15 December 1998
Source: http://www.access.gpo.gov/su_docs/aces/aaces002.html

    [Federal Register: December 15, 1998 (Volume 63, Number 240)]
    [Notices]
    [Page 69049-69051]
    From the Federal Register Online via GPO Access [wais.access.gpo.gov]
    [DOCID:fr15de98-29]

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    DEPARTMENT OF COMMERCE

    National Institute of Standards and Technology
    [Docket No. 981028268-8268-01]

    Announcing Approval of Federal Information Processing Standard
    186-1, Digital Signature Standard, and Request for Comments

    AGENCY: National Institute of Standards and Technology (NIST),
    Commerce.

    ACTION: Notice; Request for comments.

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    SUMMARY: The Secretary of Commerce approved an interim final standard,

    [[Page 69050]]

    which will be known as Federal Information Processing Standard (FIPS)
    186-1, Digital Signature Standard (DSS). This interim final standard
    allows for both the use of the Digital Signature Algorithm (DSA) and
    the American National Standards Institute X9.31 standard by federal
    organizations. The X9.31 standard describes the Rivest-Shamir-Adleman
    (RSA) digital signature technique.
        This notice advises the public of the Secretary's decision and
    solicits comments from the public, academic and research communities,
    manufacturers, voluntary standards organizations, and Federal, state,
    and local government organizations. These comments will assist NIST in
    making a recommendation to the Secretary regarding a final decision.

    DATES: Effective date: December 15, 1998. Comment Date: Comments are
    due on or before March 15, 1999.

    ADDRESSES: Comments should be sent to Information Technology
    Laboratory, Attn: DSS/X9.31 Comments, National Institute of Standards
    and Technology, 100 Bureau Drive Stop 8970, Gaithersburg, MD 20899-
    8970.
        Comments may also be sent electronically to:
    ``FIPS186RSA@nist.gov''.
        Specifications of the FIPS 186 are available electronically at:
    <http://csrc.nit.gov/fips/>[HTML mirror: http://jya.com/fips186-1.htm]
        Ordering information for the ANSI X9.31 standard is available from
    American Bankers Assoc./DC, X9 Customer Service Dept., P.O. Box 79064,
    Baltimore, MD 21279-0064, telephone 1-800-338-0626.

    FOR FURTHER INFORMATION CONTACT:
    Edward Roback, National Institute of Standards and Technology, 100
    Bureau Drive Stop 8930, Gaithersburg, MD 20899-8930; telephone 301-975-
    3696 or via fax at 301-948-1233.

    SUPPLEMENTARY INFORMATION: Under Section 5131 of the Information
    Technology Management Reform Act of 1996 and the Computer Security Act
    of 1987, the Secretary of Commerce is authorized to approve standards
    and guidelines for the cost effective security and privacy of sensitive
    information processed by federal computer systems. On May 10, 1994, the
    Secretary of Commerce approved FIPS 186, ``Digital Signature
    Standard,'' which specifies a single technique for the generation and
    verification of digital signatures. Recently, another technique, known
    as RSA, was approved as the X9.31 standard [X9.31-1998 Digital
    Signatures Using Reversible Public Key Cryptography for the Financial
    Services Industry (rDSA)] by ANSI. A second standard, based upon a
    technique known as elliptic curve, is expected to be completed and
    approved by ANSI in the near future. Agencies have expressed
    considerable interest to NIST in using these technologies.
        On May 13, 1997, NIST published a Federal Register notice
    soliciting comments on amending FIPS 186 to allow for the use of other
    techniques, specifically mentioning RSA and elliptic curve (but not
    with detailed specifications as now exist for RSA in the ANSI X9.31
    standard). The public comments overwhelmingly supported revising FIPS
    186 to include these additional algorithms. RSA, which has withstood
    widespread scrutiny by the cryptographic research community, is
    available in many commercial products. NIST believes it to be robust
    and sufficiently strong for use by federal agencies.
        Following ANSI's recent approval of the ANSI X9.31 standard, the
    Secretary of Commerce approved an interim modification to FIPS 186
    (FIPS 186-1) to approve use of the digital signature technique
    specified in X9.31 in addition to the algorithm currently specified in
    FIPS 186. The Secretary's decision revise the old FIPS 186 by adding
    the following statements into the new FIPS 186-1.
        Add the following as the last sentences of the ``Applications''
    paragraph: The technique specified in ANSI X9.31 may be used in
    addition to the Digital Signature Algorithm (DSA) specified herein.
        Add the following as the last two sentences of the
    ``Implementations'' paragraph: Agencies are advised that separate keys
    should be used for signature and confidentiality purposes when using
    the X9.31 standard. This is because the RSA algorithm can be used for
    both data encryption and digital signature purposes.
        To minimize any potential for spoofing digital signatures, keys
    used for signature purposes should not be recoverable. Using separate
    keys will allow agencies to recover confidentiality keys but not
    signature keys.
        The standard has also been modified to reflect the availability of
    conformity testing for DSA implementations. (ANSI's conformity testing
    program for X9.31 implementations is not yet in place.) Minor language
    modifications (e.g., indicating that two algorithms are now approved)
    and other administrative updates have also been made to the standard.
        Since ANSI's conformance testing program for the X9.31 standard is
    not yet in place, federal agencies are advised, in the interim, to
    acquire products that vendors hold out as in conformance with ANSI
    X9.31. Agencies will be advised by NIST when a conformance testing
    program is in effect.
        Comments are sought by NIST so as to make a recommendation to the
    Secretary regarding a final FIPS.

