Cross-Organizational Delegation for Workload and Agent Identity: Problem Statement and Requirements
draft-reece-wimse-cross-org-delegation-01

WIMSE Working Group                                             M. Reece
Internet-Draft                                  TowerGuardian Consulting
Intended status: Informational                              30 July 2026
Expires: 31 January 2027

Cross-Organizational Delegation for Workload and Agent Identity: Problem
                       Statement and Requirements
               draft-reece-wimse-cross-org-delegation-01

Abstract

   Autonomous software agents increasingly act on behalf of human
   principals by invoking tools, services, and other agents, frequently
   across organizational boundaries.  Existing workload and token-based
   authorization mechanisms were designed for a single trust domain and
   a small number of delegation hops.  They do not adequately express,
   constrain, or verify authority that is delegated recursively among
   agents and that crosses the boundary between independently
   administered organizations.  This document describes the problem of
   cross-organizational agent delegation, identifies the gaps in current
   mechanisms, and enumerates requirements that any solution within the
   scope of the Workload Identity in Multi-System Environments (WIMSE)
   working group should satisfy.  It does not specify a solution.

Note to the RFC Editor and Working Group

   This note is to be removed before publishing as an RFC.

   Informative references to agent-to-agent and tool-invocation
   protocols, to workload identity credential formats, and to status-
   list-based revocation will be added in a subsequent revision; they
   are omitted here to keep the problem statement mechanism-neutral.

Status of This Memo

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   This Internet-Draft will expire on 31 January 2027.

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Table of Contents

   1.  Introduction  . . . . . . . . . . . . . . . . . . . . . . . .   2
   2.  Terminology . . . . . . . . . . . . . . . . . . . . . . . . .   3
   3.  Problem Statement . . . . . . . . . . . . . . . . . . . . . .   4
     3.1.  Recursive Delegation Among Agents . . . . . . . . . . . .   4
     3.2.  Crossing the Organizational Boundary  . . . . . . . . . .   4
     3.3.  Verification Without a Runtime Callback . . . . . . . . .   5
     3.4.  Binding the On-Behalf-Of Principal  . . . . . . . . . . .   5
     3.5.  Revocation and Freshness Across Domains . . . . . . . . .   5
     3.6.  Composable Cross-Domain Audit . . . . . . . . . . . . . .   6
     3.7.  Execution-Time Human Authorization  . . . . . . . . . . .   6
   4.  Gaps in Existing Mechanisms . . . . . . . . . . . . . . . . .   6
   5.  Requirements  . . . . . . . . . . . . . . . . . . . . . . . .   7
   6.  Non-Goals . . . . . . . . . . . . . . . . . . . . . . . . . .   9
   7.  Security Considerations . . . . . . . . . . . . . . . . . . .   9
   8.  IANA Considerations . . . . . . . . . . . . . . . . . . . . .  10
   9.  References  . . . . . . . . . . . . . . . . . . . . . . . . .  10
     9.1.  Normative References  . . . . . . . . . . . . . . . . . .  10
     9.2.  Informative References  . . . . . . . . . . . . . . . . .  10
   Appendix A.  Changes Since -00  . . . . . . . . . . . . . . . . .  11
   Author's Address  . . . . . . . . . . . . . . . . . . . . . . . .  11

1.  Introduction

   Software agents that incorporate large language models or other
   autonomous decision logic are increasingly deployed to perform tasks
   on behalf of human principals.  A common pattern is for an
   orchestrating agent to decompose a task and delegate sub-tasks to
   specialized sub-agents, each of which may invoke tools or further
   sub-agents.  These tool and agent invocations are frequently mediated
   by protocols such as the Model Context Protocol and agent-to-agent

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   messaging, and they increasingly cross the boundary between
   independently administered organizations: an agent operated by one
   organization invokes a tool or agent operated by another.

   The Workload Identity in Multi-System Environments (WIMSE) working
   group is chartered to address identity for workloads that operate
   across multiple systems and trust domains.  Autonomous agents are a
   workload class whose delegation behavior stresses existing identity
   and authorization mechanisms in ways that this document seeks to make
   explicit.

