Mr. HOLLINGS, from the Committee on Commerce, Science,
and Transportation, submitted the following
R E P O R T
OF THE
SENATE COMMITTEE ON COMMERCE,
SCIENCE, AND TRANSPORTATION
ON
S. 1067
JULY 23 (legislative day, JULY 10), 1990.--Ordered to be printed
__________________
U.S. GOVERNMENT PRINTING OFFICE
39-010 WASHINGTON: 1990
COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
ERNEST F. HOLLINGS, South Carolina, Chairman
DANIEL K. INOUYE, Hawaii
JOHN C. DANFORTH, Missouri
WENDELL H. FORD, Kentucky
BOB PACKWOOD, Oregon
J. JAMES EXON, Nebraska
LARRY PRESSLER, South Dakota
ALBERT GORE, JR., Tennessee
TED STEVENS, Alaska
JOHN D. ROCKEFELLER IV, West Virginia
ROBERT W. KASTEN, JR., Wisconsin
LLOYD BENTSEN, Texas
JOHN McCAlN, Arizona
JOHN F. KERRY, Massachusetts
CONRAD BURNS, Montana
JOHN B. BREAUX, Louisiana
SLADE GORTON, Washington
RICHARD H. BRYAN, Nevada
TRENT LOTT, Mississippi
CHARLES S. ROBB, Virginia
KEVIN G. CURTIN, Chief Counsel and Staff Director
WALTER B. McCORMICK, Jr., Minority Chief Counsel and Staff
Director
(II)
Calendar No. 710
101st Congress SENATE Report
2nd Session 101-387
HIGH-PERFORMANCE COMPUTING ACT OF 1990
JULY 23 (legislative day, JULY 10), 1990.--Ordered to be printed
Mr. HOLLINGS, from the Committee on Commerce, Science, and
Transportation, submitted the following
R E P O R T
[To accompany S. 1067]
The Committee on Commerce, Science, and Transportation, to
which was referred the bill (S. 1067) to provide for a
coordinated Federal research program to ensure continued United
States leadership in high-performance computing, having
considered the same, reports favorably thereon with an amendment
in the nature of a substitute and recommends that the bill as
amended do pass.
PURPOSE OF THE BILL
The primary objective of the legislation is to accelerate
research, development, and application of high-performance
computing in research, education, and industry. High-performance
computing is the most advanced computing technology--the most
sophisticated computer chips, the fastest computers with the
largest memories, the fastest algorithms, and the fastest
computer networks.
This bill authorizes Federal funding for the development and
use of new supercomputers, advanced software, and a National
Research and Education Network (NREN), a computer network capable
of transmitting billions of bits (gigabits) of data per second.
In total, the bill authorizes $650 million for the National
Science Foundation (NSF) and $338 million for the National
Aeronautics and Space Administration (NASA) for fiscal years (FY)
1991-95.
The bill also establishes a National High-Performance Computing
(HPC) Program involving NSF, NASA, the Department of Energy
(DOE), and the Defense Advanced Research Projects Agency (DARPA)
of the Department of Defense (DOD), as well as
[2]
other agencies. This program would be planned and coordinated by
the White House Office of Science and Technology Policy (OSTP).
BACKGROUND AND NEEDS
IMPORTANCE OF COMPUTING
In the last 30 years, computer technology has transformed
American science and industry. Today, computers are indispensable
tools found in almost every laboratory, office, and factory. They
have enabled researchers to solve previously unsolvable problems;
have transformed the way products are designed, manufactured, and
marketed; have changed the way offices are operated; and have
given teachers a new, powerful educational tool.
The last five years have seen a rapid increase in the use of
supercomputers in science and engineering. Supercomputers are
commonly defined as the most powerful computers available at any
given time. They usually cost $1-$20 million and are 1,000 to
100,000 times more powerful than a typical personal computer.
Today's supercomputers are capable of making billions of
mathematical calculations per second, which is about 50 to 100
times faster than the fastest computers available just ten years
ago. Using complex computer "models," researchers now can
simulate and test the behavior of advanced aircraft designs,
proposed new drugs, and new manufacturing techniques. Scientists
have used supercomputer models to understand better the Earth's
climate and weather, the Nation's economy, the evolution of our
galaxy, and even the voting patterns of Members of Congress.
To facilitate communication among researchers, students, and
educators, and to promote the use of advanced computers, NSF and
other Federal agencies have established fiber optic computer
networks, which link researchers around the country to
supercomputers, to other computing facilities, and to each other.
Unlike copper telephone wires, fiber optic cable is capable of
carrying the billions of bits of data generated every second by
supercomputers. Such high data rates are needed because, for many
types of computer models, scientists need sophisticated
"visualization" techniques to sort out their results. Computer
graphics allow researchers to decipher data sets so large that
they could fill hundreds of pages of computer printouts.
Unfortunately, most computer networks operate at speeds of 1.5
million bits (megabits) per second or less, and thus network
users cannot utilize supercomputers fully.
Faster networks also will allow researchers to retrieve huge
volumes of data (e.g., satellite images) from data bases and to
share their own data with others. Multi-gigabit networks would
allow scientists and engineers to control and collect data from
research facilities (e.g., particle accelerators and radio
telescopes) from thousands of miles away, reducing the need for
expensive, time-consuming travel. These high-speed networks would
allow researchers around the country to collaborate over the
network as effectively as they could face-to-face, leading to the
creation of what has been termed a National Collaboratory.
In recent years, support has been growing for a large increase
in Federal funding for high-performance computing. A November
1985, White House Science Council report, "Research in Very High
[3]
Performance Computing," states: "The bottom line is that any
country which seeks to control its future must effectively
exploit high-performance computing. A country which aspires to
military leadership must dominate, if not control,
high-performance computing. A country seeking economic strength
in the information age must lead in the development and
application of high-performance computing in industry and
research." At a July 21, 1989, committee hearing on his
nomination to his current position, Dr. Allan Bromley, the
President's Science Advisor and Director of OSTP, stated that
high-performance computing must be "a very high priority" because
"it has a catalytic effect on just about any brand of research
and development" and "will, eventually, transform industry,
education, and virtually every sector of our economy, bringing
higher productivity and enhanced competitiveness." In a similar
vein, a 1989 OSTP report, written by representatives from over a
dozen Federal agencies, calls for new funding to "maintain and
extend U.S. leadership in high-performance computing."
CONGRESSIONAL ACTION
Similar interest has been shown in both houses of Congress. In
order to spur development of faster computer networks and more
advanced supercomputers, in 1986, the Committee reported
legislation authorizing NSF programs, which included legislation
introduced by Senator Gore, to require OSTP to provide Congress
with an analysis of the computer networking needs of American
researchers and the benefits and opportunities that a national
high-speed fiber optic network for computers and supercomputers
would provide. That legislation was enacted into law as part of
the NSF Authorization Act for FY 1987 (P.L. 99-383,100 Stat.
816).
As required by the legislation, OSTP released a report in
December 1987 entitled "A Research and Development Strategy for
High Performance Computing," which outlined an ambitious,
comprehensive research program in supercomputing and computer
networking, and proposed that the Federal Government spend an
additional $1.74 billion over the next five years on
high-performance computing. This report was followed in September
1989 by an implementation plan for the program, "The Federal High
Performance Computing Program," which was developed by more than
a dozen agencies working with OSTP. While that report presented a
five-year funding profile for a high-performance computing
program, the President has yet to endorse the additional funding
needed to implement it. However, there are reports that the
Administration is preparing a major initiative in this area for
FY 1992. The high-performance computing program outlined in the
OSTP reports has four elements: high-performance computers;
software technology and algorithms; networking; and basic
research and human resources.
In 1988, S. 2918 was introduced by Senator Gore to create a
National HPC Program, similar to that outlined in the 1989 OSTP
report. The following year, Senator Gore introduced S. 1067
authorizing funds for high-performance computing at NSF, NASA,
DOE, and DARPA. As introduced and as reported this bill differs
from the OSTP reports in several ways: it places more emphasis on
providing access to scientific data, it seeks to increase
industry involvement in a Federal HPC program; it emphasizes more
the role of high-performance computing in education; and it
specifies funding levels for the different agencies in the
program.
The first title of the reported bill provides for coordination
between the Federal agencies involved in high-performance
computing through the Federal Coordinating Council for Science,
Engineering, and Technology (FCCSET), which is chaired by the
Director of OSTP. In recent years, FCCSET has provided
critically-needed, high level interagency coordination of
research in a number of areas, most notably global change. The
second title of the bill mandates creation, by 1996, of the NREN,
a national fiber optic network capable of transmitting billions
of bits of data per second from coast to coast. The third title
gives NSF responsibility for promoting development of data bases
and other information services, which would be available over the
NREN. The fourth title provides for development of improved
software for supercomputers and other computers. The fifth title
funds research and development on new, more advanced
supercomputers and related systems. The sixth title calls for
more basic research in computing and expanded efforts to educate
and train computer scientists and computational scientists (users
of high-performance computing). The seventh and final title
provides authorizations for NSF and NASA for their contributions
to the National HPC Program.
To fully reap the benefits of high-performance computing, the
Federal Government needs to implement a comprehensive research
and development program similar to that provided for in S. 1067.
Because the components of the program are all closely linked,
progress in high-performance computing will be hindered if the
pace of development in any one area is not as fast as in other
areas. For instance, if a national high-speed computer network
were established, but if faster, more powerful supercomputers
were not developed to handle the data that would flow across such
a network, the result would be missed opportunities and wasted
resources. Similarly, the development of faster supercomputers,
without the development of software needed to utilize them
effectively and of networks to access them, would be a poor
investment of research funds. Clearly, there is a need for a
balanced, comprehensive approach.
