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An idea for the implementation could be to use RBAC domains. For example, if a user has a specific RBAC domain assigned, the RBAC domain could limit the list of users that a requester can SU to. A stanza-based file could list the stanza of an RBAC domain name and the values could be user ids. When a script/executable that is a privileged command in RBAC uses needs to su into a user account, the Kernel could check if the requester has a domain assigned that allows the requester to switch to the target user.
Example:
/etc/security/privsu
domainsu1:
sapadmin
fwadmin
domainsu2:
webadmin
dbadmin
A kernel privilege could be created, i.e. PV_SU_LIMIT, that is assigned as an innate privilege to a privileged command.
If a calling user runs the privileged command and the command performs a su, the domain is checked and if the target user of the su operation is listed in one of the assigned domains, the su succeeds.