NSTC Policy for Enabling the 

Development, Adoption and 

Use of Biometric Standards

NSTC Subcommittee on Biometrics and Identity Management

September 7, 2007

NSTC Policy for Enabling the 

Development, Adoption and 

Use of Biometric Standards
Page 2 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

Authority for this policy is derived from Executive Order 128812, which establishes 

the National Science and Technology Council (NSTC) and its authority to ensure that 

science and technology policy decisions and programs are consistent with Presidential 

goals, National Security Presidential Directives and Homeland Security Presidential 

Directives. This Cabinet-level Council is the principal means within the executive 

branch to coordinate science and technology policy across the diverse entities that 

make up the federal research and development enterprise. Chaired by the President, 

the NSTC is made up of the Vice President, the Director of the Office of Science & 

Technology Policy, Cabinet Secretaries and Agency Heads with significant science and 

technology responsibilities, and other White House officials. The Council prepares 

research and development strategies that are coordinated across Federal agencies to 

form investment packages aimed at accomplishing multiple national goals.

About the NSTC Subcommittee on Biometrics 

and Identity Management3

The Subcommittee serves as part of the internal deliberative process of the NSTC. 

Reporting to and directed by the NSTC Committee on Technology, the Subcommittee 

is chartered to: 

l Develop and implement multi-agency investment strategies that advance 

biometric sciences to meet public and private needs;

l Coordinate biometrics-related activities that are of interagency importance;

l Facilitate the inclusions of privacy-protecting principles in biometric 

system design;

l Ensure consistent message about biometrics and government initiatives when 

agencies interact with Congress, the press and the public;

l Strengthen international and public sector partnerships to foster the advancement 

of biometric technologies.

About the National Science and

Technology Council1

1 http://www.ostp.gov/nstc

2 http://www.ostp.gov/nstc/html/_executiveorder.html

3 http://www.biometrics.gov/nstc/Default.aspx
Page 3 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

1 Foreword

In the United States, responsibility for setting product and process standards rests 

almost exclusively (and appropriately) with the private sector. Government agencies 

rely heavily on voluntary standards, which they often incorporate into regulatory 

and procurement requirements. Related conformity assessment processes are often 

developed to ensure that products, processes, or systems comply with regulations or 

voluntary standards. These processes include tests of components, certification of test 

results, and accreditation methods that assess the competence of testing laboratories.

In recent years, standards developing organizations have developed numerous 

biometric consensus standards that will aid the U.S. Government (USG) and the 

private sector as they develop systems, methods and tools to achieve real-time, 

verifiable, interoperable, and privacy-protecting root identification. The success of 

Federal biometric applications is particularly dependent on the interoperability of 

biometric systems. Agencies use biometrics for applications ranging from terrorist 

identification to benefits management, and the data they screen against has often 

been collected and managed by numerous other agencies. Standards for USG-wide 

biometric data sharing are therefore required to provide integrated, accurate and 

timely information to agency screening systems. 

The NSTC Subcommittee on Biometrics and Identity Management (Subcommittee) 

has established an interoperability working group to assess options and develop plans 

to support appropriate biometric data sharing within the USG. In the case of Known 

and Suspected Terrorists (KST), an approach is being designed that will better support 

existing biometric data sharing policies and screening activities across USG agencies. 

The capability to share KST biometric information will be inherently dependent on 

the availability, and government-wide adoption, of numerous biometric standards 

and conformity assessment processes.

This NSTC Policy for Enabling the Development, Adoption and Use of Biometric 

Standards complements and builds upon existing efforts by tasking the 

Subcommittee’s standards and conformity assessment working group to 

develop interagency consensus on standards-related items required to enable the 

interoperability of various Federal biometric applications, and to guide federal 

agencies as they develop and implement related biometric programs. This Policy was 

developed through a collaborative, interagency, process within the Subcommittee and 

approved by the NSTC Committee on Technology.

4

 Biometrics, as defined in the Subcommittee’s Glossary (http://www.biometrics.gov/docs/glossary.pdf), is a general 

term used alternatively to describe a characteristic or a process.

•	 As a characteristic: A measurable biological (anatomical and physiological) and behavioral characteristic that c

be used for automated recognition.

•	 As a process: Automated methods of recognizing an individual based on measurable biological (anatomical a

physiological) and behavioral characteristics.

