Executive Order 13859, titled "Maintaining American Leadership in Artificial Intelligence," was signed on February 11, 2019, by President Donald Trump. The order established the American AI Initiative, a federal strategy to coordinate government efforts in artificial intelligence research, development, and deployment. It marked the first comprehensive national policy on AI, directing agencies to allocate resources and remove barriers to innovation while ensuring the United States remained competitive against other nations, particularly China.
The order defined AI broadly, encompassing machine learning, deep learning, and related fields. It mandated that federal agencies prioritize AI in their missions, increase access to data and computing resources, and establish standards for AI systems. The initiative also emphasized workforce development, calling for fellowships and training programs to build a skilled AI labor pool. The order did not allocate new funding but required agencies to reallocate existing budgets toward AI priorities, with the White House Office of Science and Technology Policy (OSTP) overseeing implementation.
Federal Coordination and Governance
The order created the Select Committee on Artificial Intelligence, chaired by the OSTP director, to coordinate AI activities across executive departments. This committee included representatives from the Department of Defense, Department of Energy, National Science Foundation, and other agencies. It was tasked with developing a national AI research and development strategic plan, which was updated in 2019 to reflect the order's priorities. The committee also worked to reduce regulatory barriers, directing agencies to review existing policies that might impede AI innovation.
A key component was the establishment of the American AI Initiative's "AI for American Innovation" framework, which encouraged public-private partnerships. The order directed the National Institute of Standards and Technology (NIST) to develop technical standards for AI, including metrics for reliability and robustness. These standards were intended to guide both federal procurement and industry practices, though they remained voluntary.
Data and Computing Resources
Executive Order 13859 required federal agencies to identify and make available non-classified data that could support AI research. This included datasets from the Department of Commerce, NASA, and other agencies, with a focus on privacy and security protections. The order also directed the Department of Energy to provide access to high-performance computing resources for AI applications, including supercomputers at national laboratories. This provision aimed to support both academic and commercial research, though access was subject to security reviews.
The order emphasized the importance of cloud computing and data interoperability, encouraging agencies to adopt open data formats. It also called for the development of a federal data inventory to track available resources. However, implementation was uneven, with some agencies slow to release datasets due to privacy concerns and bureaucratic hurdles.
Workforce and Education
The initiative included provisions for AI workforce development, directing the Office of Personnel Management to identify skills gaps and create training programs for federal employees. It also supported STEM education, with the National Science Foundation and Department of Education tasked with promoting AI-related curricula at universities and K-12 schools. The order encouraged the creation of AI fellowships and apprenticeships, though specific funding was not provided.
Private sector involvement was encouraged through partnerships with universities and companies. The order referenced the importance of attracting global talent, though it did not change immigration policy. Subsequent actions, such as the 2020 executive order on AI immigration, built on this foundation, but the original order focused on domestic training and reskilling.
International Engagement and Standards
The order directed the State Department and other agencies to engage with international partners on AI standards and ethics. It aimed to promote American values in AI development, including privacy, civil liberties, and democratic principles. The United States participated in international forums such as the OECD and the Global Partnership on AI, which was launched in 2020. The order also called for protecting US AI research from foreign exploitation, including intellectual property theft.
However, the order did not establish binding international agreements. It emphasized voluntary cooperation and information sharing, with the goal of influencing global norms. Critics noted that the order lacked enforcement mechanisms, and international engagement remained largely diplomatic rather than regulatory.
Impact and Legacy
The American AI Initiative was widely seen as a policy milestone, but its practical impact was limited by funding constraints and the absence of a dedicated budget. The order did not create new AI programs but rather reoriented existing ones. For example, the Department of Defense increased its AI investments, including the Joint Artificial Intelligence Center, which was established in 2018. The National Science Foundation continued its AI research grants, but the order did not significantly increase their scale.
The order was praised by industry groups for its focus on reducing regulation and promoting innovation. Tech companies such as OpenAI and Google DeepMind benefited indirectly from federal research funding and data access. However, civil liberties organizations raised concerns about the lack of explicit safeguards for privacy and algorithmic fairness. The order did not address issues like bias in Machine learning systems or the ethical use of AI in surveillance.
In 2020, the White House issued a follow-up executive order on AI governance, but the core principles of 13859 remained in place. The order was not rescinded by the Biden administration, which instead issued its own AI executive order in 2023, focusing on safety and equity. As of 2025, the American AI Initiative continues to influence federal AI policy, though its specific provisions have been superseded by newer directives.
Criticisms and Debates
Scholars and policymakers debated the order's effectiveness. Some argued that it was too vague, lacking measurable goals and timelines. Others noted that it favored large corporations over smaller startups, as data and computing resources were often concentrated in established firms. The order's emphasis on national security also raised concerns about the militarization of AI research, particularly in areas like autonomous weapons.
There was also debate about the order's treatment of international collaboration. While it encouraged engagement, it also restricted certain partnerships, particularly with Chinese entities. This created tension between the desire for global AI progress and national security concerns. The order did not resolve these tensions, leaving them to subsequent policy decisions.
Subsequent Developments
The order's legacy includes the establishment of the National AI Research Resource (NAIRR), a concept that gained traction in the early 2020s. While not directly created by 13859, the order's emphasis on shared computing resources laid groundwork for NAIRR proposals. The order also influenced state-level AI policies, with several states adopting similar frameworks for data sharing and workforce training.
In the private sector, the order's focus on standards contributed to the development of AI evaluation benchmarks. Organizations like Stanford AI Lab and MIT CSAIL continued to publish research on AI capabilities, often referencing federal priorities. The order's impact on Generative AI was indirect, as it predated the widespread adoption of Large language models like GPT-3, which emerged in 2020.
Conclusion
Executive Order 13859 represented a significant step in US AI policy, establishing a coordinated federal approach to research, data, and workforce. While its direct effects were modest, it set a precedent for subsequent AI initiatives. The order's emphasis on American leadership remains a central theme in national AI strategy, though the landscape has evolved considerably since 2019. As AI technologies continue to advance, the order's principles of investment, access, and standards remain relevant, even as new challenges emerge in areas like safety and ethics.