Yates Standards
Yates Standards
Murphy
1
We take a broad view of private industrial standard setting in JoAnne Yates and Craig
N. Murphy, Engineering Rules: Global Standard Setting since 1880 (Baltimore, 2019). We
draw on the book heavily in this introduction, and unless otherwise stated, information
about standard setting not linked to one of the articles in this issue comes from it. Business
historians who focus on standard setting in particular technical domains include Steven
W. Usselman, Regulating Railroad Innovation: Business, Technology, and Politics in
America, 1840–1920 (Cambridge, U.K., 2002); Marc Levinson, The Box: How the Shipping
Container Made the World Smaller and the World Economy Bigger (Princeton, 2006);
Andrew Russell, Open Standards and the Digital Age: History, Ideology, and Networks
(New York, 2014); and Lee Vinsel, Moving Violations: Automobiles, Experts, and Regulations
in the United States (Baltimore, 2019).
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JoAnne Yates and Craig N. Murphy / 4
history and the field’s capacity to shed light on some major puzzles in the
history of modern standard setting, concerning how, when, and by what
type of organization (public, private, or hybrid) certain standards were
set. Addressing these puzzles contributes to understanding why the
hybrid global system developed the way it did.
Long before the Industrial Revolution, local rulers and governments
set localized standards for measuring weight, size, and other fundamen-
tal quantities, but a globalizing industrial economy needed much more.
By the nineteenth and early twentieth centuries, machine-based trans-
portation networks and mass production required standards for mea-
surement, performance, compatibility, and interoperability. To be
useful, most standards increasingly needed to be set not locally but for
much wider market areas—countries, empires, or the entire world. Gov-
ernments at all levels often lacked the competence and interest to create
the needed standards. Most of the technical standards that supported the
emergence of a global economy in the twentieth century were developed
as voluntary standards in private standard-setting bodies, in which gov-
ernments played a limited role, if any. The major exceptions are funda-
mental measurement standards and safety standards; in both cases, the
public interest was served by making such standards mandatory rather
than voluntary. Articles about these exceptions bookend this special
issue. Yet even in these areas, technical experts from industry also
played an important role, as the articles demonstrate (see timeline at
end of introduction).
2
On the evolution and spread of the metric system, see Robert Tavernor, Smoot’s Ear: The
Measurement of Humanity (New Haven, 2007), esp. 133–35; Robert P. Crease, World in the
Balance: The Historic Quest for an Absolute System of Measurement (New York, 2011); and
Ken Alder, “A Revolution to Measure: The Political Economy of the Metric System in France,”
in The Values of Precision, ed. M. Norton Wise (Princeton, 1995), 39–71.
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Introduction / 5
businessmen and diplomats from Europe and the Americas, led by Baron
Jacques Rothschild, created the private Association for Obtaining a
Uniform Decimal System of Measures, Weights, and Coins, to promote
the system’s adoption. In the nineteenth century many governments of
continental Europe’s industrializing countries did so (e.g., the Netherlands,
Italy, and Germany), as did the governments of the largest economies in
Latin America (e.g., Mexico, Brazil, and Argentina). Many more govern-
ments would do so by the 1920s (e.g., Japan, Russia) or soon after
World War II (e.g., Indonesia, South Korea). In contrast, the United
Kingdom announced it would begin to convert to the metric system only
in 1965 (a process that is still incomplete), and although the U.S. Congress
passed the voluntary Metric Conversion Act in 1975, the Reagan adminis-
tration suspended its funding in 1982, ending the U.S. effort.
Why did some governments adopt the metric system early, while
other governments have never made it mandatory? Our first two articles
address this puzzle, examining attempts by citizens to persuade the gov-
ernments of two New World countries to go metric. Anne Hanley looks at
the ultimately successful (though not free of controversy) adoption of the
metric system in Brazil, while Stephen Mihm examines one of several
unsuccessful attempts to convince the U.S. government to adopt the
system. In these two cases, scientists and engineers played important
but very different roles.
When Brazil’s government adopted the metric system, the country
had been independent of Portugal for four decades but was still a non-
industrialized country with many local measurement systems, a large
Indigenous population, and an economy based on African slavery.
