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+Network Working Group                         Federal Networking Council
+Request For Comments: 2146                                      May 1997
+Category: Informational
+Obsoletes: 1816
+
+
+                 U.S. Government Internet Domain Names
+
+Status of this Memo
+
+   This memo provides information for the Internet community.  This memo
+   does not specify an Internet standard of any kind.  Distribution of
+   this memo is unlimited.
+
+Abstract
+
+   This memo provides an update and clarification to RFC 1816.  This
+   document describes the registration policies for the top-level domain
+   ".GOV".  The purpose of the domain is to provide naming conventions
+   that identify US Federal government agencies in order to facilitate
+   access to their electronic resources.  This memo provides guidance
+   for registrations by Federal Agencies that avoids name duplication
+   and facilitates responsiveness to the public.  It restricts
+   registrations to coincide with the approved structure of the US
+   government and the advice of its Chief Information Officers.  Two
+   documents are recognized as constituting documentation on the US
+   government structure: FIPS 95-1 provides a standard recognized
+   structure into which domain registrations for .GOV and FED.US can
+   fit; and, the US Government Manual [3], a special publication of the
+   Federal Register, provides official documentation of the government
+   structure. The latter document may be subject to more timely updates
+   than the former.  Either document is suitable for determining which
+   entities qualify for second-level domain registration within .GOV and
+   FED.US.
+
+   As a side effect, this RFC reduces the number of .GOV and FED.US
+   level registrations and reduces the workload on the registration
+   authority.  Previous versions of this document did not address the
+   FED.US domain.  This document anticipates the migration of the .GOV
+   domain into the FED.US domain, in keeping with common practice on the
+   Internet today.
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 1]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+U.S. GOVERNMENT INTERNET DOMAIN NAMES POLICY
+
+   The .GOV domain is delegated from the root authority to the US
+   Federal Networking Council.  The .GOV domain is for registration of
+   US governmental entities on the federal level only.  Registrations
+   for state and local governmental agencies shall be made under the .US
+   domain in accordance with the policies for that domain.  Further
+   references in this document to .GOV should be understood to apply to
+   FED.US as well.  The most succinct form of the policy is "one agency,
+   one name".  The agency may choose its own name, but an easily
+   recognized acronym is suggested.  The following paragraphs enumerate
+   the types of agencies eligible for registration and the types that
+   are not eligible:
+
+
+         1) The document "Codes for the Identification of Federal and
+      Federally Assisted Organizations", FIPS 95-1 (or its successor)
+      lists the official names of US Government agencies.  Either that
+      document or the US Government Manual can be used to determine that
+      an entity is eligible for registration as a second level domain of
+      .GOV.
+
+              A) Top-level entities (e.g., those in FIPS 95-1 with codes
+         ending in 00 such a"1200 Department of Agriculture"), those in
+         the US Government Manual listed as "Departments, Independent
+         Establishments (not Corporations), and all the Boards,
+         Commissions, and Committees"), and independent agencies and
+         organizations (e.g., "National Science Foundation" and other
+         non-indented listings unless prohibited below) as listed in
+         this document are eligible for registration directly under
+         .GOV.
+
+              B) Cross-agency collaborative organizations (e.g.,
+         "Federal Networking Council", "Information Infrastructure Task
+         Force") are eligible for registration under .GOV upon
+         presentation of the chartering document and are the only non-
+         FIPS-listed or non-US-Government-Manual-listed organizations
+         eligible for registration under .GOV.
+
+              C) Subsidiary, non-autonomous components of top-level or
+         other entities are not eligible for separate registration.
+         International organizations listed in this document are NOT
+         eligible for registration under .GOV.  Subsidiary components
+         should register as third-level domains under their parent
+         organization.  Other Federal entities may apply to the FED.US
+         domain.
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 2]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+              D) Organizations listed as "Federally Aided Organizations"
+         in FIPS 95-1 are not eligible for registration under .GOV and
+         should register under .ORG or other appropriate top-level
+         domain that reflects their status.
+
+              E) Organizations subsidiary to "Department of Defense"
+         must register under the ".MIL" domain via the Defense Data
+         Network Information Center - contact registrar@nic.ddn.mil.
+
+              F) Other entities may be registered by request of a
+         cognizant Chief Information Officer (CIO); CIO's are those
+         agency officials designated by the agency head in accordance
+         with the requirements of the Information Technology Management
+         Reform Act of 1996 and Executive Order 13011.
+
+              G) Federal Courts constitute a special class of domains.
