDN Studies . 155 8.1.1 The Beginnings: 1968-1980 ••.•.•.•• 156 8.1.2 The Meaning of CCITT-Standardized Services. 156 8.1.3 CCITT Study Period 1981-1984 .••..•.• 158 8.2 The Importance of U.S. Participation in CCITT ISDN Studies .................... 160 8.3 The Direction Standardization is Taking and the Organizations Involved 162 8.3.1 The CCITT ..•..• 163 8.3.2 The CCIR . 165 8.3.3 The CEPT ••...•...•. 165 8.3.4 The U.S. Organizations. 170 9. THE OSI REFERENCE IDDEL AND WORLDWIDE STANDARDIZATION EFFORTS "•••••••.••••••••••••.•• 171 9.1 The Background of the Development of OSI Studies. 172 vii TABLE OF CONTENTS (cont'd) Page 9.2 TC97 SC16 and the OSI Reference Model .... 173 9.2.1 The Meaning of a Reference Model •••• 173 9.2.2 The Meaning of Architecture in the OSI Reference Model .•.•••• 174 9.2.3 Why a Layered
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