Electronic Government: Challenges to the Adoption of Smart Card  
Technology (09-SEP-03, GAO-03-1108T).				 
                                                                 
The federal government is increasingly interested in the use of  
smart cards--credit-card-like devices that use integrated circuit
chips to store and process data--for improving the security of	 
its many physical and information assets. Besides better	 
authentication of the identities of people accessing buildings	 
and computer systems, smart cards offer a number of potential	 
benefits and uses, such as creating electronic passenger lists	 
for deploying military personnel, and tracking immunization and  
other medical records. Earlier this year, GAO reported on the use
of smart cards across the federal government (GAO-03-144). GAO	 
was asked to testify on the results of this work, including the  
challenges to successful adoption of smart cards throughout the  
federal government, as well as the government's progress in	 
promoting this smart card adoption.				 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-03-1108T					        
    ACCNO:   A08370						        
  TITLE:     Electronic Government: Challenges to the Adoption of     
Smart Card Technology						 
     DATE:   09/09/2003 
  SUBJECT:   Identification cards				 
	     Internal controls					 
	     Program evaluation 				 
	     Smart cards					 
	     Strategic planning 				 
	     Computer security					 
	     Physical security					 

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GAO-03-1108T

Testimony Before the Subcommittee on Technology, Information Policy,
Intergovernmental Relations and the Census, Committee on Government
Reform, House of Representatives

United States General Accounting Office

GAO For Release on Delivery Expected at 10: 00 a. m. EDT Tuesday,
September 9, 2003 ELECTRONIC

GOVERNMENT Challenges to the Adoption of Smart Card Technology

Statement of Joel C. Willemssen Managing Director, Information Technology
Issues

GAO- 03- 1108T

To successfully implement smart card systems, agency managers have faced a
number of substantial challenges: * sustaining executive- level commitment
in the face of organizational

resistance and cost concerns;  obtaining adequate resources for projects
that can require extensive

modifications to technical infrastructures and software;  integrating
security practices across agencies, a task requiring collaboration among
separate and dissimilar internal organizations;

 achieving smart card interoperability across the government; and 
maintaining the security of smart card systems and the privacy of personal
information. These difficulties may be less formidable as management
concerns about facility and information system security increase and as
technical advances improve smart card capabilities and reduce costs.
However, such challenges,

which have slowed the adoption of this technology in the past, continue to
be factors in smart card projects.

Given the significant management and technical challenges associated with
successful adoption of smart cards, a series of initiatives has been
undertaken to facilitate the adoption of the technology. As the federal
government*s designated promoter of smart card technology, GSA assists
agencies in assessing the potential of smart cards and in implementation.
GSA has set up a governmentwide, standards- based contracting vehicle and
has established interagency groups to work on procedures, standards, and
guidelines. As the government*s policymaker, OMB is beginning to develop a
framework of policy guidance for governmentwide smart card adoption. In a
July 2003 memorandum, OMB described a three- part initiative on
authentication and identity management in the government, consisting of

(1) developing common policy and technical guidance; (2) executing a
governmentwide acquisition of authentication technology, including smart
cards; and (3) selecting shared service providers for smart card
technology. These efforts address the need for consistent, up- to- date
standards and policy on smart cards, but both GSA and OMB still have much
work to do before common credentialing systems can be successfully
implemented across government agencies.

A Typical Smart Card (not to scale)

ELECTRONIC GOVERNMENT

Challenges to the Adoption of Smart Card Technology

www. gao. gov/ cgi- bin/ getrpt? GAO- 03- 1108T. To view the full
testimony, including the scope and methodology, click on the link above.
For more information, contact Joel Willemssen at (202) 512- 6222 or
willemssenj@ gao. gov. Highlights of GAO- 03- 1108T, a testimony

before the Subcommittee on Technology, Information Policy,
Intergovernmental Relations and the Census, Committee on Government
Reform, House of Representatives September 2003

The federal government is increasingly interested in the use of smart
cards* credit- card* like

devices that use integrated circuit chips to store and process data* for
improving the security of its many physical and information assets.
Besides better authentication of the identities of people accessing
buildings and computer systems, smart cards offer a number of potential
benefits

and uses, such as creating electronic passenger lists for deploying
military personnel, and tracking immunization and other medical records.

Earlier this year, GAO reported on the use of smart cards across the
federal government (GAO- 03- 144). GAO was asked to testify on the results
of this work, including the challenges to successful adoption of smart
cards throughout the federal government, as well as the government*s
progress in promoting this smart card adoption.