    Federal Information Processing Standards Publication 186-1

    <Approval Dates> 1998

    Announcing the Digital Signature Standard (DSS)
        Federal Information Processing Standards Publications (FIPS PUBS)
    are issued by the National Institute of Standards and Technology (NIST)
    after approval by the Secretary of Commerce pursuant to Section 5131 of
    the Information Technology Management Reform Act of 1996 (Public Law
    104-106), and the Computer Security Act of 1987 (Public Law 100-235).
        Name of Standard: Digital Signature Standard (DSS).
        Category of Standard: Computer Security, Cryptography.
        Explanation: This Standard specifies algorithms appropriate for
    applications requiring a digital, rather than written, signature. A
    digital signature is represented in a computer as a string of binary
    digits. A digital signature is computed using a set of rules and a set
    of parameters such that the identity of the signatory and integrity of
    the data can be verified. An algorithm provides the capability to
    generate and verify signatures. Signature generation makes use of a
    private key to generate a digital signature. Signature verification
    makes use of a public key which corresponds to, but is not the same as,
    the private key. Each user possesses a private and public pair. Public
    keys are assumed to be known to the public in general. Private keys are
    never shared. Anyone can verify the signature of a user by employing
    that user's public key. Signature generation can be performed only by
    the possessor of the user's private key.
        A hash function is used in the signature generation process to
    obtain a condensed version of data, called a message digest (see Figure
    1). The message digest is then input to the digital signature (ds)
    algorithm to generate the digital signature. The digital signature is
    set to the intended verifier along with the signed data (often called
    the message). The verifier of the message and signature verifies the
    signature by using the sender's public key. The same hash function must
    also be used in the verification process. The hash function is
    specified in a separate

    [[Page 69051]]