   The authorization question raised at each agent action is not a
   single question but a composition of several: which workload is
   acting; what authority it holds; from whom that authority was
   delegated and through how many intermediaries; on behalf of which
   human principal it ultimately acts; and whether a relying party in a
   different organization can answer all of the foregoing without
   contacting the originating organization at the moment of the call.

   Existing mechanisms answer some of these questions within a single
   trust domain.  This document argues that none answers all of them
   across organizational boundaries, and that the gap is significant
   enough to warrant work within the WIMSE working group.

   This document is a problem statement and requirements document.  It
   deliberately does not propose or endorse any specific mechanism,
   credential format, or token construction.

2.  Terminology

   The key words "MUST", "MUST NOT", "REQUIRED", "SHALL", "SHALL NOT",
   "SHOULD", "SHOULD NOT", "RECOMMENDED", "NOT RECOMMENDED", "MAY", and
   "OPTIONAL" in this document are to be interpreted as described in BCP
   14 [RFC2119] [RFC8174] when, and only when, they appear in all
   capitals, as shown here.

   This document uses the following terms.

   Agent:  A software workload that performs tasks autonomously,
      potentially invoking tools, services, or other agents.  An agent
      is a workload in the sense of the WIMSE architecture.

   Tool:  A function, API, or service that an agent may invoke to take
      an action or retrieve information.

   Principal:  The human (or other ultimately-accountable entity) on
      whose behalf an agent acts.

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   Delegation:  The act of conferring a subset of one entity's authority
      upon another entity.

   Delegation chain:  An ordered sequence of delegations originating at
      a principal or an originating agent and proceeding through zero or
      more intermediary agents to the agent that performs an action.

   Attenuation:  The narrowing of authority at a delegation step, such
      that the authority conferred is no greater than the authority
      held.

   Originating organization:  The organization whose trust anchor issued
      the identity or authority at the root of a delegation chain.

   Relying party:  The entity that receives an agent's request and must
      decide whether to honor it; in cross-organizational cases the
      relying party belongs to a different organization than the
      originating organization.

3.  Problem Statement

   This section describes seven facets of the cross-organizational agent
   delegation problem.  They are interrelated; a solution that addresses
   only a subset leaves exploitable or operationally untenable gaps.

3.1.  Recursive Delegation Among Agents

   An orchestrating agent commonly delegates a narrowed slice of its
   authority to a sub-agent, which may delegate a further narrowed slice
   to another sub-agent, and so on.  Each step SHOULD only be able to
   narrow authority, never to widen it.  Existing bearer-token
   mechanisms typically express a fixed set of scopes granted at issue
   time and provide no native, verifiable model in which authority is
   recursively attenuated across multiple hops while remaining
   verifiable end-to-end.  Where multi-hop delegation is expressed at
   all, the constraint that a later hop cannot exceed an earlier hop is
   frequently enforced only by the issuing party's policy rather than
   being verifiable by an arbitrary relying party from the conveyed
   authority alone.

3.2.  Crossing the Organizational Boundary

   When an agent in organization A invokes a tool or agent in
   organization B, organization B's relying party must evaluate
   authority that was issued under organization A's trust anchor.  In
   the general case there is no pre-existing bilateral agreement between
   A and B specific to this interaction.  Mechanisms that assume a
   shared identity provider, a shared policy store, or a pre-provisioned

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   federation relationship do not generalize to the open, many-to-many
   case in which agents from numerous organizations interact without
   having been federated in advance.

3.3.  Verification Without a Runtime Callback

   Agent tool invocations can occur at high frequency and with stringent
   latency budgets.  Requiring the relying party to call back to the
   originating organization's infrastructure at the moment of each
   invocation -- to introspect a token, resolve a session, or confirm
   authority -- introduces latency, a runtime availability dependency on
   a third party, and a privacy exposure (the originating organization
   learns each time and where its agent's authority is exercised).  A
   relying party SHOULD be able to reach a correct authorization
   decision from the conveyed authority, locally cached trust material,
   and locally cached revocation state, without a synchronous call to
   the originating organization on the critical path.