Page 1 GAO- 03- 1108T Mr. Chairman and Members of the Subcommittee: I
appreciate the opportunity to participate in the Subcommittee*s hearing

regarding the benefits of, and challenges to, the successful adoption of
smart cards across the federal government. Smart cards are plastic
devices* about the size of a credit card* that use integrated circuit
chips to store and process data, much like a computer. 1 This processing

capability distinguishes these cards from traditional magnetic stripe
cards, which cannot interact with automated information systems. In
January of this year, we reported that smart cards offer a variety of
benefits to the

federal government, such as better authentication of cardholders*
identities, increased security over buildings, more effective safeguards
of computer systems and data, and more accurate and efficient financial
and

nonfinancial transactions. 2 However, challenges to the successful
adoption of smart cards throughout the federal government need to be
addressed before the benefits of their use can be fully realized.

As requested, in my remarks today, I will discuss the potential benefits
that the use of smart cards can offer, the challenges to successful
adoption of smart cards throughout the federal government, and the
progress of the General Services Administration (GSA), the Office of
Management and Budget (OMB), and other agencies in overcoming these
challenges and promoting governmentwide adoption of smart cards.

As you know, technology plays an important role in helping the federal
government provide security for its many physical and information assets.
Today, federal employees are issued a wide variety of identification (ID)
cards, which are used to access federal buildings and facilities,
sometimes solely on the basis of visual inspection by security personnel.
These cards often cannot be used for other important identification
purposes* such as gaining access to an agency*s computer systems* and many
can be easily forged or stolen and altered to permit access by
unauthorized individuals. In general, the ease with which traditional ID
cards* including credit

1 The term *smart card* may also be used to refer to cards with a computer
chip that only stores information without providing any processing
capability. Such cards, known as stored- value cards, are widely used for
services such as prepaid telephone service or satellite television
reception. This statement focuses chiefly on cards with processing

capability. 2 U. S. General Accounting Office, Electronic Government:
Progress in Promoting Adoption of Smart Card Technology, GAO- 03- 144
(Washington, D. C.: Jan. 3, 2003). Background

Page 2 GAO- 03- 1108T cards* can be forged has contributed to increases in
identity theft and related security and financial problems for both
individuals and organizations. 3 Smart cards can readily be tailored to
meet the varying needs of federal

agencies or to accommodate previously installed systems. For example,
other media* such as magnetic stripes, bar codes, and optical memory
(laser- readable) stripes* can be added to smart cards to support
interactions with existing systems and services or to provide additional
storage capacity. An agency that has been using magnetic stripe cards for
access to certain facilities could migrate to smart cards that would work

with both its existing magnetic stripe readers as well as new smart card
readers. Of course, the functions provided by the card*s magnetic stripe,
which cannot process transactions, would be much more limited than those
supported by the card*s integrated circuit chip. Optical memory stripes
(which are similar to the technology used in commercial compact discs) can
be used to equip a card with a large memory capacity for storing more
extensive data* such as color photos, multiple fingerprint images, or
other digitized images* and for making that card and its stored data very

difficult to counterfeit. 4 Figure 1 shows a typical example of a smart
card.

Figure 1: A Typical Smart Card

3 See U. S. General Accounting Office, Identity Theft: Available Data
Indicate Growth in Prevalence and Cost, GAO- 02- 424T (Washington, D. C.:
Feb. 14, 2002). 4 Cards with an optical memory stripe are known as laser
cards or optical memory cards.

Page 3 GAO- 03- 1108T Smart cards are grouped into two major classes:
contact cards and *contactless* cards. Contact cards have gold- plated
contacts that connect

directly with the read/ write heads of a smart card reader when the card
is inserted into the device. Contactless cards contain an embedded antenna
and work when the card is waved within the magnetic field of a card

reader or terminal. Contactless cards are better suited for environments
where quick interaction between the card and reader is required, such as
high- volume physical access. For example, the Washington Metropolitan
Area Transit Authority has deployed an automated fare collection system
using contactless smart cards as a way of speeding patrons* access to the

Washington, D. C., subway system. Smart cards can be configured to include
both contact and contactless capabilities, but two separate interfaces are
needed, because standards for the technologies are very different.