+         All Federal courts seeking domain registrations should contact
+         the Administrative Office of the US Courts for their guidance
+         on policy and naming.
+
+            a) The string "SUPREME-COURT" is reserved for the Supreme
+            Court domain.
+
+            b) All other courts and their officers and officials should
+            register in .USCOURTS.GOV.  The only standard exceptions to
+            these rules are changes to governmental structure due to
+            statutory, regulatory or executive directives not yet
+            reflected in the above document.  The requesting agency
+            should provide documentation in one of the above forms to
+            request an exception.  Other requests for exception should
+            be referred to the Federal Networking Council.
+
+         2) A domain name should be derived from the official name for
+      the organization (e.g., "USDA.Gov" or "AGRICULTURE.GOV".)  The
+      registration shall be listed in the registration database under
+      the official name (per FIPS 95-1 or US Government Manual) for the
+      organization or under the name in the chartering document.
+
+         3) Only ONE registration and delegation shall be made for the
+      purpose of identifying an agency.  The .GOV registration authority
+      shall provide registrations on a first-come first-served basis.
+      It is an individual agency matter as to which portion of the
+      agency is responsible for managing the domain space under a
+      delegated agency domain.
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 3]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         4) Those agencies and entities that had multiple registrations
+      under .GOV may retain them until August 1998, but sub-delegations
+      will be permitted only under the one name chosen by the agency as
+      its permanent name.  As of August 1996, the auxiliary domains will
+      become un-delegated and will revert to the control of the .GOV
+      owner.  As of 2 August 1997, all registrations in the auxiliary
+      domains must be mirrored in the permanent domain and those names
+      should be used where possible. At the three year point, all
+      auxiliary domain registrations will be deleted (August 1998).
+
+         5) Those agencies and entities already registered in .GOV but
+      not listed in FIPS 95-1 (e.g., DOE labs, state entities) or the US
+      Government Manual may retain their registration within the
+      constraint of the single registration rule (see para 4).  No
+      further non-listed registrations will be made.  State and local
+      entities are strongly encouraged to re-register under .US, but
+      this is not mandatory.
+
+
+REFERENCES
+
+      [1] Federal Information Processing Standards Publication 95-1
+   (FIPS PUB 95-1), "Codes for the Identification of Federal and
+   Federally Assisted Organizations", U.S. Department of Commerce,
+   National Institute of Standards and Technology, January 4, 1993.
+
+      [2] Postel, J., "Domain Name System Structure and Delegation", RFC
+   1591, USC/Information Sciences Institute, March 1994.
+
+      [3] US Government Manual,  Office of the Federal Register,
+   National Archives and Records Administration, Washington DC 20804.
+
+
+CLARIFICATION
+
+
+      * Registrations prior to August 1995 are grand-fathered and do NOT
+   require re-registration with the exception of duplicate registrations
+   for the SAME organization at the same level.  E.g., 2 registrations
+   that represent the Department of Transportation would be considered
+   duplicates.  Registrations for each of the Department of
+   Transportation and the FAA would not.  (The FAA is an autonomous
+   component contained within the DOT).
+
+
+      * The policy requires resolution of all duplicate registrations by
+   August 1998.
+
+
+
+
+Federal Networking Council   Informational                      [Page 4]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+      * Local and state agencies registered under the ".GOV" domain may
+   remain there.  However, they are strongly encouraged to transfer to
+   the .US domain.
+
+
+      * Cross-agency collaborative efforts may register under "FED.US"
+   as an alternative to asking for an exception to the .GOV policy.
+
+
+FREQUENTLY ASKED QUESTIONS / ANSWERS
+
+
+   EXISTING .GOV REGISTRATIONS
+
+         Q.  What are examples of FIPS 95-1 Departments possessing
+      duplicate top-level domain names, and what guidance has been given
+      to them regarding these names?
+
+         A.  Examples of FIPS 95-1 Departments with duplicate DNS'
+      include "STATE.GOV" and "LABOR.GOV".  These departments had six
+      months (until December 1996) to determine which name is permanent
+      and which is auxiliary and three years to drop the auxiliary
+      registration.
+
+
+
+         Q.  Currently, our services are defined as www.cdc.gov,
+      ftp.cdc.gov,  and gopher.cdc.gov.  Does this proposal mean that
+      our names will now be: www.ntb.ops.cdc.phs.dhhs.gov, etc or at a
+      minimum: www.cdc.phs.dhhs.gov, ftp.cdc.phs.dhhs.gov, and
+      gopher.cdc.phs.dhhs.gov?
