Background

The Internet is a worldwide network of networks made up of  servers, routers, and backbone networks. To send a communication  from one computer to another, a series of addresses is attached to  information sent from the first computer to route the information to  its final destination. The protocol that guides the administration of  the routing addresses is the Internet protocol. The most widely  deployed version of IP is version 4 (IPv4).

		Internet Protocol Transmits Information across Interconnected Networks

The two basic functions of IP include (1) addressing and  (2) fragmentation of data, so that information can move across  networks. An IP address consists of a fixed sequence of numbers.  IPv4 uses a 32-bit address format, which provides approximately 4.3  billion unique IP addresses.
By providing a numerical description of the location of networked  computers, addresses distinguish one computer from another on the  Internet. In some ways, an IP address is like a physical street  address. For example, if a letter is going to be sent from one  location to another, the contents of the letter must be placed in an  envelope that provides addresses for the sender and receiver.  Similarly, if data are to be transmitted across the Internet from a  source to a destination, IP addresses must be placed in an IP header.  Figure 1 is a simplified illustration of this concept. In addition to  containing the addresses of sender and receiver, the header also  contains a series of fields that provide information about what is  being transmitted.
Limited IPv4 address space prompted organizations that need large  numbers of IP addresses to implement technical solutions to  compensate. For example, network administrators began to use one  unique IP address to represent a large number of users. In other  words, to the outside world, all computers behind a device known  as a network address translation router appear to have the same  address. While this method has enabled organizations to  compensate for the limited number of globally unique IP addresses  available with IPv4, the resulting network structure has eliminated  the original end-to-end communications model of the Internet.
Because of the limitations of IPv4, in 1994 the Internet Engineering  Task Force (IETF) began reviewing proposals for a successor to  IPv4 that would increase IP address space and simplify routing. The  IETF established a working group to be specifically responsible for  developing the specifications and standardization of IPv6. Over the  past 10 years, IPv6 has evolved into a mature standard. A complete  list of the IPv6 documents can be found at the IETF Web site.

		IPv6 Is Gaining Momentum Globally

Interest in IPv6 is gaining momentum around the world, particularly  in parts of the world that have limited IPv4 address space to meet  their industry and consumer communications needs. Regions that  have limited IPv4 address space, such as Asia and Europe, have  undertaken efforts to develop, test, and implement IPv6  deployments.
As a region, Asia controls only about 9 percent of the allocated IPv4  addresses, and yet has more than half of the world’s population. As  a result, the region is investing in IPv6 development, testing, and  implementation. For example, the Japanese government’s e-Japan  Priority Policy Program mandated the incorporation of IPv6 and set  a deadline of 2005 to upgrade existing systems in both the public  and private sectors. The government has helped to support the  establishment of an IPv6 Promotion Council to facilitate issues  related to development and deployment and is providing tax  incentives to promote deployment. In addition, major Japanese  corporations in the communications and consumer electronics  sectors are also developing IPv6 networks and products. Further,  the Chinese government has reportedly set aside approximately  $170 million to develop an IPv6-capable infrastructure.
The European Commission initiated a task force in April 2001 to  design an IPv6 Roadmap. The Roadmap serves as an update and  plan of action for development and future perspectives. It also  serves as a way to coordinate European efforts for developing,  testing, and deploying IPv6. Europe currently has a task force that  has the dual mandate of initiating country/regional IPv6 task forces  across European states and seeking global cooperation around the  world. Europe’s Task Force and the Japanese IPv6 Promotion  Council forged an alliance to foster worldwide deployment.