Page 4 GAO- 03- 1108T Figure 2: Features That May Be Incorporated into
Smart Cards

Since the 1990s, the federal government has considered the use of smart
card technology as one option for electronically improving security over
buildings and computer systems. In 1996, OMB tasked GSA with taking the
lead in facilitating a coordinated interagency management approach for the
adoption of multiapplication smart cards across government. At the time,
OMB envisioned broad adoption of smart card technology throughout the
government, as evidenced by the President*s budget for fiscal year 1998,
which set a goal of enabling every federal employee ultimately to be able
to use one smart card for a wide range of purposes, including travel,
small purchases, and building access. In January 1998, the President*s
Management Council and the Electronic Processing Initiatives

Page 5 GAO- 03- 1108T Committee 5 (EPIC) established an implementation
plan for smart cards that called for a governmentwide, multiapplication
card that would

support a range of functions* including controlling access to government
buildings* and operate as part of a standardized system. More recently,
the Enhanced Border Security and Visa Entry Reform Act of 2002 called for
enhancing national security and counterterrorism efforts by using

technologies such as smart cards that could provide biometric comparison
and authentication to better identify individuals entering the country. 6
In developing this testimony, our objectives were to explain the potential
benefits of smart cards, to discuss the challenges to successful adoption
of

smart cards, and to discuss the steps that federal agencies have taken to
address those challenges. To address these objectives, we obtained
relevant documentation and interviewed officials from GSA and the
Department of the Interior. We also analyzed agencies* accomplishments and
planned activities to promote smart cards in light of the challenges to
smart card adoption across the federal government that we identified in
our January report. We performed our work between August 2003 and
September 2003, in accordance with generally accepted auditing standards.

The unique properties and capabilities of smart cards offer the potential
to significantly improve the security of federal buildings, systems, data,
and transactions. For example, the process of verifying the identity of
people accessing federal buildings and computer systems, especially when
used in combination with other technologies, such as biometrics, is
significantly enhanced with the use of smart cards. Since 1998, multiple
smart card projects have been launched in the federal government,
addressing an array of capabilities and providing many tangible and
intangible benefits, including enhancing security over buildings and other
facilities, safeguarding computer systems and data, and conducting
financial and nonfinancial transactions more accurately and efficiently.
Other potential

5 EPIC, an interagency body, was established during the 1990s to help
improve the delivery of electronic commerce activities across government
and to assist the President*s Management Council on such issues. In 2000,
EPIC was replaced by the Electronic Government Coordinating Committee.

6 Enhanced Border Security and Visa Entry Reform Act of 2002 (P. L. No.
107- 173, 116 Stat. 543). Smart Cards Can Provide a Variety of

Benefits to Federal Agencies

Page 6 GAO- 03- 1108T benefits and uses include creating electronic
passenger lists for deploying military personnel and tracking immunization
and other medical records. The advantage of smart cards* as opposed to
cards with simpler

technology, such as magnetic stripes or bar codes* is that smart cards can
exchange data with other systems and process information rather than
simply serving as static data repositories. By securely exchanging
information, a smart card can help authenticate the identity of the
individual possessing the card in a far more rigorous way than is possible
with simpler, traditional ID cards.

Even stronger authentication can be achieved if smart cards are used in
conjunction with biometrics. Smart cards can be configured to store
biometric information (such as fingerprints or iris scans) in electronic
records that can be retrieved and compared with an individual*s live
biometric scan as a means of verifying that person*s identity in a way
that is difficult to circumvent. A system requiring users to present a
smart card,

enter a password, and verify a biometric scan provides what security
experts call *three- factor* authentication, the three factors being
*something you possess* (the smart card), *something you know* (the
password), and *something you are* (the biometric). Systems employing
three- factor authentication are considered to provide a relatively high
level of security. 7 As of November 2002, 18 agencies had reported
initiating a total of 62 smart card projects in the federal government. In
what could be the largest

federally sponsored smart card rollout to date, the Department of Homeland
Security*s Transportation Security Administration (TSA) plans to issue
smart ID cards to up to 15 million transportation workers who require
unescorted access to secure parts of transportation venues, such as
airports, seaports, and railroad terminals. TSA*s goal is to create a
standardized, universally recognized and accepted credential for the
transportation industry. According to agency officials, the card is being
designed to address a minimum set of requirements, but it will remain
flexible enough to support additional requirements as needed. According to
TSA*s plans, local authorities will use the card to verify the identity
and

7 For more information about biometrics, see U. S. General Accounting
Office, Information Security: Challenges in Using Biometrics, GAO- 03-
1137T (Washington, D. C.: Sept. 9, 2003) and Technology Assessment: Using
Biometrics for Border Security, GAO- 03- 174 (Washington, D. C.: Nov. 15,
2002). Several Agencies Are

Pursuing Smart Card Projects

Page 7 GAO- 03- 1108T security level of the cardholder and will grant
access to facilities in accordance with local security policies.