3.4.  Binding the On-Behalf-Of Principal

   An agent typically acts on behalf of a human principal.  Two distinct
   authorization questions arise at each action and are independent of
   one another: whether the agent is permitted to perform the class of
   action at all, and whether the human principal on whose behalf it
   acts is entitled to the specific resource the action targets.  An
   authorization model that captures only the first question permits a
   "confused deputy", in which an agent authorized for a class of action
   is induced to apply it to a resource belonging to some principal
   other than the one it acts for.  A model that resolves the second
   question by having the agent inherit the principal's full set of
   permissions produces an over-privileged deputy, in which compromise
   of the agent escalates to the full authority of the human.  Across a
   multi-hop, cross-organizational delegation chain, the identity of the
   on-behalf-of principal must be conveyed and constrained in a manner
   that a remote relying party can evaluate, and that intermediary
   agents cannot silently alter.

3.5.  Revocation and Freshness Across Domains

   Authority conferred on an agent must be revocable, and revocation
   must reach relying parties in other organizations.  Because the
   verification path SHOULD avoid a synchronous callback (Section 3.3),
   revocation state must be conveyable to relying parties out of band
   and checkable locally, while remaining authentic (a revoked authority
   cannot be made to appear valid) and bounded in staleness (a relying
   party can reason about, and fail safe on, the age of its revocation
   information).  Reconciling offline verification with timely cross-
   domain revocation is a central tension.

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3.6.  Composable Cross-Domain Audit

   After the fact -- for incident response, compliance, or dispute
   resolution -- it must be possible to reconstruct who authorized a
   given action, through which intermediaries, and on behalf of which
   principal, even though the relevant events were recorded by different
   organizations.  No single organization observes the entire delegation
   chain in a cross-organizational interaction.  The records held by
   each participant must be composable into a coherent end-to-end
   account, and each participant's record must be resistant to
   undetectable alteration.

3.7.  Execution-Time Human Authorization

   Some classes of action are consequential enough that an
   organization's policy requires a human decision at the moment of
   execution, regardless of what standing authority the acting agent
   otherwise holds: releasing a payment above a threshold, deleting or
   exporting a data set, modifying a safety boundary, or triggering a
   physical action in the world.  Within a single trust domain this is
   commonly implemented as step-up authentication or an approval
   workflow anchored at a shared authorization server.  Across a multi-
   hop, cross-organizational delegation chain, three properties become
   difficult to obtain at once: that the requirement itself survives
   delegation, so that no intermediary can shed it; that the human's
   decision is bound to the specific action being taken, rather than to
   a session or to a class of actions; and that the relying party which
   enforces the requirement, possibly offline and in another
   organization, can verify the decision's evidence at the moment of
   enforcement.

   Public discussion has converged on this pattern from several
   directions, including grant-time consent records and challenge-based
   transaction-authorization proposals in the OAuth community, "user-
   mediated escalation" in agent-authorization use-case work, and
   "physical-world action authorization" requirements for embodied
   agents.  These proposals differ in mechanism; they share the
   underlying need this facet states.

4.  Gaps in Existing Mechanisms

   The following observations motivate work in this area.  They are
   stated at the level of mechanism classes rather than specific
   documents, to avoid mischaracterizing any individual specification.

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   Session-oriented authorization frameworks excel at granting a client
   scoped access within a trust domain but generally assume a small,
   fixed delegation depth and a relying party that can reach the
   authorization server.  Their extension to recursive agent delegation
   across organizations is not native.

   Token exchange mechanisms can express that one party acts on behalf
   of or is impersonating another, but they do not provide a verifiable
   model of recursive attenuation across an arbitrary number of hops,
   nor a guarantee, checkable by an arbitrary relying party, that the
   on-behalf-of principal is invariant along the chain.

   Workload identity mechanisms establish strong identity for workloads
   and increasingly span multiple systems, which is precisely the WIMSE
   remit; the open question this document raises is how delegated,
   attenuated, principal-bound authority is conveyed and verified when
   the workloads in question are agents that delegate to one another
   across organizational boundaries.