	IPv6 Key Characteristics Increase Address Space, Improve Functionality, Ease Network Administration, and Enhance Security

The key characteristics of IPv6 are designed to increase address  space, promote flexibility and functionality, and enhance security.  For example, IPv6 dramatically increases the amount of IP address  space available from the approximately 4.3 billion in IPv4 to  approximately 3.4 × 10This large number of IPv6 addresses means that almost any  electronic device can have its own address. While IP addresses are  commonly associated with computers, they are increasingly being  assigned to other items such as cellular phones, consumer  electronics, and automobiles.
In contrast to IPv4, the massive address space available in IPv6 will  allow virtually any device to be assigned a globally reachable  address. This change fosters greater end-to-end communications  between devices with unique IP addresses and can better support  the delivery of data-rich content such as voice and video.
In addition to the increased number of addresses, IPv6 improves the  routing of data, provides mobility features for wireless, and eases  automatic configuration capabilities for network administration,  quality of service, and security. These characteristics are expected  to enable advanced Internet communications and foster new  software applications. While applications that fully exploit IPv6 are  still in development, industry experts have identified various federal  functions that might benefit from IPv6-enabled applications, such as  border security, first responders, public health, and information  sharing.

	IPv6 Considerations Include Significant Planning Efforts and Immediate Actions to Ensure Security

The transition to IPv6 is under way for many federal agencies  because their networks already contain IPv6-capable software and  equipment. For example, most major operating systems, printers,  and routers currently support IPv6. Therefore, it is important for  agencies to note that the transition to IPv6 is different from a  software upgrade because, when it is installed, its capability is also  being integrated into the software and hardware.
Besides recognizing that an IPv6 transition is already under way,  other key considerations for federal agencies to address in an IPv6  transition include significant IT planning efforts and immediate  actions to ensure the security of agency information and networks.
Important planning considerations include the following:  ●  Developing inventories and assessing risks—An inventory of  equipment (software and hardware) provides management with an  understanding of the scope of an IPv6 transition and assists in  focusing agency risk assessments. These assessments are essential  steps in determining what controls are required to protect a network  and what level of resources should be expended on controls.  ●  Creating business cases for an IPv6 transition—A business case  usually identifies the organizational need for the system and  provides a clear statement of the high-level system goals. One key  aspect to consider while drafting the business case for IPv6 is to  understand how many devices an agency wants to connect to the  Internet. This will help in determining how much IPv6 address space  is needed for the agency. Within the business case, it is crucial to  include how the new technology will integrate with the agency’s  existing enterprise architecture.  ●  Establishing policies and enforcement mechanisms—Developing  and establishing IPv6 transition policies and enforcement  mechanisms are important considerations for ensuring an efficient  and effective transition. Furthermore, because of the scope,  complexities, and costs involved in an IPv6 transition, effective  enforcement of agency IPv6 policies is an important consideration  for management officials.  ●  Determining the costs—Cost benefit analyses and return-on- investment calculations can be used to justify investments. During  the year 2000 (Y2K) technology challenge, the federal government  amended the Federal Acquisition Regulation and mandated that all  contracts for information technology include a clause requiring the  delivered systems or service to be ready for the Y2K date change.  This helped prevent the federal government from procuring systems  and services that might have been obsolete or that required costly  upgrades. Similarly, proactive integration of IPv6 requirements into  federal acquisition requirements can reduce the costs and  complexity of the IPv6 transition of federal agencies and ensure that  federal applications are able to operate in an IPv6 environment  without costly upgrades.  ●  Identifying timelines and methods for the transition—Timelines  and process management can assist a federal agency in determining  when to authorize its various component organizations to allow IPv6  traffic and features. Additionally, agencies can benefit from  understanding the different types of transition methods or  approaches that can allow them to use both IPv4 and IPv6 without  causing significant interruptions in network services.