In addition to Homeland Security, a number of other agencies have
undertaken pilot projects to test the capabilities of smart cards. The
Department of the Interior*s Bureau of Land Management, for example,
launched a pilot to provide smart cards to about 1,100 employees to be
used for personal identification at the bureau*s facilities and to serve
as an example to communicate the benefits of smart cards to employees
throughout the bureau. According to bureau officials, the project has been
a success, and the bureau plans to continue the rollout of smart cards to

its remaining employees. Other major smart card projects are also under
way at the Departments of the Treasury and State.

In addition to better securing physical access to facilities, smart cards
can be used to enhance the security of an organization*s computer systems
by tightening what is known as *logical* access to systems and networks. A

user wishing to log on to a computer system or network with controlled
access must *prove* his or her identity to the system* a process called
authentication. Many systems authenticate users by merely requiring them
to enter secret passwords, which provide only modest security because they
can be easily compromised. Substantially better user authentication can be
achieved by supplementing passwords with smart cards. To gain access under
this scenario, a user is prompted to insert a smart card into a reader
attached to the computer as well as type in a password. This
authentication process is significantly harder to circumvent, because an
intruder would need not only to guess a user*s password but also to
possess the same user*s smart card.

Smart cards can also be used in conjunction with public key infrastructure
(PKI) technology to better secure electronic messages and transactions. A
properly implemented and maintained PKI can offer several important
security services, including assurance that (1) the parties to an
electronic transaction are really whom they claim to be, (2) the
information has not been altered or shared with any unauthorized entity,
and (3) neither party will be able to wrongfully deny taking part in the
transaction. An essential component is the use of special pairs of
encryption codes, called *public keys* and *private keys,* that are unique
to each user. The private keys must be kept secret and secure; however,
storing and using private keys on a computer leaves them susceptible to
attack, because a hacker who gains control of that computer may then be
able to use the private key stored in it to fraudulently sign messages and
conduct electronic Smart Cards Offer

Enhanced Safeguards for Access to Computer Systems and Data

Page 8 GAO- 03- 1108T transactions. In contrast, if the private key is
stored on a user*s smart card, it may be significantly less vulnerable to
attack and compromise. Security

experts generally agree that PKI technology is most effective when
deployed in conjunction with smart cards. 8 The largest smart card program
currently in the implementation phase is

the Department of Defense*s Common Access Card, which is being used
initially for logical access to automated systems and networks. Rollout
began in October 2000 with a goal of distributing cards to approximately 4
million individuals across the department by October 2003. In addition to
enabling access to specific Defense systems, the card is also used to
better ensure that electronic messages are accessible only by designated
recipients. The card includes a set of PKI credentials, including an
encryption key, signing key, and digital certificate, which contains the
user*s public key. Defense plans to add biometrics to the Common Access
Card in the future* which may include fingerprints, palm prints, iris
scans, or facial features* and to enable users to digitally sign travel
vouchers using the digital certificates on their cards. Defense also plans
to add a contactless chip to the card in the future to speed physical
access for military personnel to Defense facilities.

The benefits of smart card adoption can be achieved only if key management
and technical challenges are understood and met. While these challenges
have slowed the adoption of smart card technology in past years, they may
be less difficult in the future because of increased management concerns
about securing federal facilities and information systems, and because
technical advances have improved the capabilities and reduced the cost of
smart card systems.

Maintaining executive- level commitment is essential to implementing a
smart card system effectively. For example, according to Defense
officials, the formal mandate of the Deputy Secretary of Defense to
implement a uniform, common access identification card across Defense was
essential to getting a project as large as the Common Access Card
initiative

8 For more information about PKI technology, see U. S. General Accounting
Office,

Information Security: Advances and Remaining Challenges to Adoption of
Public Key Infrastructure Technology, GAO- 01- 277 (Washington, D. C.:
Feb. 26, 2001). Challenges to the

Successful Adoption of Smart Cards

Sustaining Executive- Level Commitment

Page 9 GAO- 03- 1108T launched and funded. 9 The Deputy Secretary also
assigned roles and responsibilities to the military services and agencies
and established a

deadline for defining smart card requirements. Defense officials noted
that without such executive- level support and clear direction, the smart
card initiative likely would have encountered organizational resistance
and concerns about cost that could have led to significant delays or
cancellation.

Treasury and TSA officials also indicated that sustained high- level
support had been crucial in launching smart card initiatives within their
organizations and that without this support, funding for such initiatives
probably would not have been available. In contrast, other federal smart
card pilot projects have been cancelled due to lack of executive- level
support. Officials at the Department of Veterans Affairs (VA) indicated
that their pilot VA Express smart card project, which issued cards to
veterans for use in registering at VA hospitals, would probably not be
expanded to full- scale implementation, largely because executive- level
priorities had changed, and support for a wide- scale smart card project
had not been sustained. Smart card implementation costs can be high,
particularly if significant

infrastructure modifications are required, or other technologies, such as
biometrics and PKI, are being implemented in tandem with the cards. Key
implementation activities that can be costly include managing contractors
and card suppliers, developing systems and interfaces with existing
personnel or credentialing systems, installing equipment and systems to
distribute the cards, and training personnel to issue and use smart cards.
As a result, agency officials have found that obtaining adequate resources
is critical to implementing a major government smart card system.