BENEFITS OF S. 1067
Most of the funding authorized in S. 1067 is in support of
basic research. There is broad agreement on the general need for
the Federal funding of basic research-basic research has been
shown repeatedly to be a good investment. For example, in a
soon-to-be published study, Dr. Edwin Mansfield of the University
of Pennsylvania estimated that the annual rate of return on
Federal investments in academic research is approximately 28
percent.
The return on investments in basic research on high-performance
computing may be even higher. On July 26, 1989, in testimony
before the Science, Technology, and Space Subcommittee, Dr. James
H. Clark, Chairman and Founder of Silicon Graphics Computer
Systems, told how a single $12 million DARPA research
[5]
grant which Dr. Clark and his colleagues received while he was a
professor at Stanford from 1979 to 1982 led directly to the
creation of SUN Microsystems, Silicon Graphics Computer Systems,
and MIPS Computer Systems. Today, just eight years later, these
three computer companies have combined total revenues of almost
$2.5 billion per year and an average annual growth rate of 60
percent.
In addition, because high-performance computing represents an
enabling technology which can increase greatly the productivity
not only of computer scientists, but also of researchers in
almost all fields of science and engineering, the returns are
likely to be greater than the average return on investments in
basic research. This research will lead to faster, more powerful
computers than can tackle previously unsolvable problems; faster
networks that can provide easier access to data and promote
collaboration between researchers; and better software that can
reduce the time spent computing the solution to a particular
problem and thus allow researchers time to explore more facets of
a problem.
The investment proposed by S. 1067 would provide needed tools
for federally-funded researchers and enhance greatly their
productivity. At a June 21, 1989, hearing of the Science,
Technology, and Space Subcommittee, Dr. William Wulf, then
Assistant Director of NSF's Directorate for Computer and
Information Science and Engineering, testified that
supercomputing and high-speed networking can increase the
productivity of many American researchers by 100 percent, 200
percent, or more. Given that the Federal Government invests
approximately $70 billion a year in research and development,
such a productivity gain could produce enormous benefits and more
than pay for the approximately $2 billion total cost of funding
the National HPC Program for the next five years.
High-performance computing will allow researchers to tackle
previously unsolvable problems, with huge benefits to society.
For instance, better models of global climate change would lead
to better policies to address global warming, policies which
could have trillion-dollar impacts. Supercomputing could lead to
a better understanding of AIDS, cancer, and genetic diseases,
leading to breakthroughs impossible without more computing power.
Just as important as the benefits to American researchers are
the benefits for American industry. Supercomputers are routinely
used by automobile companies, both to design and to "crash test"
cars; energy companies use them to analyze seismic data and
prospect for oil; and even financial markets now utilize them to
get real-time analyses of market behavior. On June 21, 1989, Mr.
John Rollwagen, Chief Executive Officer of Cray Research Inc.,
testified before the Science, Technology, and Space Subcommittee
that ARCO used a Cray supercomputer to determine how to increase
production of its Prudhoe Bay oil field by two percent, which
translates into an additional $2 billion in profits. The engines
on Boeing's new 737 airplane were designed using a supercomputer
and, as a result, are 30 percent more efficient than earlier
models. ALCOA used supercomputer models to reduce the amount of
aluminum needed to produce a soda can by 10 percent, resulting in
millions of dollars in reduced materials, production, and
transportation costs.
[6]
In the United States, the most extensive use of supercomputers
has been for defense and aerospace applications. The National
Security Agency (NSA) relies heavily on the fastest
supercomputers for signal processing and breaking codes.
Supercomputers are essential for anti-submarine warfare and for
the design of new weapons systems. The Strategic Defense
Initiative and other military research and development projects
rely heavily on supercomputer modeling. NASA has several
supercomputers devoted to modeling the aerodynamics of aircraft
and spacecraft. These supercomputers can be used to replace or
complement expensive wind tunnel tests.
In the future, high-performance computing will be utilized
increasingly by the education and library communities.
Supercomputers can store and sort through huge quantities of
data, and with optical disk storage systems it is possible to
store entire libraries of information electronically and retrieve
them in seconds. The Library of Congress and other libraries are
starting to develop the technology needed for "digital libraries"
of books, journals, images, music, and videos--all stored in
digital form and accessible over computer networks. Title III of
S. 1067 as reported would provide for expanded efforts to develop
such digital libraries.
In addition, title III provides for existing Federal data sets,
like weather satellite data and census data, to be available on
the NREN. At present, a great deal of scientific and economic
data is stored in electronic form, but much of it, especially
remote-sensing satellite data, is almost inaccessible to
researchers and other users. The bill would make data sets like
those at the Earth Resources Observation System (EROS) Data
Center accessible over the NREN and other networks, thus greatly
enhancing the usefulness of these data sets and ensuring that the
United States maximizes the return on its investment in the
collection of that data.
One of the most far-reaching impacts of the bill would be in
the area of high-speed, fiber-optic telecommunications
technology. Fiber-optic cable can transmit billions and even
trillions of bits of data per second, thousands of times more
than long-distance copper telephone cables. Scientists and
engineers are using this new capability to develop technology for
teleconferencing, for using supercomputers and other research
equipment remotely, and for improving communication and
collaboration among computer users. By creating a national,
high-speed computer network, this bill would provide a
demonstration of the potential of high-speed fiber optic computer
networks.
Under this bill, the Federal Government would fund creation of
a national multi-gigabit network and development of applications
that use it. The technology and standards developed will be
available publicly and will be applied quickly by private
companies building commercial multi-gigabit networks. At present,
the private sector is reluctant to make the multi-billion-dollar
investments needed to build a national multi-gigabit network, in
part because the technology has not been demonstrated and the
market has not been proven. The Federal funding called for in
this bill will demonstrate the benefits of a high-speed national
network and lead to development of standards for such a network,
this stimulating private-sector investment in multi-gigabit
networking. At an October 4, 1989, hearing of the House Energy
and Commerce Subcom-
[7]
mittee on Telecommunications and Finance, John Edwards from
Northern Telecom testified that Federal funding authorized by
this bill could accelerate the creation of a national,
multi-gigabit network by 5 to 10 years. Like the interstate
freeway system and other types of infrastructure, such a network
would provide untold benefits to all sectors of the American
economy.
HPC AND U.S. COMPETITIVENESS
The development of HPC will have a significant impact on U.S.
technology competitiveness, particularly given the efforts of
other countries to develop a supercomputing capability. The
Japanese and other foreign competitors have been quick to
recognize the benefits of supercomputing and fiber optic
networks. In fact, the Japanese have targeted the world
supercomputer market and are now producing some of the fastest
supercomputers available. In April 1990, Japan announced a major
research program to accelerate research and development on
parallel processing supercomputers. Similarly, other countries
are making massive investments in high-speed fiber optic
networks. Japan's Nippon Telegraph and Telephone Corporation has
announced that it intends to invest $126 billion to install a
national fiber optic network which would reach every home,
office, and factory in Japan by the year 2015 and be capable of
transmitting hundreds of millions of bits of data per second. The
Europeans are developing initiatives to build their own
high-speed networks as part of EC 92.
Without additional Federal and private-sector investment in
supercomputing, the United States risks losing the $2.4 billion
world supercomputer market, and more importantly, it risks having
to rely upon foreign suppliers for an essential tool in improving
research and development, in increasing American competitiveness,
and in enhancing U.S. national security. The funding authorized
by S. 1067 would help the United States maintain its lead in the
development and application of supercomputers.
NEED FOR ADDITIONAL HPC FUNDING
To provide supercomputing services to American researchers, the
NSF created five supercomputer centers in the mid-1980s. For FY
1991, NSF is requesting $59.59 million to fund the centers. Other
Federal agencies, including NASA and DOE, also maintain large
supercomputers for use by Federal and academic scientists.
The science agencies also fund several computer networks,
including NSF's NSFNET, NASA's NASNET and SPAN (Space Physics
Analysis Network), DOE's MFENET and HEPNET, and DOD's MILNET.
Together with many State-funded or for-profit regional networks,
several of these networks are linked by the Internet, which
consists of over 2,000 interconnected networks. While it is not
known exactly how many computers communicate via Internet, most
estimates are that well over 100,000 computers are linked in this
way.
However, present supercomputing and networking programs are not
adequate to meet the needs of researchers. The supercomputers at
the NSF centers are chronically over-subscribed. DARPA and other
agencies which fund development of new supercomputers
[8]
lack the money to fund more than a small fraction of the
promising proposals for new types of machines, which can cost
from $10 million to $500 million to prototype. Furthermore,
researchers are often frustrated by the lack of useful research
software for supercomputers which stems from the lack of adequate
funding for supercomputer software development.
Perhaps even more importantly, inadequate funding levels would
result in a delay in the establishment of the NREN. The NREN
would be capable of transmitting gigabits (billions of bits) of
data per second, and by 1996 would link up to 1,300 institutions
and about a million researchers nationwide. The NREN would be
about 2,000 times faster than the current NSFNET. While this
nationwide computer network links over 500 institutions in all 50
States its data rate is only 1.5 million bits per second, more
than a thousand times slower than the proposed NREN. Even after
NSFNET is upgraded to 45 million bits per second this year,
researchers will be unable to utilize fully the supercomputers
and data bases connected to it. Since use of NSFNET is growing at
a rate of 20 to 30 percent each month, its new capacity will not
be enough to accommodate the increased usage expected in the next
two or three years. For FY 1991, NSF has requested $22.04 million
for NSFNET. Additional funding for both NSF and DARPA will be
needed to develop a multi-gigabit NREN.