Terms used throughout this document agree with the Glossary definitions.
Page 4 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

2 Policy Goal

The goal of this Policy is to establish a framework to reach interagency consensus on 

biometric standards adoption for the Federal government. Federal agency adoption 

of these recommended standards, and associated conformity assessment programs, 

will enable necessary next generation Federal biometric systems, facilitate biometric 

system interoperability, and enhance the effectiveness of biometrics products and 

processes.

3 Background Information

In 2006, the National Science & Technology Council’s Subcommittee on Biometrics 

and Identity Management (Subcommittee) released The National Biometrics 

Challenge5, which describes the major challenges the biometrics community must 

overcome to meet the needs of the Nation and the broader worldwide biometrics 

community. The National Biometrics Challenge identifies biometric systems 

interoperability as one of four pre-eminent challenges for the biometrics community6, 

and identifies the following standards-based role for the Federal government: 

“Participate in biometrics open standards development, standards adoption, 

conformance test tool development, conformity assessment system development, 

and harmonization of biometrics, security and authentication standards.”

Rapid, reliable and accurate biometric-based recognition of individuals is necessary 

for successful homeland security, counterterrorism, border control, law enforcement, 

e-commerce and e-government, and identity theft prevention. To address this 

need, the Subcommittee is developing plans for future biometric data sharing, 

as appropriate, that will enable real-time, verifiable, interoperable, and privacyprotecting root identification that meets specific agency mission objectives and 

Federal biometric system interoperability requirements approved by the National 

Security Council’s Deputies Committee. In order to support such Federal biometric 

applications, robust standards and conformity assessment processes are required. 

Accordingly, in this document the Subcommittee has set forth a framework to provide 

the technical foundation for the Federal government to develop interagency consensus 

on biometric standards and to guide their adoption within agency biometric systems. 

 

Federal policies on the use and development of voluntary consensus standards and on 

conformity assessment activities are outlined in OMB Circular A-1197. This circular also 

provides guidance for agencies participating in voluntary consensus standards bodies.

5

 http://www.biometrics.gov/NSTC/pubs/biochallengedoc.pdf

6

 The four preeminent challenges identified within The National Biometrics Challenge are Biometric Sensors, Biometric 

Systems, Biometric Systems Interoperability, and Biometrics Communications and Privacy

7 http://www.whitehouse.gov/omb/circulars/a119/a119.html. This Circular is codified within the “National 

Technology Transfer and Advancement Act of 1995” (Pub. L. 104-113)
Page 5 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

4 Principles and Key Actions

To enable biometric system interoperability and support Federal agency biometrics 

needs, the USG should be guided by the following principles:

l Continued development of voluntary consensus standards for biometrics is 

vital to the security of our Nation and the stability of the US-based biometrics 

community.8 Agencies should support national and international voluntary 

biometric standards development activities. 

l Rigorous testing is required to ensure vendor and system compliance with 

biometric standards. Agencies should support the development of harmonized 

conformance, interoperability, performance, security, human factors, and 

operational scenario testing programs in support of procurement actions for 

biometric products, programs and services.

l Standards and conformity assessment processes must be identified and 

adopted across all agencies to ensure full interoperability. Agencies should 

participate in an interagency process led by the Subcommittee to review available 

standards and develop consensus recommendations regarding which standards 

should be adopted across the USG.

l The biometric standards and conformity assessment processes recommended by 

the Subcommittee should be promulgated. The Subcommittee shall develop a 

registry of adopted biometric standards at www.standards.gov/biometrics9. 

l The biometric standards and conformity assessment processes recommended by 

the Subcommittee should be integrated into agency plans whenever feasible. 

Agencies should strive to build and operate biometric systems that are based on 

the Subcommittee’s recommended standards.

l Timely adoption and use of appropriate standards is critical to achieving 

biometrics goals. Following selection of recommended standards, the 

Subcommittee should work to advance adoption of standards for use in Federal 

biometrics programs and services. 

8

 This is a unique co-reliant relationship: the biometrics community is reliant upon USG initiatives because of the 

government’s role as the industry’s primary customer; the USG is reliant on the biometrics community to provide 

tools that enable screening functions for numerous government functions.

