There's an overview of Bayh-Dole here. Here's what I understand from that.
So NASA apparently contracted with a company called Voicecraft to do some work, and in the course of that work, Voicecraft employees Davidson and Gerson invented a "vector excitation coder", whatever that may be. Now prior to 1980, the policy in such a case would have been that ...
The bar for novelty, innovation and inventiveness is not as high as you seem to think
A process is novel or innovative or inventive unless it is not novel or innovative or inventive when compared to prior art where that prior art is:
a single document,
2 or more related documents,
a single specification.
While there was prior are for windscreen ...