The multi-gigabit NREN is needed if researchers are to use the
new networking technology being developed in laboratories around
the country. The first computer networks, built in the late
1960s, enabled computers to exchange data at rates of a few
thousand bits of data a second (a single page of double-spaced
text represents about 10,000 bits of data). Today, there are
experimental computer networks that can transmit billions of bits
of data a second, enabling computer users to share computer
graphics and huge volumes of data in a few seconds. At a billion
bits a second, the entire Encyclopedia Brittanica could be
transmitted to any computer on the network in less than a second.
Unfortunately, these experimental networks are limited,
connecting only a few computers. More research and development
will be needed before the NREN, which will connect thousands of
computers, can be built.
According to the President's FY 1991 budget request (p. 85,
"Budget of the United States Government)," in FY 1990, the
Federal Government spent $448 million on high-performance
computing, and for FY 1991, the President is requesting $469
million, an increase of five percent, which barely covers
inflation. Without additional funding, researchers will not have
access to the supercomputing resources they need; the NREN will
be delayed; development of new, more powerful machines will be
delayed; supercomputer software development will slow; and
insufficient numbers of scientists and engineers will be trained
to use supercomputers.
The funding authorized by S. 1067 would roughly double funding
for supercomputing at NSF and NASA over the next five years, and
would roughly triple NSF's networking budget. These funding
increases parallel those outlined in the 1987 OSTP report and the
follow-up report released in September 1989, "The Federal High
Performance Computing Program."
[9]
LEGISLATIVE HISTORY
On May 18, 1989, Senator Gore introduced S. 1067, legislation
similar to S. 2918, which Senator Gore had introduced in October
1988. S. 1067 is cosponsored by Senators Jeffords, Durenberger,
Pell, Kasten, Conrad, Pressler, Lott, Wirth, Sasser, Kohl, Bryan,
Graham, Kerrey, Robb, Gorton, Reid, Kerry, Cranston, Boschwitz,
Bingaman, Breaux, and Heinz.
The Subcommittee on Science, Technology, and Space held three
hearings on S. 1067. The first hearing, on June 21, 1989, focused
on the NREN. The second hearing, on July 26,1989, considered the
development and application of advanced software and
visualization, and the third one, held on September 15, 1989,
examined present and future technology for managing and
distributing electronic data. Witnesses at the hearings included
several leading computer scientists, representatives of computer,
supercomputer, and telecommunications companies, and
representatives of NSF, DARPA, the U.S. Geological Survey, and
the National Library of Medicine (NLM). Witnesses testified on
the many new applications of supercomputing, and enthusiastically
endorsed the idea of a NREN. Dr. William Wulf, testifying for
NSF, stated that the Administration endorses the goals of the
legislation, but that it opposes S. 1067 because the funding
authorized by the legislation had not been requested in the
President's budget. In addition, the Administration believes that
a five-year budget for research funding should not be made,
because this field is evolving so rapidly.
At its April 3, 1990, executive session, the Commerce Committee
considered in open session and adopted without objection an
amendment in the nature of a substitute for S. 1067. As
introduced, S. 1067 provided funding for DOE and DOD, as well as
NASA and NSF. Because DOE and DOD programs are not generally
authorized by the Commerce Committee, the substitute provides
funding for only NASA and NSF.
Authorizations for the DOE high-performance computing program
are contained in S. 1976, the DOE High-Performance Computing Act,
introduced on November 21, 1989, by Senator Johnston and
cosponsored by Senators Gore and McClure. The Senate Energy
Committee held a hearing on S. 1976 on March 6, 1990, and ordered
the bill reported on June 27, 1990. When it was introduced, the
sponsors of S. 1976 indicated their intention to have S. 1067 and
S. 1976 considered together by the full Senate once each was
reported. Funding for the portion of the HPC program to be
conducted by DOD's DARPA is expected to be provided in the DOD FY
1991 authorization bill.
SUMMARY OF MAJOR PROVISIONS
As reported, S. 1067 would authorize a five-year program
roughly doubling Federal funding for research and development on
supercomputers, advanced computer software, and computer
networks. The major provisions are as follows.
1. Title I establishes an interagency National HPC Program
involving NSF, NASA, DOE, DOD, and other relevant agencies.
Interagency coordination and planning for the program would be
[10]
provided by OSTP's FCCSET, which is to work closely with
industry.
2. Title II requires NSF to work with other agencies to
establish a multi-gigabit NREN by 1996. This network would be
capable of transmitting several billions of bits of data per
second and would link hundreds of thousands of researchers in
government, industry, and universities around the country.
3. Title III makes NSF the lead agency for ensuring that
federally-funded data bases and network services can be accessed
over the network.
4. Title IV calls for expanded software research and
development, especially on software for supercomputers. Most of
the funding would go to scientists, engineers, and computer
scientists using high-performance computing to solve so-called
"Grand Challenges," fundamental problems in science and
engineering, examples of which are provided in the bill as
reported.
5. Title V provides for research on supercomputers and
encourages development of new supercomputing technology by the
private sector.
6. Title VI requires OSTP to oversee and coordinate Federal
programs for basic research in computer technology and for the
education of computer scientists, computational scientists,
information scientists, and electrical engineers.
7. Title VII authorizes $338 million to NASA for FY 1991-95 for
the purposes of the bill. For FY 1991-95, the bill authorizes for
NSF $195 million to establish the network, $64 million for basic
research and education, and $391 million for the other purposes
of titles III, IV, and V. The total authorization for NASA and
NSF for FY 1991 is $68 million.
ESTIMATED COSTS
In accordance with paragraph II(a) of rule XXVI of the Standing
Rules of the Senate and section 403 of the Congressional Budget
Act of 1974, the Committee provides the following cost estimate,
prepared by the Congressional Budget Office:
U.S. CONGRESS,
CONGRESSIONAL BUDGET OFFICE,
Washington, DC, April 27, 1990.
Hon. ERNEST F. HOLLINGS,
Chairman, Committee on Commerce, Science, and Transportation,
U.S. Senate, Washington, DC.
DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared
the attached cost estimate for S. 1067, the High-Performance
Computing Act of 1990.
If you wish further details on this estimate, we will be
pleased to provide them.
Sincerely,
ROBERT D. REISCHAUER,
Director.
CONGRESSIONAL BUDGET OFFICE COST ESTIMATE
1. Bill number: S. 1067.
2. Bill title: The High-Performance Computing Act of 1990.
[11]
3. Bill status: As ordered reported by the Senate Committee on
Commerce, Science, and Transportation, April 3, 1990.
4. Bill purpose: S. 1067 would require the Federal Coordinating
Council on Science, Engineering, and Technology (FCCSET) to
develop and implement a National High-Performance Computing Plan.
It would also mandate that the National Science Foundation (NSF),
in conjunction with the Department of Defense (DOD), the National
Aeronautics and Space Administration, and other relevant federal
agencies, establish a national network of high speed computers,
which would be known as the National Research and Education
Network (NREN).
The requirements of S. 1067 would affect numerous federal
agencies as developers and users of the NREN. For example, the
bill would requires the NSF and NASA to help develop software for
the types of computer used in the network; the National Institute
of Standards and Technology, a part of the Department of
Commerce, would be charged with developing government-wide
standards for computer networks; and the DOD, through the Defense
Advanced Research Projects Agency (DARPA), would have primary
responsibility for research and development on technology needed
for the network. The FCCSET would have the general responsibility
for overseeing and coordinating the work of the agencies involved
in this project.
To fund development of the network, the bill would authorize
appropriations to the NSF and NASA of nearly $1 billion over five
years. The bill would also authorize NSF to charge a fee for use
of the system.
5. Estimated cost to the Federal Government:
The costs of this bill would be in budget functions 250 and
370.
Basis of estimate: This estimate assumes that the full amounts
authorized would be appropriated for each fiscal year. Based on
information provided by the Department of Commerce, CBO estimates
that the cost of research and studies required by the bill but
not specifically authorized would be roughly $12 million per year
beginning in 1991; this amount, with adjustments for inflation,
is shown as the estimated authorization level in the table above.
The estimated outlays are based on historical spending patterns.
CBO expects that fees for use of the network would be phased in
once the network is operating, which would probably be in 1993 or
1994. Receipts from these fees could ultimately provide a
signifi-
[12]
cant offset to the operating costs of the network. Nevertheless,
we do not expect that receipts would be significant during the
five-year period covered by this estimate.
6. Estimated cost to State and local governments: None.
7. Estimate Comparison: None.
8. Previous CBO estimate: None.
9. Estimate Prepared by: Doug Criscitello and Michael Sieverts.
10. Estimate approved by: James L. Blum, Assistant Director for
Budget Analysis.
REGULATORY IMPACT STATEMENT
In accordance with paragraph II(b) of rule XXVI of the Standing
Rules of the Senate, the Committee provides the following
evaluation of the regulatory impact of the legislation, as
reported.
NUMBER OF PERSONS COVERED
This legislation provides additional funding for research and
development in high-performance computing. This will not result
in new regulations, because the additional funding provided by
the legislation would be distributed according to existing
regulations regarding NSF research grants and NASA contracts.
These regulations would apply only to those persons and companies
choosing to apply for this funding.
