A111Q3 IMbEfi? NIST Special Publication 500-169

Computer nist

Systems i

'^^^^^

Exccutivc Guide to the

'NST OF STANDARDS & TECH R.I.C.

^f\f'S-.9^'^<f^^e^Ml^MmeU> the o QC100 .U57 NO.500-169 llsg V ? C I NIST Technology

Protection of Information

Resources

Cheryl Helsing

Marianne Swanson

Mary Anne Todd
NATIONAL INSTITUTE OF STANDARDS & _ TECHNOLOGY

Research Information Center

he National Institute of Standards and l^^^ll!ea^b^eta9(^^2g^8§§^^ Congress on March 3, 1901. The Institute's overall goal is to strengthen and advance the Nation's science and technology and

facilitate their effective application for public benefit To this end, the Institute conducts research to assure international competitiveness and leadership of U.S. industry, science and technology. NIST work involves development

and transfer of measurements, standards and related science and technology, in support of continually improving

U.S. productivity, product quality and reliability, innovation and imderlying science and engineering. The Institute's technical work is performed by the National Measurement Laboratory, the National Engineering Laboratory, the

National Computer Systems Laboratory, and the Institute for Materials Science and Engineering.

The National Measurement Laboratory

Provides the national system of physical and chemical measurement;

coordinates the system with measurement systems of other nations and furnishes essential services leading to accurate and imiform

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research; develops, produces, and distributes Standard Reference

Materials; provides calibration services; and manages the National

Standard Reference Data System. The Laboratory consists of the following centers: The National Engineering Laboratory

Basic Standards^

Radiation Research

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Provides technology and technical services to the public and private

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Mathematics

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Chemical Engineering'

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by managing the Federal Information Processing Standards Program,

developing Federal ADP standards guidelines, and managing Federal

participation in ADP voluntary standardization activities; provides scientific and technological advisory services and assistance to Federal

agencies; and provides the technical foundation for computer-related

policies of the Federal Government The Laboratory consists of the following divisions: The Institute for Materials Science and Engineering

Information Systems

Engineering

Systems and Software

Technology

Computer Security

Systems and Network

y^chitecture

Advanced Systems

Conducts research and provides measurements, data, standards, refer- ence materials, quantitative understanding and other technical information fundamental to the processing, structure, properties and perfor- mance of materials; addresses the scientific basis for new advanced

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radiation research and nondestructive evaluation; and broadly disseminates generic technical information resulting from its programs. The

Institute consists of the following divisions:

Ceramics

Fracture and Deformation'

Polymers

Metallurgy Reactor Radiation

'Headquarters and Laboratories at Gaithersburg, MD, unless otherwise noted; mailing address Gaithersburg, MD 20899. %ome divisions within the center are located at Boulder, CO 80303.

^ Located at Boulder, CO, with some elements at Gaithersburg, MD.
NIST Special Publication 500-169 acfoo

, (Ji^y

Executive Guide to the c.l^

Protection of Information

Resources

Cheryl Helsing

Deloitte, Haskins & Sells

Marianne Swanson

Mary Anne Todd

National Computer Systerro Laboratory

National Institute of Standards and Technology

Galthersburg. MD 20899

October 1989

U.S. DEPARTMENT OF COMMERCE

Robert A. Mosbacher, Secretary

NATIONAL INSTITUTE OF STANDARDS

AND TECHNOLOGY

Raymond G. Kammer, Acting Director Nisr
Reports on Computer Systems Technology

The National Institute of Standards and Technology (NIST) (formerly the National Bureau of Standards)

has a unique responsibility for computer systems technology within the Federal government. NIST's

National Computer Systems Laboratory (NCSL) develops standards and guidelines, provides technical

assistance, and conducts research for computers and related telecommunications systems to achieve more effective utilization of Federal information technology resources, NCSL's responsibilities include

development of technical, management, physical, and administrative standards and guidelines for the

cost-effective security and privacy of sensitive unclassified information processed in Federal computers.

NCSL assists agencies in developing security plans and in improving computer security awareness training. This Special Publication 500 series reports NCSL research and guidelines to Federal agencies as well as to organizations in industry, government, and academia.