Why did it adopt the metric system so early (1862, with implementation
by 1872)? In “Men of Science and Standards: Introducing the Metric
System in Nineteenth-Century Brazil,” Hanley explains that the
nation’s scientists and engineers (many educated in Portugal) supported
this move, which they saw as essential to the economic advancement of
their young country. The system was implemented despite uprisings
among peasants in a backcountry region. Previous scholars, Hanley
notes, have argued that this elite support was an example of adopting
“misplaced ideas” from Europe, but she contends that the situation is
more complicated than that. Advocates were undoubtedly influenced
by a transnational community of scientists and engineers who thought
standards were important to trade and industrialization, but she demon-
strates that these Brazilian scientists and engineers were also well
embedded in Brazilian society and important to their government’s
developmental mission. These elites convinced the government to
adopt the metric system, laying the groundwork for international trade
and industrial activity.
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JoAnne Yates and Craig N. Murphy / 6
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Introduction / 7
countries except the United States, but they were reluctant to set stan-
dards for other industries, leaving unfilled gaps as the need for compat-
ible iron and steel parts, machinery, electrical equipment, and other
products of industry grew. Seeking a public service role to reinforce
their newly claimed identity as professionals, engineers and their socie-
ties stepped forward to fill those gaps. But setting standards often
required expertise from multiple engineering domains.3 In 1901, engi-
neers from five British technical societies came together to form the
first broad national standard-setting body. Industry associations,
firms, and government departments (as purchasers of products) joined
the founding societies as members. They established a lengthy consensus
process in which committees of engineers representing a balance of pro-
ducers, purchasers, and the public interest developed industrial stan-
dards that manufacturing and purchasing firms would voluntarily adopt.
The British national standards body provided the model that engi-
neers in most industrializing countries copied in the early twentieth
century. Although individual engineering and industry societies contin-
ued to develop some standards in many countries, they adopted similar
processes and often proposed their standards to the national standards
body where they went through the process to become national standards.
The engineers who established the national bodies across Europe, the
Americas, East Asia, and Oceania formed a surprisingly close-knit inter-
national community and movement dedicated to promoting industrial
standardization to improve the quality of life, promote prosperity, and
contribute to international peace. From the start, leaders of this move-
ment were internationalists who sought to create a global economy,
and only five years after the formation of Britain’s national standards
body, members of many national electrical engineering societies estab-
lished the International Electrotechnical Commission (IEC) to set inter-
national standards in the newest engineering domain. Unlike the
intergovernmental associations for telegraph and telephone, this
private international body included national delegations chosen by elec-
trical engineering societies, not governments. Standardizers later
attempted to establish a broader international standards body, but
World War II put the goal of international standardization on hold.
In 1946 standardizers from the victorious nations gathered in
London to establish a private, broad-based international standards
body: ISO. They navigated the postwar political currents, bringing
former Axis countries into ISO long before they were admitted into the
3
For example, standards committees representing four different engineering societies
cooperated to set U.S. steel rail standards around 1900. See Usselman, Regulating Railroad
Innovation, 215–39; and Yates and Murphy, Engineering Rules, 3–34, 40–51.
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JoAnne Yates and Craig N. Murphy / 8
4
See Levin, Box, as well as Yates and Murphy, Engineering Rules, 168–80.
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Introduction / 9
After World War II, and building on wartime innovations, the com-
puter industry developed rapidly. In the early 1960s, existing private
standards committees in engineering societies and national and interna-
tional standards bodies were addressing standards for computer hard-
ware in the United States and beyond. But in the 1980s, alternative
ways of setting private standards would emerge around internetworking
to challenge traditional private standards bodies.5 First to appear were
corporate consortia, groups of firms that came together to develop or
support a new standard, often for software. A consortium typically
started with a few firms, often representing only one set of stakeholders
(e.g., either user firms or producer firms). With limited and like-minded
members, these consortia established standards much more rapidly than
traditional balanced-stakeholder bodies and became so popular by the
late 1980s that ISO and IEC, afraid of becoming irrelevant in this
domain, developed fast-track processes to enable consortium standards
to go through a truncated process to become ISO or IEC standards.
Another challenge to traditional private standard setting emerged in
the late 1980s around internetworking standards. In the early 1970s, the
U.S. Department of Defense’s Advanced Research Projects Agency had
launched ARPANET to connect computers at universities and defense
contractors where it funded basic research in computer science. In
1983—by which time ARPANET had expanded in size and scope
and adopted the Transmission Control Protocol/Internet Protocol
(TCP/IP) data communication system—the Defense Department spun
off a civilian internet, establishing a body of “elder statesmen” to set
5
These opening paragraphs draw on Janet Abbate, Inventing the Internet (Cambridge,
MA, 1999); Russell, Open Standards; Andrew L. Russell, “‘Rough Consensus and Running
Code’ and the Internet-OSI Standards War,” IEEE Annals of the History of Computing 28,
no. 3 (2006): 48–61; and Yates and Murphy, Engineering Rules, 242–60.