ECONOMIC IMPACT
This legislation authorizes $988 million in additional Federal
spending for FY 1991-95. By providing for improved inter-agency
coordination, this legislation should improve the effectiveness
of Federal research and development on high-performance
computing.
This legislation also requires the National Institute of
Standards and Technology (NIST within the Department of Commerce
(DOC) to develop guidelines and standards: (l) to provide for
interoperability of Federal computer networks, and (2) to promote
the use of "open systems software" which can run on several
different computer systems. These guidelines should be
cost-effective in increasing the usefulness of Federal networks
and software purchased by the Federal Government.
PRIVACY
This legislation will not have any adverse impact on the
personal privacy of individual Americans. The creation of the
NREN and associated databases will make existing Federal
scientific data bases (including economic data and census data)
more accessible to users throughout the country, but personal
data already protected by rules and regulations (e.g., tax
returns and individual census forms) will remain confidential.
PAPERWORK
This legislation requires FCCSET to submit an annual report to
the President and the Congress on the National HPC Program. The
National Telecommunications and Information Administration (NTIA)
within DOC is to report to Congress on whether State and
[13]
Federal telecommunications laws and regulations hinder or
facilitate private industry participation in the data
transmission field. OSTP shall report to Congress on options for
charging users of the NREN and the databases connnected to it.
DOC is to report to Congress on whether Federal procurement
regulations discourage the development of better software
development tools and on whether export controls hinder the
development of foreign markets for North American manufacturers
of high-performance computer systems.
SECTION-BY-SECTION ANALYSIS
SECTION 1.--SHORT TITLE
This section states that the bill may be cited as the
"High-Performance Computing Act of 1990".
SECTION 2.--FINDINGS AND PURPOSES
This section contains the Congressional findings and purposes
of the Act. Under subsection (1), Congress finds, among other
things, that advances in computer technology are vital to the
prosperity, national and economic security, and scientific
advancement of the United States. Under subsection (b), to
maintain leadership in computer technology and its applications,
and to reap the benefits of high-performance computing, the
reported bill calls for expanding Federal support for research,
development, and application of high-performance computing, and
improving planning and coordination of Federal research and
development on high-performance computing. Subsection (b) states
that this legislation is intended to help establish a
high-capacity national research and education computer network;
expand the numbers of researchers, educators and students with
training in and access to high-performance computing; develop a
system of data bases and other services available through such a
network, accelerate development of more powerful supercomputers
and other advanced computer systems; stimulate research and
development of better software for both supercomputers and other
computers; promote application of high-performance computing to
"Grand Challenges" of science and engineering; and provide for
basis research in high-performance computing.
SECTION 3.--DEFINITIONS
Definitions of "North American Company" and "Grand Challenge"
are provided in Section 3.
Several provisions in this bill are designed to assist U.S.
industry. However, the recently signed Free Trade Agreement
between the United States and Canada is to encourage economic
cooperation between the two nations and reduce economic barriers.
Therefore, the term "North America company" is used to allow
Canadian and U.S.-Canadian joint ventures to benefit from these
provisions.
A "Grand Challenge" is a fundamental problem in science and
engineering, with broad economic and scientific impact, whose
solution will require the application of high-performance
computing resources. Examples of Grand Challenges include
modeling of global
[14]
change, designing of new materials and drugs, and deciphering of
the human genome.
TITLE I
SECTION 101.--NATIONAL HIGH-PERFORMANCE COMPUTING PROGRAM
This section amends the National Science and Technology Policy,
Organization, and Priorities Act of 1976 (42 U.S.C. 6601 et seq.,
hereinafter referred to as "the Science Act") in order to
establish a National HPC Program coordinated by OSTP. This
section would add a new title VI to the Science Act, with the
following sections:
New section 601 contains findings similar to those in section 2
of the reported bill.
New section 602 mandates a National HPC Plan, which under
subsection (a)(l) is to be developed and implemented by FCCSET.
FCCSET is chaired by the Chairman of OSTP, who is traditionally
also the President's Science Advisor. It is currently charged
with addressing research issues and coordinating research
programs that involve more than one Federal agency. For instance,
in recent years, FCCSET has done an exemplary job of providing
high-level coordination on global change research. The National
Global Change Research Program can serve as a model for the
National HPC Program. As with global change research,
high-performance computing involves several agencies, and there
is no one agency with the expertise, breadth, and facilities to
oversee all Federal efforts in the field. FCCSET provides a
mechanism for building on existing agency programs, preventing
duplication of effort, and identifying previously unaddressed
problems, without establishing a new bureaucratic entity. In
addition, building on existing agency programs, rather than
creating a separate agency for high-performance computing, would
ensure that new developments in high-performance computing are
utilized by individual agencies to accomplish their different
missions.
Under subsection (a)(2) of new section 602, the plan is to
establish the goals and priorities for a National HPC Program, to
set forth the roles and computer research budgets of the agencies
involved, and to include the results of studies by Federal
agencies and departments, the National Research Council (NRC),
and other entities. The Committee expects that the plan would be
similar to the 1989 OSTP report, "The Federal High-Performance
Computing Program," except that it also would include a budget
showing the level of funding for each of the activities
undertaken in support of the program by each of the agencies
involved and provide a comprehensive inventory of what
high-performance computing programs are currently underway
throughout the Federal government that could contribute to the
National HPC Program.
Under subsection (a)(3), the plan would summarize the
activities of NSF, DOC, NASA, DOD, DOE, the Department of Health
and Human Services (HHS), the Department of Education, the
Library of Congress, the NLM, the National Agricultural Library,
and other relevant agencies.
Subsection (b) of new section 602 provides that FCCSET will
have the lead in developing and implementing the plan. At least
once a
[15]
year, the Chairman of FCCSET will report to the President on how
to improve implementation of the plan.
Working through the Executive Office of the President, and
especially with the Office of Management and Budget (OMB), FCCSET
should provide the high-level coordination needed to direct and
implement effectively the National HPC program. Coordination
between OMB and FCCSET will be critical to the success of the
program. Under subsection (b)(3), prior to the submission of the
President's annual budget request, FCCSET will review each agency
and department's budget estimate to determine how it contributes
to the implementation of the HPC program. This review is intended
to guide OMB in determining each agency's budget for
high-performance computing.
In addition, FCCSET will work with Federal agencies, the NRC,
and other groups involved in high-performance computing to
formulate and implement the plan. To receive advice from industry
and academia, OSTP is directed under subsection (c) of new
section 602 to establish an HPC Advisory Panel which will
consider issues pertaining to the program and evaluate its
progress, focus, and direction. This panel primarily should
provide advice on policy decisions regarding the National HPC
Program. The Committee realizes that additional funding will be
necessary for this panel and encourages the Administration and
the Appropriations Committees to increase funding for OSTP
accordingly.
This new section in subsection (d) also describes the existing
missions of ten of the agencies that will contribute to the
National HPC Program. By summarizing the agencies' existing
roles, the Committee intends to ensure that existing agency
programs are incorporated into the National HPC Program. The
inclusion of current research roles is not intended to limit
agency responsibilities or to interfere otherwise with the
flexibility that will be required by FCCSET to develop and
implement a comprehensive national research program. The
Committee expects agency responsibilities to evolve over time, as
the challenges associated with high-performance computing change
and the technology advances. In addition, this subsection
requires the agencies to work together to connect their computer
networks and to improve, share, and distribute computer software
they have developed.
As outlined in the 1989 OSTP report, the four key agencies in
the National NPC Program are NSF, DARPA, NASA, and DOE. NSF will
continue to fund university research and development in
high-performance computing and provide researchers with access to
state-of-the-art supercomputers. In addition, NSF is to implement
the NREN. DARPA's first priorities will be to develop the
multi-gigabit network technology needed to build the NREN and to
fund development of future generations of supercomputers and
other advanced computer systems. DARPA will fund development of
new advanced conventional and massively-parallel supercomputers.
DARPA also will work with and provide technical support to the
high-performance computing research programs within the Army, the
Navy, the Air Force, the National Security Agency, and other
parts of DOD. NASA will continue to conduct basic and applied
research on high-performance computing, with particular emphasis
on the development of applications for supercomputing in
[16]
areas like aeronautics and the processing of remote-sensing data.
DOE will continue to conduct basic and applied research in high-
performance computing, particularly in software development and
development and use of parallel-processing supercomputers.
Concerns have been expressed in the past that technology
developed at DOE has not been transferred effectively to the
private sector. As part of the National HPC Program, DOE and
other agencies will ensure that unclassified computer research is
readily available to North American companies. This provision
should not be interpreted as barring foreign firms from access to
high-performance computing technology developed with Federal
funding, but simply requires that special emphasis should be
given to encouraging technology transfer to North American firms,
which often have been slower to utilize federally-funded research
and development than their foreign competitors.
While the amount of funding provided for NIST for its part of
the National HPC Program is a small fraction of that provided to
the four key agencies, NIST has a critical role to play in
developing the standards and guidelines needed to ensure
compatibility of different computer systems and networks. In
conjunction with the NSA, NIST has important responsibilities in
the area of computer security. The privacy of network users and
the integrity of data bases connected to the network must be
protected. In addition, under section 403 of this bill, NIST will
play a key role in promoting use by the Federal Government of
"open systems software," which can be easily transported from one
type of computer system to another. It is anticipated that
additional funding requests for high-performance computing
programs at NIST will be needed.