+
+         A.  In the case of CDC, NIST, NIH, FDA, and the numerous other
+      non-FIPS-95-1 agencies registered with ".GOV" domains, there will
+      be no changes.  The existing DNS' of these agencies are grand-
+      fathered under this policy.  In addition, the policy effects only
+      the domains allowed to be registered directly under .GOV; further
+      delegations are under the control of the sub-domain owner.  For
+      the above, assuming the HHS sub-domain owner concurs, there is no
+      problem with the HHS registering "cdc.dhhs.gov" as a sub-domain of
+      "dhhs.gov".
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 5]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         Q.  How will registrations by Federal Laboratories be
+      addressed?
+
+         A. The existing domain names will be grand-fathered, i.e.,
+      LBL.GOV.  Any new registrations will generally be within the
+      domain of the sponsoring agency (and subject to agency policies),
+      within the .US domain as a geographic entity, or within the FED.US
+      domain.
+
+
+
+         Q.  What are some examples of state government agencies
+      registered under ".GOV" domain?  Will they need to change their
+      DNS?
+
+         A.  Examples of cities and states that originally registered
+      under the .GOV include:  WA.GOV Department of Information
+      Services, State of Washington LA.GOV Bureau of Sanitation, City of
+      Los Angeles These entities are strongly encouraged to re-register
+      in the .US domain but this is NOT mandatory.  No further state and
+      local agencies will be registered under .GOV.
+
+
+
+         Q.  It is not in anyone's best interest to name things by
+      organizational boundaries as these things change. Internet domain
+      names and host names, once defined and used, become so widely
+      distributed that they become virtually impossible to change.
+
+         A.  The policy does not require organizations to change their
+      names once established, but individual agency policies may.  The
+      DNS system contains some capabilities to assist in name transition
+      - the CNAME record provides a capability for cross-domain aliases
+      which can be used to ease a transition between one name space and
+      another.  As noted in the clarifications, naming and sub-domain
+      conventions WITHIN an agency or department DNS delegation are
+      solely the province of that entity.
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 6]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         Q.  How can two entities have the same name registered?  How
+      does this apply to NIH.GOV, FDA.GOV, and CDC.GOV, all of which are
+      large components of DHHS/PHS?  NCIFCRF.GOV is a component of NIH.
+      Does it have to change?  I don't understand how a distinction is
+      made if some are grand-fathered and some are not.
+
+        A. US-STATE.GOV and STATE.GOV for example.  The problem is
+      actually one entity with two names.  NIH.GOV and FDA.GOV represent
+      separate entities (albeit within DHHS).  If there were an NIH.GOV
+      and an NIH-EAST.GOV for example, NIH would have to eliminate one
+      of them (probably moving NIH-EAST.GOV to EAST.NIH.GOV).
+
+
+
+         Q.  How much is the taxpayer being asked to spend to alter tens
+      of thousands of existing computer and telecommunications systems
+      to support this RFC?
+
+         A. In August 1995 less that half-a-dozen duplicate DNS names at
+      the FIPS 95-1 level needed to be changed.  Given the fact that
+      this will be accomplished over three years, the costs should be
+      minimal.
+
+   CROSS-AGENCY COLLABORATIONS
+
+
+         Q.  An organization maintains a domain name that represents a
+      cross-agency community, IC.GOV, which represents members of the
+      intelligence community.  As a cross-agency collaborative effort,
+      does the domain have to be re-registered?
+
+      A.  The policy states that "Cross-agency collaborative
+      organizations (e.g., "Federal Networking Council", "Information
+      Infrastructure Task Force") are eligible for registration under
+      .GOV upon presentation of the chartering document and are the only
+      non-listed (in either FIPS 95-1 or the US Government Manual)
+      organizations eligible for registration under .GOV."  "IC.GOV"
+      however, is grand-fathered since it is an existing domain.
+      Nevertheless, it would be appropriate to provide a copy of the
+      chartering document to the FNC for the record.  This would ease
+      future changes to the IC.GOV domain if necessary.
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 7]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+   FUTURE .GOV REGISTRATIONS
+
+
+        Q.Top level domains are roughly equivalent to cabinet-level
+      agencies identified in FIPS 95-1.  What will happen if non-FIPS
+      95-1 entities apply for the ".GOV" registration in the future?