Library of Congress Catalog Card Number: 89-600762

National Institute of Standards and Technology Special Publication 500-169

Natl. Inst. Stand. Technol. Spec. Publ. 500-169, 20 pages (Oct. 1989)

CODEN: NSPUE2

U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON: 1989

For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, DC 20402
The National Institute of Standards and Technology (NIST), is responsible for developing standards, providing technical assistance, and conducting research for computers and related telecommunications systems. These activities provide technical support to government and industry in the

effective, safe, and economical use of computers. With the passage of the Computer Security Act

of 1987 (P.L, 100-235), NIST's activities also include the development of standards and guidelines

needed to assure the cost-effective security and privacy of sensitive information in Federal computer systems. This guide is just one of three brochures designed for a specific audience. The

"Managers Guide to the Protection of Information Resources" and the "Computer User's Guide to the Protection of Information Resources" complete the series.

Acknowledgments

This guide was written by Cheryl Helsing of Deloitte, Haskins & Sells in conjunction with

Marianne Swanson and Mary Anne Todd, National Institute of Standards and Technology.

Table of Contents

Introduction , 1 Executive Responsibilities 3

Executive Goals 5

Information Protection Program Elements 7

Information Protection Program Implementation 11

For Additional Information 15

V

Introduction

Federal agencies are becoming increasingly dependent upon

automated information systems to carry out their missions.

While in the past, executives have taken a hands-off approach

in dealing with these resources, essentially leaving the area to the computer technologist, they are now recognizing that computers and computer-related problems must be understood

and managed, the same as any other resource. The success of an information resources protection program

depends on the policy generated, and on the attitude of

management toward securing information on automated sys- tems. You, the policy maker, set the tone and the emphasis on

how important a role information security will have within your

agency. Your primary responsibility is to set the information

resource security policy for the organization with the objectives

of reduced risk, compliance with laws and regulations and as- surance of operational continuity, information integrity, and

confidentiaHty.

Purpose of this Guide This guide is designed to help you, the policy maker, address a host of questions regarding the protection and safety of computer systems and data processed within your agency. It introduces information systems security concerns, outlines the

management issues that must be addressed by agency policies

and programs, and describes essential components of an effective implementation process.

The Risks The proliferation of personal computers, local-area networks,

and distributed processing has drastically changed the way we

manage and control information resources. Internal controls

and control points that were present in the past when we were

dealing with manual or batch processes have not always been

replaced with comparable controls in many of today's

automated systems. Reliance upon inadequately controlled information systems can have serious consequences, including:

• Inability or impairment of the agency's ability to perform its mission

1
Introduction

• Inability to provide needed services to the public

• Waste, loss, misuse, or misappropriation of funds

• Loss of credibility or embarrassment to an agency

To avoid these consequences, a broad set of information

security issues must be addressed effectively and comprehensively. Towards this end, executives should take a traditional

risk management approach, recognizing that risks are taken in

the day-to-day management of an organization, and that there

are alternatives to consider in managing these risks. Risk is ac- cepted as part of doing business or is reduced or eliminated by

modifying operations or by employing control mechanisms.
Executive Responsibilities

Set the Security Policy ofthe Protecting information resources is an important goal for all or- Organization ganizations. This goal is met by establishing an information

resource security program. It will require staff, funding and

positive incentives to motivate employees to participate in a program to protect these valuable assets.

This information resource protection policy should state precisely:

• the value to the agency of data and information resources and

the need to preserve their integrity, availability, and confidentiality

• the intent of the organization to protect the resources from

accidental or deliberate unauthorized disclosure, modification, or destruction by employing cost-effective controls

• the assignment of responsibility for data security throughout

the organization

• the requirement to provide computer security and awareness

training to all employees having access to information resources

• the intent to hold employees personally accountable for information resources entrusted to them

• the requirement to monitor and assess data security via internal and external audit procedures

• the penalties for not adhering to the policy

3

Executive Goals

The policy established for securing information resources should meet the basic goals of reducing the risk, complying

with apphcable laws and regulations, and assuring operational

continuity, integrity and confidentiality. This section briefly

describes these objectives and how they can be met.

Reduce Risk To An Acceptable The dollars spent for security measures to control or contain

Level losses should never be more than the projected dollar loss if something adverse happened to the information resource.

Cost-effective security results when reduction in risk is balanced with the cost of implementing safeguards. The

greater the value of information processed, or the more severe

the consequences if something happens to it, the greater the

need for control measures to protect it. It is important that

these trade-offs of cost versus risk reduction be explicitly considered, and that executives understand the degree of risk

remaining after selected controls are implemented.