The National Oceanic and Atmospheric Administration (NOAA),
responsible for managing much of the earth science data collected
by Federal programs, has an important role to play in the
National HPC Program, both as a user of advanced computer systems
and networks, and as a supplier of data to users for the NREN and
others. NOAA has huge archives of remote-sensing satellite data,
such of which has not been analyzed thoroughly. The NREN and the
supercomputers developed as part of this program will help
researchers make better use of existing NOAA data and of data
that will be collected in the future.
Other agencies involved in the National HPC Program will play
important roles, especially in developing applications for
supercomputing and networking for use in both the research
community and beyond. In particular, the Committee encourages the
DOE, through its library programs, to initiate and fund projects
that promote linkages between existing library and information
science networks and the NREN. The benefits of this enhanced
resource sharing among networks are improved end user document
delivery, improved interlibrary resource sharing and electronic
interlibrary loans, and improved communication between users in
the NREN and users outside the NREN.
The three national libraries--the Library of Congress, the
National Agriculture Library, and the NLM--have long been at the
leading edge of automation of library functions, creation and
standardization of bibliographic and information data bases, and
electronic transmittal of information about their holdings to
libraries
[17]
across the county via library networks. All three libraries are
now experimenting with electronic formats for entire portions of
their collections, including some use of the Internet. The advent
of the NREN will permit new opportunities for the research and
academic communities to benefit from these information resources
in performing research and in the creation of new knowledge that
will improve the U.S. economic competitiveness.
The Committee is particularly interested in the work being done
at the NLM, and elsewhere, to use national computer networks for
the sharing of biomedical research information. For instance, the
NLM's Medline system provides references and abstracts from
medical literature to doctors throughout the country, providing
an invaluable service, especially to doctors in rural areas as
far from major libraries. Ongoing research at NLM is providing
the technology needed for doctors thousands of miles apart to
share X-ray images, CAT scans, PET scans, and other medical
imagery. In this way, a general practitioner will be able to
obtain advice from specialists anywhere in the country.
A biomedical community clearly has much to gain from advances
in high-performance computing and the use of computer networks,
and should be encouraged to take advantage of this technology.
Unfortunately, relatively few laboratory-based biomedical
researchers at universities, and almost no clinical researchers
or health care practitioners, use the current Internet. At the
same time, it is clear that new computer-based technologies, such
as clinical imaging, are essential to accurate diagnosis and
treatment and to the conduct of biomedical research. Improved
methods of communications among health care practitioners and
life sciences researchers will facilitate basic and clinical
research, and accelerate the search for cures of many human
diseases.
Therefore, it is envisioned that within HHS, the National
Institutes of Health (NIH) and the NLM will establish the
appropriate mechanisms to ensure the development of a biomedical
component of the NREN and promote and facilitate the use of the
NREN by the biomedical research community. The NREN will serve as
an invaluable testbed for development of networking applications
for the health care community since most Federal health care
agencies (e.g., NIH and NLM) will be connected to NREN as will
many university medical centers, hospitals, and other medical
facilities. The medical community will help spur the development
of high-speed commercial computer networks as doctors become more
and more dependent upon medical imaging and as they recognize the
potential of high-speed networking technology.
Finally, under new section 602(e), each Federal agency and
department involved in high-performance computing, as part of its
annual request to OMB for appropriations, is to submit a report
to OMB identifying its high-performance computing activities. OMB
is to review each such report in light of the HPC Plan and shall
include in the President's budget each agency or department's
budget allocation to high-performance computing activities.
New section 603 mandates that the Chairman of FCCSET submit an
annual report to the President and the Congress on the National
NPC Program. The report shall summarize, among other things, the
progress made by the program, detail the agency budgets for
[18]
high-performance computing, and recommend any additional action
or legislation which may be required to assist in achieving the
purposes of the legislation.
SECTION 102.--AMENDMENTS TO THE SCIENCE ACT
This section would amend section 102(a) of the Science Act,
which identifies the principles that form the basis for national
science and technology policy. The list of principles would be
expanded to emphasize the need for comprehensive long-term
planning of research to address complex scientific issues of
national and international concern. The purpose of such planning
would be to ensure a scientific basis for policy decisions.
This section, in subsection (b), also amends section 401 of the
Science Act, which defines the responsibilities of FCCSET.
Section 401 also provided for FCCSET's initial creation. However,
during a 1977 reorganization, FCCSET was abolished, its functions
were transferred to the President, and it was later reestablished
under executive order. Section 401(a), as amended, simply
restates the responsibilities of FCCSET under the Science Act,
reflecting that reorganization.
Section 401(b), as amended, would provide FCCSET with new
authority to develop and coordinate interagency research. FCCSET
would formulate plans that would identify critical research needs
and provide for cooperation among government, industry, and
academic scientists in the United States and overseas. Section
401(c) and (d), as amended, address FCCSET's authority to perform
advisory duties assigned by the President or its chairman and the
requirement that Federal agencies represented on FCCSET furnish
necessary assistance to FCCSET. Also section 401(e), as amended,
would add the development of interagency plans to the purposes
for which FCCSET committees and working groups may be formed.
TITLE II--NATIONAL RESEARCH AND EDUCATION NETWORK
SECTION 201.--FUNCTIONS OF THE NETWORK
This section requires NSF to work with DOD and other relevant
agencies to establish a national computer network capable of
transmitting more than two billion bits of data (gigabits) per
second. Such a network would connect more than half a million
computers and their users at more than 1,000 colleges,
universities, Federal laboratories, industry laboratories,
libraries, and other institutions in all fifty States. This would
provide access to supercomputers, computer data bases, and other
research facilities.
The NREN would be developed in close cooperation with the
computer and telecommunication industries and with potential
users in government, industry, and the higher education
community, including researchers, librarians, educators, and
information services providers. The network is to be established
in a manner that fosters competition and private-sector
investment in high-speed data networking within the
telecommunications industry.
One way to meet these goals is to develop and operate the NREN
in much the same way as NSF's NSFNET, a national computer
[19]
network connecting the five NSF supercomputer centers and over
500 colleges and universities. NSF funds NSFNET's high-speed (1.5
million bits per second), interstate "backbone" which connects
the supercomputer centers and other facilities. Regional
networks, both private or non-profit, connect the backbone to
individual colleges and universities which in turn have their own
local campus networks. The NSFNET backbone has been built and
managed by MERIT, a consortium of Michigan universities, in
cooperation with MCI Telecommunications and IBM, which provide
fiber optic phone lines and computer hardware as well as
technical expertise. This kind of industry-government-academia
partnership provides for the rapid development of networking
technology and its rapid dissemination.
In order to ensure that the NREN does not compete unfairly with
commercial high-speed networks, paragraph (8) provides that it is
to be phased out when national commercial high-speed networks can
meet the networking needs of American researchers, by providing a
cost-effective alternative to the NREN. To provide for a smooth
transition to commercial service, mechanisms shall be established
under paragraph (7) for charging network users or their
institutions for their use of the network. Otherwise, if
networking is provided free to the user, networking resources
will be wasted, and it will be very difficult to phase out the
NREN and replace it with commercial networks.
In addition under paragraph (7), mechanisms for charging for
the use of copyrighted material available over the NREN shall be
implemented, where technically feasible. These mechanisms should
not be implemented without due consideration of both the rights
of authors and the rights of users of copyrighted material.
Specifically, provision needs to be made for the fair use of
copyrighted works for teaching scholarship, or research.
The development and implementation of pricing schemes for users
of the NREN likely will be technically difficult when gigabit
networking technology is in its infancy. The inability to
implement such schemes, however, should not delay the deployment
of a gigabit network.
SECTION 202.--AGENCY RESPONSIBILITIES
This section requires under paragraph (l) that FCCSET establish
a Federal Networking Advisory Committee to provide technical
advice to FCCSET from the interest involved in existing Federal
research networks and the NREN. In contrast to the HPC Advisory
Panel established under title I, in new section 602(c) of the
Science Act, this advisory committee is not intended to provide
advice on broad policy issues, but instead will address technical
problems encountered in establishing the NREN. In addition,
FCCSET is to submit to Congress, within one year of enactment of
this bill, a report on how best to fund and commercialize the
NREN.
Under paragraph (2), NSF and all other Federal agencies which
provide research grants shall allow grantees to use grant monies
to pay for use of computer networks. Although policies vary with
each agency, today most recipients of Federal research grants
cannot use grant money for any type of telecommunications
expenses. Pro-
[20]
viding funding for computer networking would increase the
productivity of researchers, who are increasingly dependent upon
computers and computer networks to manipulate, search, store, and
share their data.
DARPA shall have primary responsibility under paragraph (3) for
developing the gigabit networking technology needed to create the
NREN. Under paragraph (4) NIST, in cooperation with other
agencies, shall adopt government-wide networking standards and
guidelines to enable government networks to be linked together.
These standards will be adopted with the advice and comment of
private industry, will provide common user interfaces to systems,
and will provide enhanced security for the NREN. It is expected
that, in addition, work being done at NIST, such as measurement
research and development needed to develop advanced optical
fibers and optoelectronic components for high-performance optical
fiber communications, will contribute to the National HPC Pro-
gram.
Within one year of enactment, NTIA under paragraph (5) shall
report to Congress on whether State and Federal
telecommunications laws and regulations hinder or facilitate
private industry participation in the data transmission field. In
particular, the report should focus on development of data
transmission systems, using high-speed fiber optic networks.
TITLE III--INFORMATION SERVICES
SECTION 301.--DATA SERVICES
This section gives NSF responsibility for working with other
relevant Federal agencies to promote development of several
information services over the NREN. In particular, NSF shall
provide for a directory of users of the NREN and other networks.