		If Not Managed, IPv6 Features Can Be Abused

As IPv6-capable software and devices accumulate in agency  networks, they could be abused by attackers if not managed  properly. For example, IPv6 is included in most computer operating  systems and, if not enabled by default, is easy for administrators to  enable either intentionally or as an unintentional byproduct of  running a program. We tested IPv6 features and found that, if  firewalls and intrusion detection systems are not appropriately  configured, IPv6 traffic may not be detected or controlled, leaving  systems vulnerable to attacks by malicious hackers.
Further, in April 2005, the United States Computer Emergency  Response Team (US-CERT), located at the Department of Homeland  Security (DHS), issued an IPv6 cyber security alert to federal  agencies based on our IPv6 test scenarios and discussions with DHS  officials. The alert warned federal agencies that unmanaged or  rogue implementations of IPv6 present network management  security risks. Specifically, the US-CERT notice informed agencies  that some firewalls and network intrusion detection systems do not  provide IPv6 detection or filtering capability and that malicious  users might be able to tunnel IPv6 traffic through these security  devices undetected. Further, one feature of IPv6, known as  automatic configuration (where a device that is IPv6 enabled will  derive its own IP address from neighboring routers without an  administrator’s intervention), could allow devices to automatically  configure themselves with an IPv6 address without authorization.  US-CERT provided agencies with a series of short-term solutions  including  ●  determining if firewalls and intrusion detection system products  support IPv6 and implement additional IPv6 security measures and  identifying IPv6 devices and disabling if not necessary.

	Progress Has Been Made at Defense but Is Lacking at Other Federal Agencies

The Department of Defense’s transition to IPv6 is a key component  of its business case to improve interoperability among many  information and weapons systems, known as the Global Information  Grid (GIG). The IPv6 component of GIG facilitates DOD’s goal of  achieving network-centric operations by exploiting the key  characteristics of IPv6, including  ●  enhanced mobility features,  ●  enhanced configuration features,  ●  enhanced quality of service, and  ●  enhanced security features.
The department’s efforts to develop policies, timelines, and methods  for transitioning to IPv6 are progressing. In 2004, Defense  established an IPv6 Transition Office to provide the overall  coordination, common engineering solutions, and technical  guidance across the department to support an integrated and  coherent transition to IPv6. The Transition Office is in the early  stages of its work and has developed a set of products, including a  draft system engineering management plan, risk management  planning documentation, budgetary documentation, requirements  criteria, and a master schedule. The management schedule includes  a set of implementation milestones that include DOD’s goal of  transitioning to IPv6 by fiscal year 2008.
In parallel with the Transition Office’s efforts, the Office of the DOD  Chief Information Officer has created an IPv6 transition plan. The  Chief Information Officer has responsibility for ensuring a coherent  and timely transition and for establishing and maintaining the  overall departmental transition plan, and is the final approval  authority for any IPv6 transition waivers.
Although DOD has made substantial progress in developing a  planning framework for transitioning to IPv6, the department still  faces several challenges, including developing a full inventory of  IPv6-capable software and hardware, finalizing its IPv6 systems  engineering management plan, monitoring its operational networks  for unauthorized IPv6 traffic, and developing a comprehensive  enforcement strategy, including using its existing budgetary and  acquisition review process.
Unlike DOD, the majority of other federal agencies reporting have  not yet initiated transition planning efforts for IPv6. For example, of  the 22 agencies that responded to our survey, 4 agencies reported  having established a date or goal for transitioning to IPv6. The  majority of agencies have not addressed key planning  considerations. For example,  ●  22 agencies reported not having developed a business case,  ●  21 agencies reported not having plans,  ●  19 agencies reported not having inventoried their IPv6-capable  ●  22 agencies reported not having estimated costs.
Agency responses demonstrate that few efforts outside DOD have  been initiated to address IPv6. If agency planning is not carefully  monitored, it could result in significant and unexpected costs for the  federal government.