Assure Operational Continuity With ever-increasing demands for timely information and

greater volumes of information being processed, availability of

essential systems, networks, and data is a major protection

issue. In some cases, service disruptions of just a few hours are unacceptable. Agency reliance on essential computer systems

requires that advance planning be done to allow timely restoration of processing capabilities in the event of severe service disruption. The impact due to inability to process data should be

assessed, and action taken to assure availability of those sys- tems considered essential to agency operation.

Comply with Applicable Laws As the pervasiveness of computer systems increases and the

and Regulations risks and vulnerabilities associated with information systems

become better understood, the body of law and regulations

compelling positive action to protect information resources

grows. OMB Circular No. A- 130, "Management of Federal In- formation Systems," and Public Law 100-235, "Computer

Security Act of 1987" are two documents where the knowledge

of these laws provide a baseline for an information resources

security program.

5
Executive Goals

Assure Integrity and An important objective of an information resource manageConfidenticdity ment program is to ensure that the information is accurate. Integrity of information means you can trust the data and the

processes that manipulate it. A system has integrity when it provides sufficient accuracy and completeness to meet the

needs of the user(s). It should be properly designed to

automate all functional requirements, include appropriate ac- counting and integrity controls, and accommodate the full range of potential conditions that might be encountered in its operation.

Agency information should also be protected from intruders, as well as from employees with authorized computer access

privileges who attempt to perform unauthorized actions.

Assured confidentiahty of sensitive data is often, but not al- ways, a requirement of agency systems. Privacy requirements

for personal information are generally dictated by statute,

while protection requirements for other agency information

are a function of the nature of that information. Determination of requirements in the latter case is made by the official

responsible for that information. The impact of wrongful disclosure should be considered in understanding confidentiality

requirements.

6
Information Protection Program Elements

Needfor Policies and Successful execution of the responsibilities previously outlined

Procedures requires establishing agency policies and practices regarding information protection. The security policy directive facilitates

consistent protection of information resources. Supporting procedures are most effectively implemented with top management support, through a program focused on areas of highest

risk. A compliance assessment process ensures ongoing effectiveness of the information protection program throughout the

agency.

Scope Although the protection of automated information resources is emphasized in this pubHcation, protection requirements will

usually extend to information on all forms of media. Agency

programs should apply safeguards to all information requiring

protection, regardless of its form or location.

Comprehensive information resource protection procedures

will address: accountability for information, vulnerability as- sessment, data access, hardware/software control, systems

development, and operational controls. Protection should be

afforded throughout the life cycle of information, from crea- tion through ultimate disposition.

Accountabilityfor Information An effective information resource protection program identifies the information used by the agency and assigns primary

responsibihty for information protection to the managers of

.the respective functional areas supported by the data. These

managers know the importance of the data to the organization

and are able to quantify the economic consequences of undesirable happenings. They are also able to detect deficiencies

in data and know definitively who must have access to the data

supporting their operations. A fundamental information protection issue is assignment of accountability. Information flows

throughout the organization and can be shared by many individuals. This tends to blur accountability and disperse

decision-making regarding information protection. Accountability should be explicitly assigned for determining and

monitoring security for appropriate agency information.

7
Information Protection Program Elements

When security violations occur, management must be accountable for responding and investigating. Security violations

should trigger a re-evaluation of access authorizations, protection decisions, and control techniques. All apparent violations

should be resolved; since absolute protection will never be

achieved, some losses are inevitable. It is important, however,

that the degree of risk assumed be commensurate with the sensitivity or importance of the information resource to be

protected.

Vulnerability Assessment A risk assessment program ensures management that periodic

reviews of information resources have considered the degree

of vulnerability to threats causing destruction, modification, disclosure, and delay of information availability, in making protection decisions and investments in safeguards.

The official responsible for a specific information resource determines protection requirements. Less-sensitive, less-essential information will require minimal safeguards, while highly

sensitive or critical information might merit strict protective measures. Assessment of vulnerability is essential in specifying

cost-effective safeguards; overprotection can be needlessly costly and add unacceptable operational overhead.

- Once cost-effective safeguards are selected, residual risk

' remains and is accepted by management. Risk status should be

periodically re-examined to identify new threats, vulnerabilities, or other changes that affect the degree of risk that

management has previously accepted.