For example, at least $4.2 million 10 was required to design, develop, and
implement the Western Governors Association*s Health Passport Project to
service up to 30,000 customers of health care services in several western
states. A report on that project acknowledged that it was complicated and
costly to manage card issuance activities. The report

9 Deputy Secretary of Defense, Memorandum on Smart Card Adoption and
Implementation (Washington, D. C.: Nov. 10, 1999). 10 According to the
project*s final report, additional costs were incurred that have not been
quantified. Recognizing Resource

Requirements

Page 10 GAO- 03- 1108T further indicated that help- desk services were
difficult to manage because of the number of organizations and outside
retailers, as well as different

systems and hardware involved in the project. 11 Project officials said
they expect costs to decrease as more clients are provided with smart
cards and the technology becomes more familiar to users; they also believe
that smart card benefits will exceed costs over the long term.

The full cost of a smart card system can also be greater than originally
anticipated because of the costs of related technologies, such as PKI. For
example, Defense initially budgeted about $78 million for the Common
Access Card program in 2000 and 2001 and expected to provide the device to
about 4 million military, civilian, and contract employees by October

2003. It now expects to expend over $250 million by 2003* more than double
the original estimate* and likely will not have all cards distributed
until 2004. Many of the increases in Common Access Card program costs were
attributed by Defense officials to underestimating the costs of upgrading
and managing legacy systems and processes for card issuance. According to
Defense program officials, the department will likely expend over $1
billion for its smart cards and PKI capabilities by 2005. In addition to
the costs mentioned above, the military services and defense agencies were
required to fund the purchase of over 2.5 million card readers and the
middleware to make them work with existing computer applications, at a
cost likely to exceed $93 million. The military services and defense
agencies are also expected to provide funding to enable applications to
interoperate with the PKI certificates loaded on the cards. Defense
provided about $712 million to issue certificates to cardholders as part
of the PKI program but provided no additional funding to enable
applications. 12 The ability of smart card systems to address both
physical and logical (information systems) security means that
unprecedented levels of

cooperation may be required among internal organizations that often had
not previously collaborated, especially physical security organizations
and information technology organizations. Nearly all federal officials we

11 Jenny Bernstein, Robin Koralek, Cheryl Owens, Nancy Pindus, and Barbara
Selter, Final Report* The Health Passport Project: Assessment and
Recommendations (December 2001).

12 Office of the Inspector General, Department of Defense, Implementation
of DOD Public Key Infrastructure Policy and Procedures, Report No. D-
2002- 030 (Dec. 28, 2001). Integrating Physical and

Logical Security Practices across Organizations

Page 11 GAO- 03- 1108T interviewed noted that existing security practices
and procedures varied significantly across organizational entities within
their agencies and that changing each of these well- established processes
and attempting to integrate them across the agency was a formidable
challenge.

Defense officials stated that it has been difficult to take advantage of
the multiapplication capabilities of its Common Access Card for these very
reasons. As it is being rolled out, the card is primarily being used for
logical access* for helping to authenticate cardholders accessing systems
and networks and for digitally signing electronic transactions using PKI.
Officials have only recently begun to consider ways to use the Common
Access Card across the department to better control physical access over
military facilities. Few Defense facilities are currently using the card
for this purpose. Defense officials said it had been difficult to persuade
personnel responsible for the physical security of military facilities to
establish new processes for smart cards and biometrics and to make
significant changes to existing badge systems.

In addition to the gap between physical and logical security
organizations, the sheer number of separate and incompatible existing
systems also adds to the challenge to establishing an integrated
agencywide smart card system. One Treasury official, for example, noted
that departmentwide initiatives, such as its planned smart card project,
require the support of 14 different bureaus and services. Each of these
entities has different systems and processes in place to control access to
buildings, automated systems, and electronic transactions. Agreement could
not always be reached on a

single business process to address security requirements among these
diverse entities.

Interoperability 13 is a key consideration in smart card deployment. The
value of a smart card is greatly enhanced if it can be used with multiple
systems at different agencies, and GSA has reported that virtually all
agencies agree that interoperability at some level is critical to
widespread adoption of smart cards across the government. However,
achieving interoperability has been difficult, because smart card products
and systems developed in the past have generally been incompatible in all
but very rudimentary ways. With varying products available from many

13 Interoperability is the ability of two or more systems or components to
exchange information and to use the information exchanged. Achieving
Interoperability

among Smart Card Systems

Page 12 GAO- 03- 1108T vendors, there has been no obvious choice for an
interoperability standard.