It also shall provide directories of the different data basis
available over the NREN. In addition, it is to identify and
provide for access to Federal scientific data bases (e.g.,
whether data, satellite data, economic data, and other research
data) and provide data bases and knowledge banks for use by
artificial intelligence (AI) programs. AI experts have developed
computer programs called "know-bots" which can search data bases
and knowledge banks for the information users need. Knowledge
banks consist of textbook knowledge stored in computer-based form
so that AI programs can access and use it.
This section also requires NSF to help provide access to
"digital libraries" of video programming, books and journals
stored in electronic form, and other computer data. It is
expected that NREN users will have access to commercial
information services like Lexis-Nexis and Dialog, with
appropriate mechanisms for charging customers of these services.
NSF also shall provide for orientation and training of users of
networks and data bases, by providing training software on the
networks they use and by providing experts to guide and teach
users of those networks.
The NREN also will provide access to research facilities like
radio telescopes, seismometers, and manufacturing facilities. A
particularly noteworthy example of such a manufacturing facility
is one operated by DARPA. Called MOSIS (for Metal Oxide
Semiconductors Implementation System), it allows integrated
circuit design-
[21]
ers to send their designs electronically over a network to an
integrated circuit foundry where the design can be turned into
hardware in only a few weeks. This rapid turn-around time
compares to typical turn-around times of several months. Several
other federally-funded programs, including DOD's CALS and MANTECH
(Manufacturing Technology) programs, DOC's Product Design
Electronic Specification (PDES), and NIST's Manufacturing
Technology Centers programs, are using visualization and
electronic specifications ("electronic blueprints") to improve
the productivity and flexibility of American manufacturers.
SECTION 302.--OSTP REPORTS TO CONGRESS
This section requires that, within one year of enactment of the
legislation OSTP shall report to Congress on several issues,
including mechanisms for charging information service providers
for access to the NREN, the technology needed to charge users of
such services for their use of them, and charge-back mechanisms
and other ways to pay copyright holders royalties for use of
their material by NREN users. In addition, the Committee has
become increasingly concerned by the growing number of reports of
computer viruses and unauthorized use of government and
university computer systems. Therefore, OSTP is to report on
appropriate policies to ensure the security of data bases and
other resources available on the NREN and protection of the
privacy of NREN users. In developing this report, OSTP should
work closely with OMB, which is involved in establishing many
aspects of government information policy.
TITLE IV--SOFTWARE
SECTION 401.--THE GRAND CHALLENGES
This section instructs OSTP in subsection (a) to coordinate and
oversee research and development of software for high-performance
computer systems. Under subsection (b), this software is to be
developed, in particular, to address so-called Grand Challenges
of sciences and engineering, complex problems of great economic
and scientific importance whose solution requires the use of the
most advanced computer systems and software. This subsection
lists several examples of Grand Challenges to be addressed by NSF
and NASA, including prediction of global change, accurate
modelling of turbulence, and processing of the huge volumes of
data produced by telescopes and other astronomical facilities.
The Grand Challenges listed in this section are merely examples
and are not meant to limit the scientific problems that might be
addressed. Some other potential Grand Challenges are in the
fields of molecular biology, superconductivity, the human genome,
theoretical physics, nuclear fusion, and oil and gas exploration.
An appendix to the 1989 OSTP report summarizes twenty Grand
Challenges. Both NSF and NASA shall provide support to
interdisciplinary groups of scientists, engineers, computer
scientists, and computational scientists to develop the
high-performance computer systems and software needed to address
the Grand Challenges.
[22]
DOE has funded several such groups, including University of
Tennessee/Oak Ridge National Laboratory Joint Institute for
Computational Science, which has focused on development of
computational tools for massively-parallel supercomputers needed
to address a number of Grand Challenges, and the National
Supercomputing Center for Energy Research at the University of
Nevada, Las Vegas (UNLV), which is using high-performance
computing to study radioactive waste management, among other
issues. These DOE programs bring together resources from the
Federal Government, universities, and industry, and can serve as
models for similar cooperative efforts at other agencies.
In addition to addressing Grand Challenges, NSF will support
under subsection (c), basic research on software and development
of tools and techniques for accelerating the development of
software, especially for supercomputers. Such tools and
techniques are essential if supercomputing is to become a
routinely-used research tool. This is particularly true for
massively-parallel supercomputers, which often can be used for
only a limited set of problems because existing software does not
allow for use of the full capabilities of the systems.
SECTION 402.--SOFTWARE CLEARINGHOUSE
This section instructs NSF to establish and maintain
clearinghouses of research software. Too often, scientists and
engineers supported by Federal research grants develop new
computer programs for a particular project on which they are
working, and then, after they have completed the project, they
set aside these programs, never to be used again. Later, another
researcher working on a similar project has to develop new
software because there is no way of knowing that the needed
software is already available elsewhere.
These clearinghouses would allow researchers to deposit
voluntarily their research software at the clearinghouse where it
would be catalogued and made available to others. Staff at the
clearinghouse could make such software easier to use and
accessible to other researchers over the NREN. In addition, the
clearinghouse would provide funding to researchers to upgrade and
document their software so that other researchers would be able
to use it more easily and more broadly. The clearinghouses are to
promote the commercialization of particularly popular and useful
software, always respecting the intellectual property rights of
the researchers who originally created the software. The
committee believes that the NSF Supercomputer Centers are
well-equipped to serve as clearinghouses for software for both
supercomputers and less powerful computers.
SECTION 403.--SOFTWARE STANDARDS
NIST will develop, in conjunction with industry, standards that
will promote the Federal Government's use of so-called "open
systems software," which can be used on many different computer
systems. Such software can reduce greatly the time and effort
required to shift software from one system to another and thus
increase the productivity of computer users.
[23]
SECTION 404.--COMMERCE DEPARTMENT REPORTS
This section requires that, within one year of enactment of
this Act, the Secretary of Commerce (Secretary) shall report to
Congress on the impact of Federal procurement regulations which
require that contractors share the rights to proprietary software
development tools and on whether Federal procurement regulations
discourage the development of better software development tools
and techniques. It is expected that this report will be written
in consultation and cooperation with DOD, NASA, and other
agencies which contract for large amounts of customized software.
At present, in most agencies, if a contractor sells software to
the government, that contractor must not only provide the
software itself, but also must provide the software used to
develop it. Today, many software companies use proprietary
software tools to streamline software development, and these
tools can require more money and manpower to make than the
software that they are used to produce. Because of anachronistic
procurement regulations, companies are discouraged from
developing better, easier-to-use software tools, and if they do
develop them, they do not use them to produce government
software, resulting in the government paying higher prices for
lower-quality software.
TITLE V--COMPUTER SYSTEMS
SECTION 501.--RESEARCH ON COMPUTER SYSTEMS
This section requires NSF to provide for research and
development on high-performance computer systems. Such research
is not to be limited only to supercomputers, but shall include
work on input/output devices, memory and mass storage devices,
communication devices, and the systems software required to make
for the operation of supercomputers.
SECTION 502.--PROCUREMENT OF PROTOTYPE MODELS
OF SUPERCOMPUTERS
In the 1970s, several Federal agencies, including DOE, DOD, and
NSA, purchased prototype or early production models from American
computer manufacturers. Such purchases gave fledging companies,
like Cray Research, Inc., the money they needed to become viable
companies. Equally important, Cray and other companies were able
to have their machines tested by scientists and engineers working
on real problems. The first Cray 1 was installed at Los Alamos
National Laboratory before Cray had been able to complete the
systems software for the new machine. Input from DOE scientists
helped make Cray the work leader in the supercomputer industry.
Unfortunately, in recent years, many agencies have been
discouraged from making purchases of prototypes by regulations
stemming from the so-called "Brooks Act" and other laws
regulating Federal purchases of computer equipment. Although this
was not the intent of the Brooks Act, regulations resulting from
that Act make it very difficult for an agency to contract to buy
a supercomputer before it is in production. Unfortunately,
without such pre-
[24]
production contracts, a fledging supercomputer company is
unlikely to survive.
This section makes clear that Federal agencies can and should
buy prototype and early production models of leading-edge,
high-performance computer systems and subsystems. Such purchases
provide critically-needed opportunities to test new design
concepts and can be particularly effective in promoting
commercialization of leading-edge technologies. This section also
provides that particular emphasis is to be given to promoting
development of advanced display technology (which will be needed
for high-definition television (HDTV) and subsequently digital
TV), supercomputers with alternative architectures, advanced
storage devices, and very high-speed (multi-gigabit-per second)
communications links.
SECTION 503.--REPORT ON EXPORT CONTROLS
This section requires the Secretary, within 120 days of date of
enactment, to review and report to Congress on, export controls
that hinder the development of foreign markets for North American
manufacturers of high-performance computer systems. Supercomputer
technology is advancing so quickly that export restrictions often
become out-dated in a few years. Export controls imposed 10 years
ago would prohibit export to many countries of most personal
computers available today. Therefore, it is essential that export
controls be reviewed frequently so that North American
supercomputer manufacturers are not at a disadvantage relative to
foreign competition operating under more relaxed export controls.
This section also requires that any review is to be conducted in
consultation with the Department of State, DOD, the Central
Intelligence Agency, NSA, and other appropriate agencies, in
order to take into account national security and other concerns.