   Mechanisms that rely on a shared policy decision point evaluate rich
   policy at runtime but reintroduce a runtime dependency and a single
   administrative domain, which is the dependency Section 3.3 seeks to
   avoid in the cross-organizational case.

   The cumulative gap is that no widely deployed mechanism today lets a
   relying party in one organization verify, locally and without a
   callback, a recursively attenuated, principal-bound delegation chain
   that originated in another organization, while supporting cross-
   domain revocation and composable audit.

5.  Requirements

   Any solution within scope SHOULD satisfy the following requirements.
   They are derived directly from the problem facets in Section 3 and
   are stated independently of any particular credential format or
   cryptographic construction.

   R1 (Recursive attenuation):  The mechanism MUST allow authority to be
      delegated through multiple hops such that each hop conveys a
      subset of the authority of the preceding hop, and MUST allow a
      relying party to verify, from the conveyed authority alone, that
      no hop exceeds its predecessor.

   R2 (Cross-organizational verification):  A relying party in one
      organization MUST be able to verify authority that originated
      under another organization's trust anchor without a pre-existing
      bilateral agreement specific to the interaction.

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   R3 (No runtime callback):  The mechanism MUST permit a relying party
      to reach an authorization decision without a synchronous call to
      the originating organization on the critical path, using conveyed
      authority and locally cached trust and revocation material.

   R4 (Proof of possession):  The mechanism MUST allow a relying party
      to confirm that the presenting party controls the key to which the
      conveyed authority is bound, so that a captured or relayed
      credential is not usable by another party.

   R5 (Principal binding and invariance):  The mechanism MUST be able to
      convey the on-behalf-of principal along the delegation chain and
      MUST allow a relying party to verify that intermediary agents have
      not altered the identity of that principal.

   R6 (Dual-axis authorization):  The mechanism MUST support
      authorization decisions that depend both on the agent's conveyed
      authority and on the entitlements of the bound principal, such
      that an action is permitted only when both admit it.

   R7 (Authentic, bounded-staleness revocation):  The mechanism MUST
      support revocation whose authenticity is verifiable offline and
      whose staleness is bounded, so that a relying party can fail safe
      when its revocation information is older than a configured bound.

   R8 (Tamper-evident, composable audit):  The mechanism SHOULD enable
      each participant to record its portion of a delegation in a manner
      resistant to undetectable alteration, and SHOULD enable those
      records to be composed into an end-to-end account of an action's
      provenance.

   R9 (Format and transport agnosticism):  The requirements above SHOULD
      be expressible over the identity and messaging mechanisms already
      in use for agents and workloads, rather than presupposing a single
      new transport.

   R10 (Execution-time human authorization):  It MUST be possible to
      designate classes of actions as requiring, at execution time,
      evidence of an authorization decision made by an accountable human
      approver distinct from the executing agent.  The designation MUST
      be carried within the delegated authority itself, and derivation
      MUST be able to tighten but never remove it.  The evidence MUST be
      bound to the specific action, including its arguments, its target
      resource, and the on-behalf-of principal; MUST be verifiable by
      the relying party at the moment of enforcement from conveyed or
      locally cached material, without a synchronous dependency on the
      originating organization or on an approval-orchestration service;
      and MUST be relied upon at most once.  A relying party that does

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      not recognize a designation MUST treat the designated action as
      unauthorized.  This requirement deliberately does not select among
      challenge-based, evidence-carrying, or other approaches to
      satisfying it.

6.  Non-Goals

   This document does not address the correctness of an agent's internal
   reasoning.  Mechanisms that constrain delegated authority bound what
   an agent is permitted to do; they do not prevent an agent from
   misusing authority it legitimately holds, for example as a result of
   prompt injection.  Defense against such misuse is complementary and
   out of scope here.

   This document does not address confidentiality of agent payloads
   beyond what is implied by ordinary transport security, nor does it
   address denial-of-service resistance except where a design choice in
   a future solution would create an asymmetric amplification.

   This document does not select among credential formats, signature
   schemes, or policy languages, and does not endorse any specific
   product or implementation.