9

 This information will also be made available on the Federal government’s web site for biometric activities at 

www.biometrics.gov/standards.
Page 6 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

5 Implementation Tasks 

The following table presents initial and ongoing tasks necessary for the 

implementation of this policy. The Subcommittee is directed to further develop these 

tasks into a comprehensive interagency action plan. 

Implementation Task

USG Participation in Biometric 

Standards Development 

Backwards Compatibility of 

Standards

Interagency Analysis 

and Determination of 

Recommended Standards for 

USG Adoption

Action

USG agencies should continue to provide administrative and 

technical leadership for national and international biometric 

standards development, and should coordinate USG positions 

and contributions to these standards developers through the 

Subcommittee.

Based upon each agency’s mission, USG agencies should 

participate in relevant biometrics and related standards 

developing organizations (SDO), such as:

•	 FBI Criminal Justice Information Services (CJIS) Advisory

Policy Board

•	 National Institute of Standards and Technology Information

Technology Laboratory (NIST/ITL)10

•	 International Organization for Standardization (ISO) /

	 International Electrotechnical Commission (IEC) J

	 Technical Committee 1- Subcommittee 37 (JTC 1 SC 37)

•	 InterNational Committee for Information Technology

Standards -Technical Committee M1 (INCITS M1)10

•	 International Civil Aviation Organization (ICAO) Technical

Advisory Group (TAG) New Technologies Working 

Group (NTWG)

While participating in SDO activities, the USG should promote 

the concept that voluntary consensus standards be backward 

compatible to the maximum extent possible to ensure 

interoperability of new systems with legacy data, or new data 

with legacy systems.

The NSTC Subcommittee on Biometrics and Identity 

Management should establish definitions for emerging, mature, 

and stable biometric standards. Based upon these model 

criteria, the Subcommittee should review available standards and 

collectively determine and promulgate which standards should 

be recommended for adoption throughout the USG.

10 Accredited by the American National Standards Institute (ANSI)
Page 7 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

Consistent Application of 

Biometric Standards in 

Agency Plans 

Exchange of Proprietary Data 

Lifecycle Handling of 

Biometric Samples 

Consistent Collection and Use 

of Metadata

The NSTC Subcommittee on Biometrics and Identity 

Management should assist agencies as they develop biometric 

system plans to ensure that recommended standards and 

associated testing are used to the maximum extent practicable.

Agencies should develop internal procedures to ensure citation 

of relevant standards from the registry of USG recommended 

biometric standards in biometric procurement actions.

Agencies should use the proprietary data fields in standardized 

data formats from the registry of USG recommended biometric 

standards for the exchange of proprietary data.

Agencies with closed systems that do not require system or 

interagency interoperability should only use proprietary data 

formats if standardized data formats can be documented to be 

inadequate.

The NSTC Subcommittee on Biometrics and Identity 

Management should develop a set of guidelines to ensure the 

quality and usability of biometric samples. This guidance should 

highlight the importance of obtaining raw biometric samples 

upon collection (using biometric standards on the registry of 

USG recommended biometric standards when possible) and 

deprecate the collection of biometric templates only.

The NSTC Subcommittee on Biometrics and Identity 

Management should support agencies as they develop agencyspecific guidelines for the collection, maintenance, and use of 

metadata for USG biometric applications.
Page 8 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

6 Roles and Responsibilities

This policy requires multiple interagency actions as well as departmental actions to 

ensure successful implementation. The NSTC Subcommittee on Biometrics and 

Identity Management is the responsible party for developing interagency consensus 

and facilitating agency adoption in support of this policy. By participating actively in 

the Subcommittee, agencies are ensured that their requirements will be considered in 

the interagency review and determination of which standards should be adopted. 

The NSTC Subcommittee on Biometrics and Identity Management is the responsible 

party for the:

l Coordination of USG activities in national and international voluntary biometric 

standards development; 

l Establishment of model criteria for the adoption and maintenance of 

biometric standards;

l Interagency analysis, determination and promulgation of recommended 

standards for USG adoption; 

l Facilitation of access to adopted standards by USG personnel; and

l Identification of research, development, test and evaluation needs that are 

required to enable this Policy, and prioritization of those needs in the 

Subcommittee’s ongoing RDT&E agenda development.