Data Access Access to information should be delegated according to the

principles of need-to-know and least possible privilege. For a multi-user application system, only individuals with authorized

need to view or use data are granted access authority, and they

are allowed only the minimum privileges needed to carry out

their duties. For personal computers with one operator, data

' should be protected from unauthorized viewing or use. It is the individual's responsibihty to ensure that the data is secure.

8
Information Protection Program Elements

Systems Development All information systems software should be developed in a controlled and systematic manner according to agency standards.

Agency policy should require that appropriate controls for ac- curacy, security, and availability are identified during system

design, approved by the responsible official, and implemented.

Users who design their own systems, whether on a personal

computer or on a mainframe, must adhere to the systems

development requirements.

Systems should be thoroughly tested according to accepted

standards and moved into a secure production environment

through a controlled process. Adequate documentation should

be considered an integral part of the information system and

be completed before the system can be considered ready for use.

Protection of hardware and resources of computer systems and

networks greatly contributes to the overall level of control and

protection of information. The information protection policies

should provide substantial direction concerning the management and control of computer hardware and software.

Agency information should be protected from the potentially

destructive impact of unauthorized hardware and software.

For example, software "viruses" have been inserted into computers through games and apparently useful software acquired

via public access bulletin boards; viruses can spread from sys- tem to system before being detected. Also, unauthorized

hardware additions to personal computers can introduce un- known dial-in access paths. Accurate records of

hardware/software inventory, configurations, and locations

should be maintained, and control mechanisms should provide

assurance that unauthorized changes have not occurred.

To avoid legal liability, no unauthorized copying of software

should be permitted. Agencies should also address the issue of

personal use of Federal computer systems, giving employees

specific direction about allowable use and providing consistent

enforcement.

Hardware/Software

Configuration Control

9
Information Protection Program Elements

Operational Controls Agency standards should clearly communicate minimum ex- pected controls to be present in all computer facilities, computer operations, input/output handling, network management,

technical support, and user liaison. More stringent controls

would apply to those areas that process very sensitive or critical

information.

Protection of these areas would include:

• Security management;

• Physical security;

• Security of system/application software and data;

• Network security; and

• Contingency planning.

The final section of this guide describes the organizational

process of developing, implementing, and managing the ongoing information protection program.

10
Information Protection Program

Implementation

In most cases, agenq^ executive management is not directly involved in the details of achieving a controlled information

processing environment. Instead, executive action should

focus on effective planning, implementation, and an ongoing

review structure. Usually, an explicit group or organization is assigned specific responsibility for providing day-to-day

guidance and direction of this process. Within this group an information security manager (ISM) should be identified as a permanent focal point for information protection issues within the

agency.

The ISM must be thoroughly familiar with the agency mission,

organization, and operation. The manager should have sufficient authority to influence the organization and have access to

agency executives when issues require escalation.

Independence In determining the reporting relationship of the ISM, independence of functional areas within the agency is desirable.

Plans and budget for the ISM function should be approved by

agency management, rather than being part of any functional area budget. This approach avoids conflicts of interest and

facilitates development and maintenance of a comprehensive

and consistent protection program that serves the needs of

agency management.

Degree of Centralization The desirability of centralized versus decentralized security is heavily debated and largely depends on size, organizational

structure, and management approach at the individual agency.

A centralized approach to security has the advantages of being

directly responsive to executive direction and specifically ac- countable for progress and status. A decentralized approach to security has the advantages of

being close to the functional area involved. In the long term,

decentralization may provide better integration of security with

other entity functions.

Information Protection

Management

11
Information Protection Program Implementation

An effective combined approach offers advantages. A small

dedicated resource at the agency level can direct the information protection program, while additional resources are utilized

at the functional area level to implement the program in each

area.

Dedicated Staff The common practice of assigning responsibility for information security to existing staff with other major responsibilities is often unsuccessful. At least one dedicated staff member is recommended at the program management level.

The need for additional full-time resources depends on the

agency's computer environment. The number of information

systems, their technical complexity, the degree of networking,

the importance of information processed, adequacy of existing

controls, and extent of agency dependence on information sys- tems affect the resources needed.

Implementation Stages Development of a comprehensive information protection

program that is practiced and observed widely throughout a Federal agency occurs in stages and requires ongoing monitoring and maintenance to remain viable.

First, organizational requirements for information protection

are identified. Different agencies have varying levels of need

for security, and the information protection program should be

structured to most effectively meet those needs.