	Recommendations for Addressing Federal IPv6 Challenges

To address the challenges IPv6 presents to federal networks, in our  report we recommended that federal agencies begin addressing key  IPv6 planning considerations. Specifically, we recommended that  the Director of OMB instruct agencies to begin developing  inventories and assessing risks, creating business cases for the IPv6  transition, establishing policies and enforcement mechanisms,  determining the costs, and identifying timelines and methods for  transition, as appropriate. To help ensure that IPv6 would not result  in unexpected costs for the federal agencies, we recommended that  the Director consider amending the Federal Acquisition Regulation  with specific language that requires that all information technology  systems and applications purchased by the federal government be  able to operate in an IPv6 environment. Finally, because poorly  configured and unmanaged IPv6 capabilities present immediate  risks to federal agency networks, we recommended that agency  heads take immediate action to address the near-term security risks.  Such actions could include determining what IPv6 capabilities they  may have and initiating steps to ensure that they can control and  monitor IPv6 traffic to prevent unauthorized access.
In summary, transitioning to IPv6 is a pervasive, crosscutting  challenge for federal agencies that could result in significant  benefits to agency services and operations. But such benefits may  be diminished if action is not taken to ensure that agencies are  addressing the attendant challenges, including addressing key  planning considerations and acting to ensure the security of agency  information and networks. If agencies do not address these key  planning issues and do not seek to understand the potential scope  and complexities of IPv6 issues—whether agencies plan to  transition immediately or not—they will face potentially increased  costs and security risks.
Mr. Chairman, this completes our prepared statement. We would be  happy to respond to any questions you or other Members of the  Committee may have at this time.

	Contacts and Staff Acknowledgments

For further information, please contact David Powner at (202)-512- 9286 or Keith Rhodes at (202)-512-6412. We can also be reached by  e-mail at pownerd@gao.gov and rhodesk@gao.gov respectively.
Key contributors to this testimony were Scott Borre, Lon Chin, West  Coile, Camille Chaires, John Dale, Neil Doherty, Nancy Glover,  Richard Hung, Hal Lewis, George Kovachick, J. Paul Nicholas,  Christopher Owens, Eric Trout, and Eric Winter.
This is a work of the U.S. government and is not subject to copyright protection in the  United States. It may be reproduced and distributed in its entirety without further  permission from GAO. However, because this work may contain copyrighted images or  other material, permission from the copyright holder may be necessary if you wish to  reproduce this material separately.

Summary:
Why GAO Did This Study

The Internet protocol (IP) provides the addressing mechanism that defines how and where information such as text, voice, and video moves across interconnected networks. Internet protocol version 4 (IPv4), which is widely used today, may not be able to accommodate the increasing number of global users and devices that are connecting to the Internet. As a result, IP version 6 (IPv6) was developed to increase the amount of available IP address space. The new protocol is gaining increased attention from regions with limited IP addresses. For its testimony, GAO was asked to discuss the findings and recommendations of its recent study of IPv6 (GAO-05-471). In this study, GAO was asked to (1) describe the key characteristics of IPv6; (2) identify the key planning considerations for federal agencies in transitioning to IPv6; and (3) determine the progress made by the Department of Defense (DOD) and other major agencies in the transition to IPv6.

What GAO Found

The key characteristics of IPv6 are designed to increase address space, promote flexibility and functionality, and enhance security. For example, by using 128-bit addresses rather than 32-bit addresses, IPv6 dramatically increases the available Internet address space from approximately 4.3 billion in IPv4 to approximately 3.4 x 10^38 in IPv6. Key planning considerations for federal agencies include recognizing that the transition is already under way, because agency networks already include IPv6-capable software and equipment. Other important agency planning considerations include developing inventories and assessing risks; creating business cases that identify organizational needs and goals; establishing policies and enforcement mechanisms; determining costs; and identifying timelines and methods for transition. Managing the security aspects of transition is also an important consideration because poorly managed IPv6 capabilities can put agency information and systems at risk. DOD has made progress in developing a business case, policies, timelines, and processes for transitioning to IPv6. Unlike DOD, the majority of other major federal agencies reported that they have not yet initiated key planning efforts for IPv6. In its report, GAO recommended, among other things, that the Director of the Office of Management and Budget (OMB) instruct agencies to begin to address key planning considerations for the IPv6 transition and that agencies act to mitigate near-term IPv6 security risks. Officials from OMB, DOD, and Commerce generally agreed with the contents of the report.