The roles and responsibilities of agencies with biometric programs are to:

l Support the Subcommittee’s designated responsibilities by ensuring appropriate 

agency personnel and resources are provided; 

l Ensure the use of appropriate biometric standards from the registry of USG 

recommended biometric standards internally and in awarded projects, unless the 

standards can be documented to be operationally inadequate or are fiscally 

untenable for the anticipated benefits; 

l Identify agency-specific requirements on the use of biometric standards (capture, 

use, dissemination, and disposition of biometric data) consistent with The 

National Biometrics Challenge; and

l Ensure compliance, where applicable, with the requirements of the Privacy Act 

of 1974 and the E-Government Act of 200211 when using standards-based biometric 

image or template data, as it is considered to be personally identifiable information.

11 as well as other applicable privacy-related laws and agency policies
Page 9 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

7 Membership of the NSTC Subcommittee on 

Biometrics and Identity Management

Subcommittee on Biometrics and Identity Management

Co-chair: Duane Blackburn (Executive Office of the President)

	 Co-chair: Jim Dray (Commerc

Co-chair: Brad Wing (Homeland Security)

Department Leads

 Martin Herman (Commerce)

 Thomas Dee (Defense)

 Thomas Coty (Homeland Security)

	 	 James Loudermilk (Justice)

	 	 John Atkins (State)

 Bill Baron (Transportation)

 Zaida Candelario (Treasury)

 Sankar Basu (National Science Foundation)

 Usha Karne (Social Security Administration)

 David Temoshok (General Services Administration)

 Michael Wash (Government Printing Office) 

 Duane Blackburn (Executive Office of the President)
Page 10 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

Standards and Conformity Assessment working group

Co-chair: Mike Hogan (Commerce, National Institute of Standards & Technology)

Co-chair: Brad Wing (Homeland Security, US-VISIT)

Department of Commerce

Gordon Gillerman (National Institute of Standards & Technology)

Patrick Grother (National Institute of Standards & Technology)

Fernando Podio (National Institute of Standards & Technology)

Department of Defense

Sam Aloi (Army Biometrics Fusion Center)

Thomas Dee (Defense Research and Engineering)

Avram Isaacson (Army Biometrics Task Force)

Dave Lohman (Army Biometrics Fusion Center)

Thomas McKenna (Office of Naval Research)

Department of Energy

Carl Pocratsky (Office of Security and Safety Performance Assurance)

Department of Homeland Security

Thomas Coty (Science & Technology Directorate)

Bert Coursey (Science & Technology Directorate)

Trent DePersia (Science & Technology Directorate)

Joe Kielman (Science & Technology Directorate)

Joyce Nyman (US Coast Guard)

James Pattan (Customs and Border Protection)

Chris Miles (Science & Technology Directorate)

Peter Sand (Privacy Office)

Kimberly Weissman (US-VISIT)

Steve Yonkers (US-VISIT)
Page 11 NSTC Policy for Enabling the Development, Adoption and Use of Biometric Standards

Department of Justice

Janice Bland (Federal Bureau of Investigation)

Stanley Erickson (National Institute of Justice)

Thomas Hopper (Federal Bureau of Investigation)

Stan Larmee (Terrorist Screening Center)

James Loudermilk (Federal Bureau of Investigation)

John Manzo (Federal Bureau of Investigation)

Todd Mullenax (Federal Bureau of Investigation)

Scott Swann (Federal Bureau of Investigation)

Department of State

John Atkins (Consular Affairs)

Sarah Francia (Consular Affairs)

Department of Transportation

Bill Baron (Research and Innovative Technology Administration)

Susan Sexton (Federal Aviation Administration)

Intelligence Community

Bob Calandra (National Counterterrorism Center)

Jeff Dunn (National Security Agency)

Neal Pollard (National Counterterrorism Center)

Gerald Thames (National Counterterrorism Center)

Executive Office of the President

Duane Blackburn (Office of Science and Technology Policy)

The NSTC Subcommittee on Biometrics and Identity Management, standards 

and conformity assessment working group, wishes to thank Mike Hogan (NIST) 

for serving as primary author of this document, and Nadiyeh Shahidi (US-VISIT 

FFRDC12 support), Arun Vemury (DoD BTF contractor), John Mayer-Splain (USVISIT contractor), Karen Pate (NCTC contractor) and Michelle Johnson (F

contractor) for editorial support.

12 Federally Funded Research and Development Center
www.biometrics.gov

www.biometrics.gov