Next, organizational policies are developed that provide a

security architecture for agency operations, taking into consideration the information protection program elements discussed in the previous section of this guide. The policies undergo normal review procedures, then are approved by agency

management for implementation.

Activities are then initiated to bring the agency into compHance with the pohcies. Depending on the degree of

centralization, this might require development of further plans

and budgets within functional entities of the agency to implement the necessary logical and physical controls.

12
Information Protection Program Implementation

Training Training is a major activity in the implementation process.

Security violations are the result of human action, and

problems can usually be identified in their earliest stages by

people. Developing and maintaining personnel awareness of

information security issues can yield large benefits in prevention and early detection of problems and losses.

Target audiences for this training are executives and policy

makers, program and functional managers, IRM security and

audit personnel, computer management and operations, and

end users. Training can be delivered through existing policy

and procedures manuals, written materials, presentations and

classes, and audio-visual training programs.

The training provided should create an awareness of risks and

the importance of safeguards, underscoring the specific responsibilities of each of the individuals being trained.

Monitoring and Enforcement An ongoing monitoring and enforcement program assures con- tinued effectiveness of information protection measures.

Compliance may be measured in a number of ways, including

audits, management reviews or self-assessments, surveys, and

other informal indicators. A combination of monitoring

mechanisms provides greater reliability of results.

Variances from poHcy requirements should be accepted only in cases where the responsible official has evaluated, documented, and accepted the risk of noncompHance. Enforcement of agency policies and practices is important to the overall success of an information protection program. Inconsistent or lax enforcement quickly results in deterioration of internal

controls over information resources. A positive benefit of an effective monitoring and enforcement

process is an increased understanding of the degree of information-related risk in agency operations. Without such a feedback process, management unknowingly accepts too much risk.

An effective information protection program allows the agency

to continue to rely upon and expand the use of information

technology while maintaining an acceptable level of risk.

13
Information Protection Program implementation

Maintenance As agency initiatives and operations change, and as the computer environment evolves, some elements of the information

protection program will require change as well. Information

protection cannot be viewed as a project with a distinct end;

rather, it is a process that should be maintained to be realistic

and useful to the agency. Procedures for review and update of

policies and other program elements should be developed and

followed.

14
For Additional Information

National Institute Of Standards and Technology

Computer Security Program Office

A-216 Technology

Gaithersburg, MD 20899

(301) 975-5200

For further information on the management of information resources, NIST pubhshes Federal In- formation Processing Standards PubUcations (FIBS PUBS). These publications deal with many

aspects of computer security, including password usage, data encryption, ADP risk management

and contingency planning, and computer system security certification and accreditation. A list of

current publications is available from:

Standards Processing Coordinator (ADP)

National Computer Systems Laboratory

National Institute of Standards and Technology

Technology Building, B-64

Gaithersburg, MD 20899

Phone: (301) 975-2817

15

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BIBLIOGRAPHIC DATA

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I. PUBLICATION OR

REPORT NO.

NIST/SP-500/169

2. Performing Organ. Report No. 3. Publication Date

October 1989

4. TITLE AND SUBTITLE

Executive Guide To The Protection of Information Resources

5. AUTHOR(S)

Cheryl Helsing, Marianne Swanson, and Mary Anne Todd

6. PERFORMING ORGANIZATION (If joint or other than NBS. see instructions)

NATIONAL INSmrUTE OF STANDARDS AND TECHNOLOGY

<formorly NATIONAL BUREAU OF STANDARDS)

U.S. DEPARTMENT OF COMMERCE

QAITHERSBURG, MD 20899

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S. Type of Report & Period Covered

Final

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Same as item #6

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Library of Congress Catalog Card Number: 89-600762

I I Document describes a computer program; SF-185, FIPS Software Summary, Is attached.

11. ABSTRACT (A 200-word or less factual summary of most significant information. If document includes a significant

bibliography or literature survey, mention it here)

The Executive Guide outlines the areas that the policy makers must address regarding

the protection of computer systems and the information processed within them. The

key to a successful policy on information resource protection is for top management

to understand all the issues involved. This document explains what should be

addressed in agency policy and where it best fits within an organization.

12. KEY WORDS (Six to twelve entries; alphabetical order; capitalize only proper names; and separate key words by semicolons)

confidentiality; controls; information resources; integrity; policy; responsibilities;

risks; security mechanisms

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