GSA considered the achievement of interoperability across card systems to
be one of its main priorities in developing its Smart Access Common ID
Card contract, which is intended to serve as a governmentwide vehicle for
obtaining commercial smart card products and services. Accordingly, GSA
designed the contract to require awardees to work with GSA and the
National Institute of Standards and Technology (NIST) 14 to develop a
government interoperability specification. The resulting specification
defines a uniform set of command and response messages for smart cards to
use in communicating with card readers. Vendors can meet the specification
by writing software for their cards that translates their unique command
and response formats to the government standard. Such a specification
previously had not been available. According to NIST officials, the first
version of the interoperability

specification, completed in August 2000, did not include sufficient detail
to establish interoperability among vendors* disparate smart card
products. The officials stated that this occurred because representatives
from NIST, the contractors, and other federal agencies had only a very
limited time to develop the first version. The current version, version
2.1, 15 released in July 2003, is a significant improvement, providing
better definitions of many details, such as how smart cards should
exchange information with software applications and card readers, as well
as a specification for contactless cards and accommodations for the future
use of biometrics. However, potential interoperability issues may arise
for those agencies that purchased and deployed smart card products based
on the original specification.

14 NIST is the lead agency in the Standards Technical Working Group, which
was established by the Government Smart Card Interagency Advisory Board to
develop and update the Government Smart Card Interoperability
Specification. In addition, NIST is responsible for developing a
comprehensive conformance test program for the specification.

15 Government Smart Card Interoperability Specification, Version 2. 1,
NIST Interagency Report 6887 (Jul. 16, 2003).

Page 13 GAO- 03- 1108T Although concerns about security are a key driver
for the adoption of smart card technology in the federal government, the
security of smart

card systems is not foolproof and must be addressed when agencies plan the
implementation of a smart card system. Smart cards can offer significantly
enhanced control over access to buildings and systems, particularly when
used in combination with other advanced technologies, such as PKI and
biometrics. Although smart card systems are generally much harder to
attack than traditional ID cards and password- protected

systems, they are not invulnerable. In order to obtain the improved
security services that smart cards offer, care must be taken to ensure
that the cards and their supporting systems do not pose unacceptable
security risks.

Smart card systems generally are designed with a variety of features
designed to thwart attack. 16 For example, cards are assigned unique
serial numbers to counter unauthorized duplication and contain integrated
circuit chips that are resistant to tampering so that their information
cannot be easily extracted and used. However, security experts point out
that because a smart- card* based system involves many different discrete
elements that cannot be physically controlled at all times by an
organization*s security personnel, there is at least a theoretically
greater opportunity for malfeasance than would exist for a more self-
contained system. 17 In fact, a smart- card* based system involves many
parties (the cardholders,

data owner, computing devices, card issuer, card manufacturer, and
software manufacturer) that potentially could pose threats to the system.
For example, researchers have found ways to circumvent security measures
and extract information from smart cards, and an individual cardholder
could be motivated to attack his or her card in order to access and modify
the stored data on the card* perhaps to change personal information or
increase the cash value that may be stored on the card. Further, smart
cards are connected to computing devices (such as agency networks, desktop
and laptop computers, and automatic teller machines)

16 In this context, an attack is an attempt by one or more parties
involved in a smart- card* based transaction to cheat by taking advantage
of potential weaknesses in the security of the card.

17 Bruce Schneier and Adam Shostack, *Breaking Up Is Hard to Do: Modeling
Security Threats for Smart Cards* in USENIX Workshop on Smart Card
Technology (USENIX Press, 1999), pp. 175* 185. Maintaining the Security of

Smart Card Systems and Privacy of Personal Information

Page 14 GAO- 03- 1108T through card readers that control the flow of data
to and from the smart card. Attacks mounted on either the card readers or
any of the attached

computing systems could compromise the safeguards that are the goals of
implementing a smart card system. Smart cards used to support multiple
applications may introduce additional risks to the system. For example, if
adequate care is not taken in designing and testing each software
application, loading new applications onto existing cards could compromise
the security of the other applications already stored on the cards. In
general, guaranteeing the security of a multiapplication card can be more
difficult because of the

difficulty of determining which application is running inside a
multiapplication smart card at any given time. If an application runs at
an unauthorized time, it could gain unauthorized access to data intended
only for other applications.

