US Executive Order 13859, titled "Maintaining American Leadership in Artificial Intelligence," was signed by President Donald Trump on February 11, 2019. The order established a coordinated federal strategy to accelerate investment in artificial intelligence research and development, promote public trust in AI technologies, and ensure that the United States remains a global leader in this critical field. It directed federal agencies to prioritize AI-related activities, improve access to data and computing resources, and develop workforce training programs.
The executive order was a response to growing competition from other nations, particularly China, which had announced its own national AI strategy. By creating a unified federal approach, the order aimed to align government resources with private-sector innovation, fostering an ecosystem where AI could thrive while addressing ethical, legal, and security concerns.
Background and Policy Context
In the years leading up to 2019, artificial intelligence had advanced rapidly, driven by breakthroughs in Machine learning and Deep learning. Technologies such as Neural networks and Transformer (architecture) architectures were enabling new capabilities in natural language processing, computer vision, and autonomous systems. The private sector, including companies like OpenAI, Google DeepMind, and Anthropic, was investing heavily in AI, but the federal government lacked a cohesive strategy to support and regulate these developments.
Executive Order 13859 built on earlier initiatives, such as the National Strategic Computing Initiative and the AI research reports from the Obama administration. It sought to consolidate these efforts under a single national framework, emphasizing the importance of American innovation and economic competitiveness.
Key Provisions of the Order
The order outlined five primary pillars: (1) promoting sustained AI research and development, (2) increasing access to federal data and computing resources, (3) establishing AI governance standards, (4) building an AI-ready workforce, and (5) fostering international engagement while protecting American interests.
To implement these pillars, the order directed federal agencies to:
- Prioritize AI investments in their budget requests.
- Identify and reduce barriers to AI innovation, including regulatory hurdles.
- Enhance access to high-quality data and computing infrastructure for researchers.
- Develop guidance for the safe and ethical use of AI in government and industry.
- Expand educational and training programs to prepare workers for AI-related jobs.
The order also established the American AI Initiative, a multi-agency effort coordinated by the White House Office of Science and Technology Policy (OSTP) and the National Science and Technology Council (NSTC).
Implementation and Agency Roles
The Carnegie Mellon University and other academic institutions played a role in advising on AI research priorities. Federal agencies, including the Department of Defense, the Department of Energy, and the National Institutes of Health, were tasked with identifying specific AI applications relevant to their missions.
The National Institute of Standards and Technology (NIST) was directed to develop technical standards for AI systems, focusing on reliability, robustness, and interoperability. The Department of Commerce was asked to promote AI innovation through trade policies and international cooperation.
Impact on AI Research and Development
Executive Order 13859 catalyzed increased federal funding for AI research. In fiscal year 2020, the federal government allocated over $1 billion for non-defense AI research and development, a significant increase from previous years. This funding supported projects in Machine learning, Deep learning, and Generative AI, including work on Large language models and Residual Network (ResNet) architectures.
Research institutions such as MIT CSAIL, Stanford AI Lab, and BAIR (Berkeley AI Research) benefited from expanded grants and collaborations. The order also encouraged public-private partnerships, leading to joint initiatives between government labs and companies like Amazon Web Services, microsoft-azure, and Google Cloud.
Workforce and Education Initiatives
The order emphasized the need for an AI-ready workforce. It directed federal agencies to create training programs for government employees and to support STEM education at all levels. The National Science Foundation (NSF) launched new fellowships and research experiences for undergraduates and graduate students, focusing on AI-related fields.
In addition, the order encouraged partnerships with universities to develop curricula that include Machine learning, Data Augmentation, and Model Pruning techniques. These efforts aimed to close the skills gap and ensure that American workers could compete in an increasingly AI-driven economy.
Governance and Ethical Considerations
While the order promoted innovation, it also recognized the need for governance. It called for the development of principles that ensure AI systems are trustworthy, transparent, and aligned with American values. The OpenPanel and other advisory bodies were consulted to provide input on ethical guidelines.
The order did not impose new regulations but rather encouraged voluntary standards and best practices. This approach was intended to avoid stifling innovation while addressing concerns about bias, privacy, and security. Subsequent executive orders and legislation built on this foundation, including the AI Bill of Rights and various federal AI risk management frameworks.
International Competition and Cooperation
The order was partly motivated by geopolitical considerations. China's "Next Generation AI Development Plan" and the European Union's AI strategy posed challenges to American leadership. The order sought to maintain U.S. dominance by fostering innovation at home and by engaging with international partners.
It directed the Department of State to work with allies to promote AI research and to protect American intellectual property. At the same time, it aimed to prevent adversaries from gaining access to sensitive technologies. This dual approach of cooperation and competition shaped U.S. AI policy for years to come.
Legacy and Subsequent Developments
Executive Order 13859 was later superseded by Executive Order 13960, which focused on AI in the federal government, and by Executive Order 14110, issued in 2023, which addressed AI safety and security. However, the 2019 order laid the groundwork for a national AI strategy that continues to evolve.
Its emphasis on research investment, workforce development, and international engagement influenced subsequent policy debates. The order also highlighted the importance of Artificial intelligence as a strategic technology, leading to increased attention from both the public and private sectors.
Criticisms and Challenges
Critics argued that the order lacked specific enforcement mechanisms and did not adequately address ethical concerns or potential job displacement. Some experts noted that the emphasis on American leadership could lead to a race to the bottom on safety standards. Others pointed out that the order did not provide sufficient funding for implementation, leaving agencies to compete for limited resources.
Despite these criticisms, the order was generally seen as a positive step toward a cohesive national AI policy. It signaled that the U.S. government recognized AI as a priority and was willing to take action to support its development.
Conclusion
US Executive Order 13859 represented a landmark in American technology policy. By establishing a coordinated federal approach to AI, it helped to accelerate research, foster innovation, and prepare the nation for the challenges and opportunities of the AI era. While its provisions have been updated and expanded, the order's core principles continue to shape U.S. AI strategy today.