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JoAnne Yates and Craig N. Murphy / 10
its strategy. Two years later that body created a group of young computer
scientists, the Internet Engineering Task Force (IETF), to manage its
operating standards, following the model for ARPANET’s operations.
Meanwhile, in 1977 ISO launched a standard-setting committee for
connecting networks developed by different firms and government agen-
cies, and the Defense Department and other U.S. agencies supported its
work. But after the ISO committee established a seven-layer reference
model in the early 1980s, the process bogged down in developing stan-
dards for each layer. Ultimately the simpler TCP/IP, already being
used successfully by the rapidly growing commercial Internet, became
the de facto standard for internetworking, and the IETF became the de
facto private standards body for the Internet, a position it still holds
today. Despite its U.S. origins, it soon became effectively global as the
Internet spread around the world. Although its standards were volun-
tary, free, and (by the late 1980s) nongovernmental, IETF’s process dif-
fered significantly from that of other private standards bodies; it had no
membership (anyone could attend any meeting), no formal voting, no
required balance of stakeholders, no system for representing different
parts of the world, and a famously raucous, argumentative style.
So how did corporate consortia and the IETF become so important,
challenging traditional modes of private standard setting? Andrew
L. Russell, James Pelkey, and Loring Robbins’s article, “The Business
of Internetworking: Standards, Start-ups, and Network Effects,”
addresses this puzzle by delving into the competitive strategies of
firms—both large firms and, especially, small, entrepreneurial start-
ups (which often became large firms)—in the internetworking story.
They draw on a unique set of sources—market data collected by, and
interviews conducted by, Pelkey in 1988–89, in his capacity as an inves-
tor—that provide invaluable insights into the motives and problems of
businesses involved in creating and marketing networking and internet-
working products like modems, switches, and routers. Firms working in
this space needed fundamentally new standards to enlarge their poten-
tial markets, and the authors reveal the strategic actions they took that
assured such standards would emerge. Three large companies—DEC,
Intel, and Xerox—combined forces in the DIX (vertical) corporate con-
sortium to develop and promote the Ethernet local area network so the
market for LANs could grow and prices fall. They made the Ethernet
specification openly available through publication in the 1980 “Blue
Book” and subsequently supported it in the traditional Institute of Elec-
trical and Electronics Engineers (IEEE) standards committee working
on a LAN standard, where it was chosen as one of three acceptable stan-
dards. Its open and free availability attracted start-ups in this market,
over the other two options.
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Introduction / 11
Similarly, in the late 1980s, with the ISO effort bogged down, start-
ups and other firms had to make choices, and TCP/IP became the de
facto standard when enough relevant players offered internetworking
technologies based on it. They did so because it was simple, cheap, and
already successfully running in many operations; in addition, Dan
Lynch, a computer scientist involved in developing TCP/IP in the
1970s, marketed the protocol as a standard in the late 1980s. When
TCP/IP became the de facto standard, IETF became the leading global
standardization body for the internet. The Russell, Pelkey, and
Robbins article, which takes the perspective of firms operating in this
new field, reveals that the surprising ascendance of TCP/IP was a conse-
quence (albeit unintended) of these firms’ strategic interactions, just as
were the standards created by consortia and subsequently ratified by tra-
ditional industrial standards bodies such as the IEEE, IEC, and ISO.
If the rise of information technology consortia and the IETF
reflects how business strategies of private firms influenced private
standards, the final article in this issue examines an industry where
governments have long been active regulators, revealing how
private-sector interests can shape even a government-initiated
system of standardization.
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JoAnne Yates and Craig N. Murphy / 12
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Introduction / 13
Conclusion
The five articles in this issue illuminate the nature and development
of the complicated public-private system of standard setting on which
the world economy depends today, providing answers to some of the
puzzles it poses. The interests and strategic actions of firms and indus-
tries, the government’s capacity and interests, the push to create wider
global markets, and the expertise of scientists and engineers have com-
bined to establish and maintain or modify the complicated standards
system, without which the global economy could not function.
. . .
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JoAnne Yates and Craig N. Murphy / 14
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Introduction / 15
. . .
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