In addition to security, protecting the privacy of personal information is
a growing concern and must be addressed with regard to the personal
information contained on smart cards. Once in place, smart- card* based
systems designed simply to control access to facilities and systems could
also be used to track the day- to- day activities of individuals,
potentially compromising their privacy. Further, smart- card* based
systems could be used to aggregate sensitive information about individuals
for purposes other than those prompting the initial collection of the
information, which could compromise privacy. The Privacy Act of 1974 18
requires the federal government to restrict the disclosure of personally
identifiable records maintained by federal agencies, while permitting
individuals access to their own records and the right to seek amendment of
agency records that are inaccurate, irrelevant, untimely, or incomplete.
Further, the EGovernment Act of 2002 19 requires that agencies conduct
privacy impact assessments before developing or procuring information
technology that collects, maintains, or disseminates personally
identifiable information. Accordingly, agency officials need to assess and
plan for appropriate privacy measures when implementing smart- card* based
systems and ensure that privacy impact assessments are conducted when
required.

GSA, NIST, and other agency officials indicated that security and privacy
issues are challenging, because governmentwide policies have not yet 18 5
U. S. C. S: 552a.

19 E- Government Act of 2002, Public Law 107- 347 (Dec. 17, 2002).

Page 15 GAO- 03- 1108T been established, and widespread use of the
technology has not yet occurred. As smart card projects evolve and are
used more frequently, especially by citizens, agencies are increasingly
likely to need policy

guidance to ensure consistent and appropriate implementation that ensures
an adequate degree of security as well as privacy.

Given the significant management and technical challenges associated with
successful adoption of smart cards, an ongoing series of initiatives have
been undertaken in the federal government to facilitate the adoption of
the technology. As I mentioned earlier, GSA was originally tasked in 1996
with coordinating an effort to adopt multiapplication smart cards across
the federal government, and it has taken important steps to promote
federal smart card use. For example, since 1998, GSA has worked with
several other federal agencies to promote broad adoption of smart cards
for authentication throughout the federal government. Specifically, GSA
worked with the Department of the Navy to establish a technology
demonstration center to showcase smart card technology and applications,
and it established a smart card project managers* group and Government
Smart Card Interagency Advisory Board. 20 The agency also established an
interagency team to plan for uniform federal access procedures, digital
signatures, and other transactions, and to develop federal smart card
interoperability and security guidelines.

For many federal agencies, GSA*s chief contribution to promoting federal
adoption of smart cards was its effort in 2000 to develop a standard
contracting vehicle for use by federal agencies in procuring commercial
smart card products from vendors. 21 Under the terms of the Smart Access
Common ID Card contract, GSA, NIST, and the contract*s awardees worked
together to develop smart card interoperability guidelines* including an
architectural model, interface definitions, and standard data elements*
that were intended to guarantee that all the products made

available through the contract would be capable of working together.
Several federal smart card projects* including projects at NASA and the
Departments of Homeland Security, State, and the Treasury* have used or

20 In 2000, GSA established the Government Smart Card Interagency Advisory
Board to address government smart card issues, standards, and practices,
as well as to help resolve interoperability problems among agencies. 21
GSA released the solicitation (GS- TFF- 99- 203) for the Smart
Identification Card on January 7, 2000. In May 2000, the contract was
awarded to five vendors. Actions Have Been

Taken to Promote Consistent Smart Card Adoption across Government

Page 16 GAO- 03- 1108T are planning to use the GSA contract vehicle. This
effort is intended to directly address the challenge of achieving
interoperability among smart

card systems that I mentioned earlier. In our report issued earlier this
year, we pointed out additional areas that are important for GSA to
address in order to more effectively promote adoption of smart cards,
including, among other things, implementing smart cards consistently
throughout GSA and developing an agencywide position on the adoption of
smart cards. We made recommendations to GSA to address these issues, and
agency officials told us they have begun to address them. Specifically,
GSA has adopted a new agencywide credential policy and consolidated its
internal smart card projects within the Public Buildings Service. It is
planning to roll out a uniform smart ID card for all GSA employees by
December 2003.

In our January report, we also recommended that OMB develop governmentwide
policy guidance for adoption of smart cards, seeking input from all
federal agencies, with particular emphasis on agencies with smart card
expertise. We noted that without such guidance, agencies may be
unnecessarily reluctant to take advantage of the potential of smart cards
to enhance the security of agency facilities and automated systems. OMB
has begun to take action to develop a framework of policy guidance

for governmentwide smart card adoption. Specifically, on July 3, 2003,
OMB*s Administrator for E- Government and Information Technology issued a
memorandum detailing specific actions the administration was taking to
streamline authentication and identity management in the federal
government. 22 The memo sketched out a three- part initiative:

 First, OMB plans to develop common policy for authentication and
identity management, including technical guidance to be developed by GSA
and NIST, that will result in a comprehensive policy for credentialing
federal employees. A newly established Federal Identity and Credentialing
Committee is intended to collect agency input on policy and requirements
and coordinate this effort.

