When OpenJDK is in FIPS mode, the list of services and algorithms that security providers are allowed to register is limited. As an example, we don't allow the non-FIPS compliant SUN security provider to register the Signature service for any of its algorithms. The reason for this algorithms and services lockdown is that we don't want non-FIPS compliant crypto to be inadvertently used. This could happen if an application requires an algorithm for which the FIPS-compliant security provider (SunPKCS11) does not have an implementation and a non-FIPS compliant security provider does. Notice that the priority ordering of security providers cannot prevent this scenario.

On the other hand, services which don't imply cryptographic operations might need to be allowed in FIPS mode. As an example, we need the `AlgorithmParameters` service for the DSA algorithms from SUN to be available.

RH2052070 is an example of a patch that implemented this scheme.

Services registration might involve string attributes that can later be used to get a filtered selection of the security providers available, using the `java.security.Security::getProviders(Map<String,String> filter)` public API.

The same global dictionary of attributes is used for different service registrations; with attributes added, removed or cleared as needed. The way in which RH2052070 was implemented has a flaw that manifests in FIPS mode: some attributes are missing because they are only added to the dictionary in non-FIPS mode.

This was found in the context of reviewing a backport of RH2052070 to java-11-openjdk: https://github.com/rh-openjdk/jdk11u/pull/5#pullrequestreview-1130703203

We estimate that the impact of this issue is low but we intend to fix it.