TITLE VI--BASIC RESEARCH AND EDUCATION
SECTION 601.--BASIC RESEARCH AND EDUCATION
This section requires OSTP to oversee and coordinate efforts a
the relevant agencies and departments to support basic research
on computer technology and create technology transfer mechanisms
t ensure that the results of such basic research are readily
available to North American companies. These provisions should
not be interpreted as barring foreign companies from access to
federally funded technology. In addition, under this section ASTP
is to coordinate efforts to promote basic research in computer
science ar engineering, computational science, library and
information sciences, electrical engineering, and materials
science, and to train more researchers in computer science and
computational science. "Computational scientists" come from all
disciplines of science a engineering, but all use
high-performance computing to find solutions to the problems they
are studying.
NSF traditionally has had a large role in funding basic
research and education in colleges and universities. However,
other agencies have a role as well. According to the 1989 OSTP
report, NASA, DOE, and DARPA are planning to allocate at least
ten per-
[25]
cent of their budgets for high-performance computing to basic
research and education.
TITLE VII--AUTHORIZATIONS
For FY 1991-95, the reported bill authorizes $338 million to
NASA for the purposes of titles II, III, IV, V, and VI. This is
in addition to funds authorized in other legislation. To maximize
the President's flexibility in implementing the high-performance
computing program, the funding for NASA's part of the program has
not been divided among the various components of the program.
Authorizations for NSF for the purposes of titles III, IV, and
V total $391 million. Of that amount, the Committee expects that
between 10 and 15 percent shall be allocated for the purposes of
title III. In addition, there is authorized to NSF $195 million
to establish the network and $64 million for basic research and
education. The separate authorizations to NSF for the NREN and
for basic research are to highlight the importance of those two
activities. These authorizations are in addition to those made in
the NSF Authorization Act of 1988 (P.L. 100-570), which
authorized funding for NSF for FY 1989-93. Since that legislation
was enacted, the use of high-performance computing in research
has become more widespread, and it has become clear that
additional funding is required to expand NSF's high-performance
computing program.
The authorizations provided in this legislation do not include
monies for DARPA and DOE, the other two principal agencies in the
National HPC Program. DOE, and in particular its national
laboratories, has on-going high-performance computing programs
that would be expanded as part of the national program. The
authorization of funding for DOE's part of the National HPC
program is provided in S. 1476, which the Senate Committee on
Energy and Natural Resources ordered reported on June 27, 1990.
Funding for DARPA's high-performance computing program is
expected to be authorized in the DOD FY 1991 reauthorization
bill.
AUTHORIZATIONS IN S 1067
(In millions of dollars)
_________________________________________________________________
Fiscal year- Total
1991 1992 1993 1994 1995
______________________________________
For NSF:
Networking........... 15 25 55 50 50 195
Information Services,
Software, and Computer
Systems.............. 23 53 77 107 131 391
Basic Research
and Education........ 8 10 13 15 18 64
Total.................46 88 145 172 199 650
For NASA............. 22 45 67 89 115 338
_________________________________________________________________
CHANGES IN EXISTING LAW
In compliance with paragraph 12 of rule XXVI of the Standing
Rules of the Senate, changes in existing law made by the bill, as
reported, are shown as follows (existing law proposed to be
omitted
[26]
is enclosed in black brackets, new material is printed in italic,
existing law in which no change is proposed is shown in roman):
NATIONAL SCIENCE AND TECHNOLOGY POLICY, ORGANIZATION, AND
PRIORITIES ACT OF 1976
Section 102 of That Act
DECLARATION OF POLICY
SEC. 102. (a) PRINCIPLES.--In view of the foregoing, the
Congress declares that the United States shall adhere to a
national policy for science and technology which includes the
following principles:
(l) through (5) * * *
[(6) The recognition that, as changing circumstances require
periodic revision and adaptation of title I of this Act, the
Federal Government is responsible for identifying and
interpreting the changes in those circumstances as they occur,
and for effecting subsequent changes in title I as appropriate.]
(6) The development and implementation of long-range,
interagency research plans to support policy decisions regarding
identified national and international concerns, and for which a
sustained and coordinated commitment to improving scientific
understanding will be required.
(b) through (c) * * *
Section 207 of That Act
ADDITIONAL FUNCTIONS OF THE DIRECTOR: ADMINISTRATIVE PROVISIONS
SEC. 207. (a) The Director shall, in addition to the other duties
and functions set forth in this title--
(l) serve as Chairman of the Federal Coordinating Council
for Science, Engineering, and Technology [established under Title
IV]; and
(2) serve as a member of the Domestic Council--
(b) through (c) * * *
Section 401 (a) of That Act
[ESTABLISHMENT AND FUNCTIONS
[SEC. 401. (a) There is established the Federal Coordinating
Council for Science, Engineering, and Technology (hereinafter
referred to as the "Council").
[(b) The council shall be composed of the Director of the
Office of Science and Technology Policy and one representative of
each of the following Federal agencies: Department of
Agriculture, Department of Commerce, Department of Defense,
Department of Health, Education, and Welfare, Department of
Housing and Urban Development, Department of the Interior,
Department of State, Department of Transportation, Veterans'
Administration National Aeronautics and Space Administration,
National Science Foundation, Environmental Protection Agency, and
Energy Research and Development Administration. Each such
representative shall be an official of policy rank designate by
the head of the Federal agency concerned.
[27]
[(c) The Director of the Office of Science and Technology
Policy shall serve as Chairman of the Council. The Chairman may
designate another member of the Council to act temporarily in the
Chairman's absence as Chairman.
[(d) The Chairman may (1) request the head of any Federal
agency not named in subsection (b) of this section to designate a
representative to participate in meetings or parts of meetings of
the Council concerned with matters of substantial interest to
such agency, and (2) invite other persons to attend meetings of
the Council.
[(e) The Council shall consider problems and developments in
the fields of science, engineering, and technology and related
activities affecting more than one Federal agency, and shall
recommend policies and other measures designed to--
[(l) provide more effective planning and administration of
Federal scientific engineering, and technological programs,
[(2) identify research needs including areas requiring
additional emphasis,
[(3) achieve more effective utilization of the scientific,
engineering, and technological resources and facilities of
Federal agencies, including the elimination of unwarranted
duplication, and
[(4) further international cooperation in science,
engineering, and technology.
[(f) The Council shall perform such other related advisory
duties as shall be assigned by the President or by the Chairman.
[(g) For the purpose of carrying out the provisions of this
section, each Federal agency represented on the Council shall
furnish necessary assistance to the Council. Such assistance may
include--
[(1) detailing employees to the Council to perform such
functions, consistent with the purposes of this section, as the
Chairman may assigned to them, and
[(2) undertaking, upon request of the Chairman, such special
studies for the Council as come within the functions herein
assigned.
[(h) For the purpose of conducting studies and making reports
as directed by the Chairman, standing subcommittees and panels of
the Council may be established. Among such standing subcommittees
and panels of the Council shall be the Subcommittee on Food,
Agriculture, and Forestry Research. This subcommittee shall
review Federal research and development programs relevant to
domestic and world food and fiber production and distribution,
promote planning and coordination of this research in the Federal
Government, and recommend policies and other measures concerning
the food and agricultural sciences for the consideration of the
Council. The subcommittee shall include, but not be limited to,
representatives of each of the the National Science Foundation,
the Environmental Protection Agency, and the Tennessee Valley
Authority. The principal representatives of the
[28]
Department of Agriculture shall serve as the chairman of the
subcommittee.
FUNCTIONS OF COUNCIL
SEC. 401. (a) The Federal Coordinating Council for Science,
Engineering, and Technology (hereinafter referred to as the
"Council") shall consider problems and developments in the fields
of science, engineering, and technology and related activities
affecting more than one Federal agency, and shall recommend
policies and other measures designed to--
(1) Provide more effective planning and administration of
Federal scientific, engineering, and technological programs;
(2) identify research needs, including areas requiring
additional emphasis;
(3) achieve more effective utilization of the scientific,
engineering, and technological resources and facilities of
Federal agencies, including the elimination of unwarranted
duplication; and
(4) further international cooperation in science,
engineering, and technology.
(b) The Council may be assigned responsibility for developing
long-range and coordinated plans for scientific and technical
research which involve the participation of more than two Federal
agencies. Such plans shall--
(1) identify research approaches and priorities which most
effectively advance scientific understanding and provide a basis
for policy decisions;
(2) provide for effective cooperation and coordination of
research among Federal agencies; and
(3) encourage domestic and, as appropriate, international
co-operation among government, industry, and university
scientists.
(c) The Council shall perform such other related advisory
duties as shall be assigned by the President or by the Chairman
of the Council.
(d) For the purpose of carrying out the provisions of this
section, each Federal agency represented on the Council shall
furnish necessary assistance to the Council. Such assistance may
include--
(1) detailing employees to the Council to perform such
functions, consistent with the purposes of this section, as the
Chairman of the Council may assign to them; and
(2) undertaking, upon request of the Chairman, such special
studies for the Council as come within the scope of authority of
the Council.
(e) For the purpose of developing interagency plans,
conducting studies, and making reports as directed by the
Chairman, standing committees and working groups of the Council
may be established.
[29]
New Title VI of That Act
TITLE VI--NATIONAL HIGH-PERFORMANCE COMPUTING
PROGRAM
FINDINGS
SEC. 601. The Congress finds and declares the following:
(1) In order to strengthen America's computer industry and to
assist the entire manufacturing sector, the Federal Government
must provide leadership in the development and application of
high-performance computing In particular, the Federal Government
should support the development of a high-capacity, national
research and education network; make information services
available over the network; facilitate the development of
software for research, education, and industrial applications;
continue to fund basic and applied research; and provide for the
training of computer scientists and computational scientists.
