premise: OMB's 1996 revision of Circular A-130, Appendix III, recognizes that federal agencies have had difficulty in performing effective risk assessments--expending resources on complex assessments of specific risks with limited tangible benefits in terms of improved security.
hypothesis: Federal agencies have had difficulty in performing effective risk assessments--expending resources on complex assessments of specific risks with limited tangible benefits in terms of improved security--that was recognized in OMB's 1996 revision of Circular A-130, Appendix III.