22 Office of Management and Budget, Memorandum for Chief Information
Officers of Departments and Agencies on Streamlining Authentication and
Identity Management within the Federal Government (Washington, D. C.: July
3, 2003). OMB Has Recently Set

New Policy for Governmentwide Smart Card Adoption

Page 17 GAO- 03- 1108T  Second, OMB intends to execute a governmentwide
acquisition of authentication technology, including smart cards, to
achieve cost savings

in the near term. The memo states that agencies are encouraged to refrain
from making separate acquisitions without coordinating with the Federal
Identity and Credentialing Committee.

 Finally OMB plans to consolidate agency investments in credentials and
PKI services by selecting shared service providers by the end of 2003 and
planning for agencies to migrate to those providers during fiscal years
2004 and 2005.

Much work remains to be done to turn OMB*s vision of streamlined federal
credentialing into reality. According to GSA*s smart cards program
director, it will be difficult to reconcile the widely varying security

requirements of federal agencies to arrive at a stable system design that
all agencies can adhere to. Even with a new version of NIST*s
governmentwide smart card interoperability specification in place,
agencies are still not in agreement about definitions for certain basic
elements, because advances in technology create endless opportunities to
change the specification. For example, the Department of Defense is
currently seeking a change in the standard size of a smart card*s embedded
identifying code, to strengthen the card*s internal security. However,
implementing such a change may be very expensive for agencies already
committed to the existing specification. While it is important to keep
technical specifications up to date* and addressing security is a
challenge that I*ve already noted* frequent changes in specifications
could nevertheless slow progress in achieving a governmentwide solution.
Given the trade- offs that must be considered, achieving governmentwide
interoperability of smart cards could take longer than OMB*s memorandum
anticipates.

In our January report, we recommended that NIST continue to improve and
update the government smart card interoperability specification by
addressing additional technologies* such as contactless cards, biometrics,
and optical stripe media* as well as integration with PKI. As I discussed
earlier, NIST recently issued version 2.1 of the specification, which
includes as an appendix a specification for contactless cards, as well as
accommodations for the future use of biometrics. NIST officials said they
intend to continue working to improve the specification and plan to
actively participate in the newly established Federal Identity and
Credentialing Committee. Challenges Remain in

Implementing the New Policy

Page 18 GAO- 03- 1108T Another potential difficulty in achieving OMB*s
vision of streamlined federal credentialing could be the need to reach
consensus on policies for

using smart- card* based systems. In our January report, we recommended
that OMB issue governmentwide policy guidance regarding adoption of smart
cards for secure access to physical and logical assets, and to do so in
conjunction with federal agencies that have experience with smart card
technology. According to the chair of the Federal Identity and
Credentialing Committee, basic policy guidance on developing smartcard*

based systems is being readied, based on work done at the Department of
Homeland Security. However, additional guidance will also be needed to
define minimum standards for the process of verifying

individuals* identities when credentials are issued to them. According to
the committee chair, it is likely that agencies currently have in place a
wide variety of ways of performing identity verification, and it will be
challenging to achieve consistency in how this is done across government.
Without such consistency, agencies might not be able to rely on

credentials issued by other agencies, because they would not know what
level of assurance was met in issuing those credentials.

In summary, the federal government has made progress in promoting the
adoption of smart cards, which have clear benefits in enhancing security
over access to buildings and other facilities as well as computer systems
and networks. However, agencies continue to face a number of challenges in
implementing smart- card* based systems, including sustaining executive

level commitment, recognizing resource requirements, integrating physical
and logical security practices, achieving interoperability, and
maintaining system security and privacy of personal information. In July
2003, OMB took an important step in addressing these challenges by issuing
new policy for streamlining authentication and identity management in the
federal government. However, much work still needs to be done before
credentialing systems that are interoperable and achieve consistent levels
of assurance are commonplace across government agencies. Mr. Chairman,
this concludes my statement. I would be pleased to answer

any questions that you or other members of the subcommittee may have at
this time.

If you should have any questions about this testimony, please contact me
at (202) 512- 6222 or via E- mail at willemssenj@ gao. gov. Other major
contributors to this testimony included Barbara Collier, John de Ferrari,
Steven Law, Elizabeth Roach, and Yvonne Vigil. Contact and
Acknowledgements

(310383)

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