+
+        A.  The registrar will use this RFC as guidance and will not
+      grant the ".GOV" to any new entity which is not listed in the FIPS
+      95-1 or the US Government Manual or which has not been granted an
+      exception status by the FNC Executive Committee.
+
+
+
+         Q.  Suppose NIH were moved to a new Dept. of Science?  Would
+      our domain name have to be changed?
+
+         A.  NIH.GOV is grand-fathered under the existing policy and
+      would not change.  The "Department of Science" under its own
+      policies may require you to re-register though.
+
+   FNC INTENT
+
+         Q.  It is unclear how this will policy will facilitate access
+      by the public to our information, especially since most of the
+      public doesn't know our organizational structure or that CDC is
+      part of DHHS/PHS.
+
+         A. The policy attempts to avoid confusion as an increasing
+      number of entities register under the ".GOV" domain and to
+      transfer authority and responsibility for domain name space to the
+      appropriate agencies and away from a centralized authority.  For
+      facilitating access, various tools and capabilities are coming
+      into use on the Internet all the time.  Most of these tools
+      provide a fairly strong search capability which should obviate
+      most concerns of finding resources based on domain names.
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 8]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         Q.  Section 1D of this document unfairly constrains the
+      organizations within the .GOV domain in stark contrast to Section
+      1F that grants .MIL domain organizations full freedom to operate
+      sub-domains in any manner chosen.
+
+         A.  The Federal Networking Council has jurisdiction over the
+      .GOV domain names; .MIL domain names fall within the jurisdiction
+      of the Department of Defense.  The .MIL domain has had a written
+      policy delimiting which DOD agencies get registered directly under
+      .MIL since about 1987 when the DNS first started to come into use.
+      Individual agencies under the .MIL domain (e.g., AF.MIL/US Air
+      Force) are responsible for setting policy within their domains and
+      for registrations within those domains.  This is exactly
+      equivalent to the .GOV domain - an individual agency (e.g.,
+      Treasury.GOV/Dept of Treasury) may and should set policy for sub-
+      registrations within their domain.
+
+
+
+         Q.  Section 1B identifies several law enforcement agencies as
+      being "autonomous" for the purposes of domain registration.  What
+      is the selection criteria for an "autonomous law enforcement"
+      agency?  For instance, the Internal Revenue Service (IRS) is
+      responsible for law enforcement as is the Bureau of Alcohol,
+      Tobacco, and Firearms (ATF).
+
+        A.  The selection criteria for "law enforcement agency" is based
+      on primary mission.  A case could be made for either or both of
+      these being law enforcement agencies, although the IRS' primary
+      mission is tax revenue collection and has few armed officers
+      relative to its size.  An "autonomous" agency is one with mission
+      and role distinct and (possibly) separate from its containing
+      department.  Unfortunately, FIPS 95-1 does not do a good job of
+      identifying "autonomous" entities.  In the event of problems with
+      registration, ask the registrar to get a ruling from the
+      registration authority.
+
+   ROUTING QUESTIONS
+
+        Q.  How will Domain Name Service resolution on the Internet
+      work?  Instead of a root DNS server returning the address of
+      CDC.GOV and immediately directing inquires to our DNS servers,
+      will the root server return a DNS pointer to DHHS, then DHHS will
+      resolve to PHS, then a fourth DNS query to get to CDC?  This will
+      add unnecessary traffic to the Net.  (example is the host
+      CDC.PHS.DHHS.GOV)
+
+
+
+
+
+Federal Networking Council   Informational                      [Page 9]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         A.  The answer is based on how you (personally and agency wide)
+      configure your servers.  First, most servers cache previous
+      answers - they may have to ask once, but generally remember the
+      answer if they need it again. Information directly under .GOV will
+      be fairly long-lived which substantially reduces the requirement
+      to query .GOV server.  Secondly, multiple levels of the DNS tree
+      MAY reside on the same server.  In the above example the
+      information for DHHS.GOV, PHS.DHHS.GOV and CDC.PHS.DHHS.GOV could
+      all reside on the same server.  Assuming the  location of the
+      DHHS.GOV server was not cached, it would require two queries.
+      Further queries would cache the location of this server and the
+      servers associated with the domains it serves.  Lastly, the
+      individual agencies may structure their domains as they please.
+      CDC could reside directly under DHHS.GOV as CDC.DHHS.GOV subject
+      to HHS's own policies.
+
+
+
+   USING DNS FOR ADVERTISING SERVICES
+
+         Q.  How can agencies utilize domain names for public service
+      announcements such as regulatory information, health services,
+      etc.?