    standard, the Secure Hash Standard (SHS), FIPS 180-1. FIPS approved ds
    algorithms must be implemented with the SHS. Similar procedures may be
    used to generate and verify signatures for stored as well as
    transmitted data.
        [Figure 1 not reproduced in this Federal Register notice.]
        Approving Authority: Secretary of Commerce.
        Maintenance Agency: U.S. Department of Commerce, National Institute
    of Standards and Technology (NIST), Information Technology Laboratory
    (ITL).
        Applicability: This standards is applicable to all Federal
    departments and agencies for the protection of sensitive unclassified
    information that is not subject to section 2315 of Title 10, United
    States Code, or section 3502(2) of Title 44, United States Code. This
    standard shall be used in designing and implementing public-key based
    signature systems which Federal departments and agencies operate or
    which are operated for them under contract. Adoption and use of this
    standard is available to private and commercial organizations.
        Applications: A digital signature (ds) algorithm authenticates the
    integrity of the signed data and the identity of the signatory. A ds
    algorithm may also be used in proving to a third party that data was
    actually signed by the generator of the signature. A ds algorithm is
    intended for use in electronic mail, electronic funds transfer,
    electronic data interchange, software distribution, data storage, and
    other applications which require data integrity assurance and data
    origin authentication. The technique specified in ANSI X9.31 may be
    used in addition to the Digital Signature Algorithm (DSA) specified
    herein.
        Implementations: A ds algorithm may be implemented in software,
    firmware, hardware, or any combination thereof. NIST is developing a
    validation program to test implementations for conformance to this
    standard. Currently, conformance tests for ANSI X9.31 have not been
    developed. These tests will be developed and made available in the
    future. Information about the planned validation program can be
    obtained from the National Institute of Standards and Technology,
    Information Technology Laboratory, Attn: DSS Validation, 100 Bureau
    Drive Stop 8930, Gaithersburg, MD 20899-8930.
        Agencies are advised that separate keys should be used for
    signature and confidentiality purposes when using the X9.31 standard.
    This is because the RSA algorithm can be used for both data encryption
    and digital signature purposes.
        Export Control: Implementations of this standard are subject to
    Federal Government export controls as specified in Title 15, Code of
    Federal Regulations, Parts 768 through 799. Exporters are advised to
    contact the Department of Commerce, Bureau of Export Administration for
    more information.
        Patents: The algorithms in this standard may be covered by U.S. or
    foreign patents.
        Implementation Schedule: This standard becomes effective <insert>.
        Specifications: Federal Information Processing Standard (FIPS) 186-
    1 Digital Signature Standard (affixed).
        Cross Index:
        a. FIPS PUB 46-2, Data Encryption Standard.
        b. FIPS PUB 73, Guidelines for Security of Computer Applications.
        c. FIPS PUB 140-1, Security Requirements for Cryptographic Modules.
        d. FIPS PUB 171, Key Management Using ANSI X9.17.
        e. FIPS PUB 180-1, Secure Hash Standard.
        Qualifications: The security of a digital signature system is
    dependent on maintaining the secrecy of users' private keys. Users must
    therefore guard against the unauthorized acquisition of their private
    keys. While it is the intent of this standard to specify general
    security requirements for generating digital signatures, conformance to
    this standard does not assure that a particular implementation is
    secure. The responsible authority in each agency or department shall
    assure that an overall implementation provides an acceptable level of
    security. This standard will be reviewed every five years in order to
    assess its adequacy.
        Waiver Procedure: Under certain exceptional circumstances, the
    heads of Federal departments and agencies may approve waivers to
    Federal Information Processing Standards (FIPS). The head of such
    agency may redelegate such authority only to a senior official
    designated pursuant to section 3506(b) of Title 44, United States Code.
    Waiver shall be granted only when:
        a. Compliance with a standard would adversely affect the
    accomplishment of the mission of an operator of a Federal computer
    system; or
        b. Cause a major adverse financial impact on the operator which is
    not offset by Government wide savings.
        Agency heads may act upon a written waiver request containing the
    information detailed above. Agency heads may also act without a written
    waiver request when they determine that conditions for meeting the
    standard cannot be met. Agency heads may approve waivers only by a
    written decision which explains the basis on which the agency head made
    with required finding(s). A copy of each such decision, with
    procurement sensitive or classified portions clearly identified, shall
    be sent to: National Institute of Standards and Technology; ATTN: FIPS
    Waiver Decisions, 100 Bureau Drive Stop 8970, Gaithersburg, MD 20899-
    8970.
        In addition, notice of each waiver granted and each delegation of
    authority to approve waivers shall be sent promptly to the Committee on
    Government Operations of the House of Representatives and the Committee
    on Governmental Affairs of the Senate and shall be published promptly
    in the Federal Register.
        When the determination on a waiver applies to the procurement of
    equipment and/or services, a notice of the waiver determination must be
    published in the Commerce Business Daily as a part of the notice of
    solicitation for offers of an acquisition or, if the waiver
    determination is made after that notice is published, by amendment to
    such notice.
        A copy of the waiver, any supporting documents, the document
    approving the waiver and any supporting and accompanying documents,
    with such deletions as the agency is authorized and decides to make
    under 5 U.S.C. Sec. 552(b), shall be part of the procurement
    documentation and retained by the agency.
        Where to Obtain Copies of the Standard: Copies of this publication
    are for sale by the National Technical Information Service, U.S.
    Department of Commerce, Springfield, VA 22161. When ordering, refer to
    Federal Information Processing Standards Publication 186-1 (FIPSPUB186-
    1), and identify the title. When microfiche is desired, this should be
    specified. Prices are published by NTIS in current catalogs and other
    issuances. Payment may be made by check, money order, deposit account
    or charged to a credit card accepted by NTIS.

        Dated: December 9, 1998.
    Robert E. Hebner,
    Acting Deputy Director.
    [FR Doc. 98-33167 Filed 12-14-98; 8:45 am]
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