7.  Security Considerations

   This document is a problem statement; its security considerations are
   the security properties that a future solution must provide, which
   are stated as requirements in Section 5 (notably R1, R4, R5, R7, and
   R10) and as problem facets in Section 3.

   Several tensions deserve explicit attention by any solution.  The
   avoidance of a runtime callback (R3) is in tension with timely
   revocation (R7); a solution must make the staleness of offline
   revocation state explicit and must fail safe.  The reliance on a
   relying party's local trust material for cross-organizational
   verification (R2) makes the integrity of that trust material, and of
   the means by which it is resolved and cached, a high-value target; a
   solution must ensure that the trust root used to verify a remote
   organization's authority cannot be silently substituted.  The binding
   of an on-behalf-of principal (R5) is only meaningful if the binding
   is integrity-protected end to end, including against modification by
   the intermediary agents that form the delegation chain.

   Requirement R10 introduces considerations of its own.  An execution-
   time approval is only as meaningful as the fidelity of what the
   approver was shown: a solution must ensure that the action presented
   for approval and the action bound into the evidence are the same
   action, and that no party, including the executing agent itself, can

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   alter one relative to the other.  The at-most-once reliance property
   becomes a distributed-consumption problem when a relying party is
   replicated, and its failure mode must be refusal rather than double
   reliance.  Fail-closed treatment of unrecognized designations is what
   preserves the requirement across verifiers of differing capability; a
   fail-open interpretation would convert the newest designation into
   the weakest link.  Finally, R3 and R10 compose deliberately: the
   human's decision may be obtained through any interactive means, but
   verification of its evidence at the point of enforcement inherits
   R3's offline discipline.

   Where authority is long-lived, or where audit records must remain
   verifiable over a multi-year retention period, the long-term
   resistance of the chosen cryptographic mechanisms, including under a
   future quantum-capable adversary, is a consideration for any
   solution; data and signatures recorded today may need to remain
   unforgeable for the lifetime of the audit obligation.

8.  IANA Considerations

   This document has no IANA actions.

9.  References

9.1.  Normative References

   [RFC2119]  Bradner, S., "Key words for use in RFCs to Indicate
              Requirement Levels", BCP 14, RFC 2119,
              DOI 10.17487/RFC2119, March 1997,
              <https://www.rfc-editor.org/info/rfc2119>.

   [RFC8174]  Leiba, B., "Ambiguity of Uppercase vs Lowercase in RFC
              2119 Key Words", BCP 14, RFC 8174, DOI 10.17487/RFC8174,
              May 2017, <https://www.rfc-editor.org/info/rfc8174>.

9.2.  Informative References

   [RFC8693]  Jones, M., Nadalin, A., Campbell, B., Ed., Bradley, J.,
              and C. Mortimore, "OAuth 2.0 Token Exchange", RFC 8693,
              DOI 10.17487/RFC8693, January 2020,
              <https://www.rfc-editor.org/info/rfc8693>.

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   [WIMSE-ARCH]
              Salowey, J. A., Rosomakho, Y., and H. Tschofenig,
              "Workload Identity in a Multi System Environment (WIMSE)
              Architecture", Work in Progress, Internet-Draft, draft-
              ietf-wimse-arch-08, 6 July 2026,
              <https://datatracker.ietf.org/doc/html/draft-ietf-wimse-
              arch-08>.

Appendix A.  Changes Since -00

   *  Added Section 3.7, describing the execution-time human-
      authorization facet of the problem.

   *  Added requirement R10 (execution-time human authorization) to
      Section 5, stated mechanism-independently.

   *  Added security considerations for R10 to Section 7, and included
      R10 in the list of security-relevant requirements.

   *  Completed the [WIMSE-ARCH] informative reference (authors, exact
      title, draft name, version, and URL).

   *  Updated the facet count in Section 3 and the Table of Contents;
      corrected an expiry-date inconsistency in the -00 boilerplate;
      editorial fixes.

Author's Address

   Morgan Reece
   TowerGuardian Consulting
   Austin, TX
   United States of America
   Email: morganLR@proton.me

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