+
+        A.  The use of Domain Names for "advertising" is not encouraged,
+      and there is no empirical data showing that Domain Names are
+      effective for such purposes.  Moreover, while it may appear a
+      reasonable assumption, we know of no evidence to show that using
+      even commonly know agency, program or service names as domain
+      names in fact, facilitates locating any particular program or
+      service.  Indeed, we find it as reasonable to conclude that, by
+      using freely available search engines, a user could locate
+      responsive information before they would successfully "guess" the
+      appropriate domain name. If the agency CIO deems it advisable to
+      pursue "advertising via domain names," the agency should use WHOIS
+      utility (e.g., whois EXAMPLE.COM or whois EXAMPLE.ORG) to
+      determine if similar or conflicting names with other domains such
+      as .COM or .ORG before proceeding.  Any advertising value may be
+      lost if the same or similar names exist within more than one
+      domain.
+
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                     [Page 10]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+   PREVENTING SIMILAR NAMES IN OTHER TOP-LEVEL DOMAINS
+
+         Q:  Our agency spent a lot of time coming up with an intuitive
+      domain name and now we find out that the same name exists in .COM
+      and .ORG and is confusing to our customers, they don't know if it
+      is really our site or not.  How can we prevent this use of our
+      domain name?
+
+         A.  The only practical way is to register your name in all
+      available domains and hold them.  We say hold (do not use) them
+      for the same reasons that you don't want your site spoofed --
+      customer uncertainly as to whether they are in fact at a
+      government site.  The implications of Federal agencies using other
+      than .GOV or FED.US is a policy matter under the statutory
+      authorities of the Office of Information and Regulatory Affairs of
+      the Office of Management and Budget.  Agency  CIOs should consult
+      with OMB prior to using domain names other than .GOV or .FED.US.
+
+
+   THIRD-LEVEL DOMAINS:  CONTACTING THE SECOND-LEVEL DOMAIN
+   ADMINISTRATOR.
+
+
+         Q. I don't mind having a third-level domain registration, but
+      my parent agency does not have a second level domain or does not
+      provide third-level registration services.  What can I do?
+
+        A.  In the first case, the registration authority can usually
+      provide contact information for an appropriate second level
+      domain.  If not, an exception may be granted by the registration
+      authority.  In the second case, make sure that you contact the
+      official administrative contact for the second level domain by
+      using the information returned by the "whois" command, e.g. "whois
+      STATE.GOV".  The domain administrators have the responsibility of
+      providing third-level registration services. If an exception is
+      granted because there is no appropriate second level domain, it
+      will only be valid for two years after the subsequent
+      establishment of an appropriate domain. After that time, the
+      exception domain must register in the appropriate second-level
+      domain.
+
+
+
+
+
+
+
+
+
+
+
+Federal Networking Council   Informational                     [Page 11]
+
+RFC 2146         U.S. Government Internet Domain Names          May 1997
+
+
+         Q.  What are the implications of using a name that conflicts
+      with a .COM or other top-level domain?
+
+        A.  When requesting exceptions to this policy, applicants should
+      consider the limitations of the domain naming scheme.  Many common
+      words and terms are already used in .COM, the largest TLD at this
+      time, and it may be ineffective to use the same name in .GOV.
+
+
+
+   US GOVERNMENT MANUAL
+
+         Q. How can I get the US Government Manual?
+
+         A.  Contact Superintendent of Documents
+                P.O. Box 371954
+                Pittsburgh, PA 15250-7954
+
+      or see http://www.access/gpo.gov/su_docs and follow the links to
+      US government information.
+
+
+
+SECURITY CONSIDERATIONS
+
+      The integrity of the information in the DNS databases and made
+   available through network protocols is not reliable in the Internet
+   environment without additional cryptographic controls or secure
+   lines.  Agencies with secure internal network lines may be able to
+   count on the internal naming information as accurate, but users on
+   the Internet cannot.  The DNS system may be enhanced by the use of
+   digital signatures on the provided information; as this software
+   becomes available, .GOV SLD administrators are encouraged to use it
+   provide a secure binding for the information associated with DNS
+   names.
+
+
+Author's Address
+
+      Federal Networking Council
+      4001 N. Fairfax Drive
+      Arlington, VA 22203
+      Phone: (703) 522-6410
+      EMail: execdir@fnc.gov
+      URL:  http://www.fnc.gov
+
+
+
+
+
+
+Federal Networking Council   Informational                     [Page 12]
+