(2) Several Federal agencies have ongoing high-performance
computing programs. Improved interagency coordination,
cooperation, and planning could enhance the effectiveness of
these programs.
(3) A 1989 report by the Office of Science and Technology
Policy outlining a research and development strategy for high-
performance computing provides a framework for a multi-agency
high-performance computing program.
NATIONAL HIGH-PERFORMANCE COMPUTING PLAN
SEC 602. (a)(l) The President, through the Federal Coordinating
Council for Science, Engineering, and Technology (thereafter in
this title referred to as the "Council"), shall develop and
implement a National High-Performance Computing Plan (hereafter
in this title referred to as the "Plan") in accordance with the
provisions, finding, and purpose of this Act. Consistent with the
responsibilities set forth under subsection (d) of this section,
the Plan shall contain recommendations for a five-year national
effort, to be submitted to the Congress within one year after the
date of enactment of this title and to be revised at least once
every two years thereafter.
(2) The Plan shall--
(A) establish the goals and priorities for a Federal
high-performance computing program for the fiscal year in which
the Plan (or revised Plan) is submitted and the succeeding four
fiscal years
(B) set forth the role of each Federal agency and department
in implementing the Plan;
(C) describe the levels of Federal funding for each agency
and specific activities, including education, research
activities, hardware and software development, and acquisition
and operating expenses for computers and computer networks,
required to achieve such goals and priorities; and
(D) consider and use, as appropriate, reports and studies
conducted by Federal agencies and departments, the National
Research Council, or other entities.
[30]
(3) The Plan shall address, where appropriate, the relevant
programs and activities of the following Federal agencies and
departments--
(A) the National Science Foundation;
(B) the Department of Commerce, particularly the National
Institute of Standards and Technology, the National Oceanic and
Atmospheric Administration, and the National Telecommunications
and Information Administration;
(C) the National Aeronautics and Space Administration;
(D) the Department of Defense, particularly the Defense
Advanced Research Projects Agency and, as appropriate, the
National Security Agency;
(E) the Department of Energy;
(F) the Department of Health and Human Services,
particularly the National Institutes of Health;
(G) the Department of Education
(H) the Library of Congress, the National Library of
Medicine, and the National Agricultural Library; and
(I) such other agencies and departments as the President or
the Chairman of the Council considers appropriate.
(b) The Council shall--
(1) serve as lead entity responsible for development and
implementation of the Plan;
(2) coordinate the high-performance computing research and
development activities of Federal agencies and departments and
report at least annually to the President through the Chairman of
the Council, on any recommended changes in agency or departmental
roles that are needed to better implement the Plan;
(3) prior to the President's submission to the Congress of
the annual budget estimate, review each agency and departmental
budget estimate in the context of the Plan and make the results
of that review available to the appropriate elements of the
Executive Office of the President, particularly the Office of
Management and Budget;
(4) work with Federal agencies, with the National Research
Council, and with academic, State, industry, and other groups
conducting research on high-performance computing
(c) The Office of Science and Technology Policy shall
establish a High-Performance Computing Advisory Panel consisting
of representatives from industry and academia to provide the
Council with an independent assessment of (1) progress made in
implementing the Plan, (2) the need to revise the Plan, (3) the
balance between the components of the Plan, (4) whether the
research and development funded under the Plan is helping to
maintain United States leadership in computing technology, and
(5) other issues identified by the Director of the Office of
Science and Technology Policy.
(d)(1) The Plan shall take into consideration, but not be
limited to, the following missions and responsibilities of
agencies and departments:
(A) The National Science Foundation shall continue to be
responsible for basic research in computer science and
engineering, computer technology, and computational science. The
Foundation shall continue to solicit grant proposals and award
grants by merit review for research in universities, non-profit
re-
[31]
search institutions, and industry. The National Science
Foundation shall also provide researchers with access to
supercomputers and have primary responsibility for the
establishment, by 1996, of a multi-gigabit-per-second national
computer network, as required by section 201 of the
High-Performance Computing Act of 1990. Prior to deployment of a
multi-gigabit-per-second national network, the National Science
Foundation shall maintain, expand, and upgrade its existing
computer networks. Additional responsibilities include promoting
development of information services and data bases available over
such computer networks, facilitation of the documentation,
evaluation, and distribution of research software over such
computer networks; encouragement of continued development of
innovative software by industry; and promotion of science and
engineering education.
(B) The National Institute of Standards and Technology shall
be responsible for developing, through the open standards setting
process, standards, guidelines, measurement techniques, and test
methods for the interoperability of high performance computers in
networks and for common user interfaces to systems. In addition,
the National Institute of Standards and Technology shall be
responsible for developing benchmark tests and standards, through
the open standards setting process and in conjunction with
industry, for high performance computers and software. Pursuant
to the Computer Security Act of 1987 (Public Law 100-235; 100
Stat. 1724), the National Institute of Standards and Technology
shall continue to be responsible for adopting standards and
guidelines needed to assure the cost-effective security and
privacy of sensitive information in Federal computer systems.
These standards and guidelines shall be developed through the
open standards setting process and in conjunction with industry.
(C) The National Oceanic and Atmospheric Administration shall
continue to observe, collect, communicate, analyze, process,
provide, and disseminate data about the Earth and its oceans,
atmosphere, and space environment. The National Oceanic and
Atmospheric Administration shall improve the quality and
accessibility of the environmental data stored at its four data
centers and shall perform research and develop technology to
support its data handling role.
(D) The National Aeronautics and Space Administration shall
continue to conduct basic and applied research in
high-performance computing, particularly in the field of
computational science, with emphasis on aeronautics and the
processing of remote sensing data.
(E) The Department of Defense, through the Defense Advanced
Research Projects Agency and other agencies, shall continue to
conduct basic and applied research in high-performance computing,
particularly in computer networking, semiconductor technology,
and large-scale parallel processors. Pursuant to the
Stevenson-Wydler Technology Innovation Act of 1980 (15 U.S.C.
3701 et seq.) and other appropriate Acts, the Department shall
ensure that unclassified computing technology research is readily
available to United States industry. The National Secu-
[32]
rity Agency, pursuant to the Computer Security Act of 1987
(Public Law 100--235;100 Stat. 1724), shall continue to provide
where appropriate, technical advice and assistance to the
National Institute of Standards and Technology for the adoption
of standards and guidelines needed to assure the cost-effective
security and privacy of sensitive information in Federal computer
systems.
(F) The Department of Energy and its national laboratories
shall continue to conduct basic and applied research in
high-performance computing, particularly in software development
and multi-processor supercomputers. Pursuant to the
Stevenson-Wydler Technology Innovation Act of 1980 (15 U.S.C.
3701 et seq.) and other appropriate Acts, the Department of
Energy shall ensure that unclassified computer research is
readily available to North American companies.
(G) The Department of Education, pursuant to the Library
Services and Construction Act (20 U.S.C. 351 et seq.) and the
Higher Education Act of 1965 (20 U.S.C. 1060 et seq.), shall
encourage the distribution of library and information resources,
through library linkages to the National Research and Education
Network and through other means.
(H) The Library of Congress, the National Library of
Medicine, and the National Agricultural Library, as national
libraries of the United States, shall continue to compile,
develop, and maintain electronic data bases in appropriate areas
of expertise and provide for dissemination of, access to, and use
of these data bases and other library resources through the
Network.
(2) The Plan shall facilitate collaboration among agencies and
departments with respect to--
(A) ensuring interoperability among computer networks run by
the agencies and departments;
(B) increasing software productivity, capability, and
reliability;
(C) encouraging, where appropriate, agency cooperation with
industry in development of software;
(D) promoting interoperability of software;
(E) distributing software among the agencies and
departments; and
(F) distributing federally-funded, unclassified software to
State and local governments, industry, and universities.
(e)(l) Each Federal agency and department involved in
high-performance computing shall, as part of its annual request
for appropriations to the Office of Management and Budget, submit
a report identifying each element of its high-performance
computing activities, which--
(A) specifies whether each such element (i) contributes
primarily to the implementation of the Plan or (ii) contributes
primarily to the achievement of other objectives but aids Plan
implementation in important ways; and (B) states the portion of
its request for appropriations that is allocated to each such
element.
(2) The Office of Management and Budget shall review each such
report in light of the goals, priorities, and agency and
departmental responsibilities set forth in the Plan, and shall
include, in the Presi-
[33]
dent's annual budget estimate, a statement of the portion of each
agency or department's annual budget estimate that is allocated
to each element of such agency or department's high-performance
computing activities. The Office of Management and Budget shall
ensure that a copy of the President's annual budget estimate is
transmitted to the Chairman of the Council at the same time as
such budget estimate is submitted to the Congress.
ANNUAL REPORT
SEC. 603. The Chairman of the Council shall prepare and submit to
the President and the Congress, not later than March 1 of each
year, an annual report on the activities conducted pursuant to
this title during the preceding fiscal year, including--
(1) a summary of the achievements of Federal
high-performance computing research and development efforts
during that preceding fiscal year;
(2) an analysis of the progress made toward achieving the
goals and objectives of the Plan
(3) a copy or summary of the Plan and any changes made in
such Plan;
(4) a summary of agency budgets for high-performance
computing activities for that preceding fiscal year; and
(5) any recommendations regarding additional action or
legislation which may be required to assist in achieving the
purposes of this title.
