I'd (Mary) like to summarize thoughts from Susan's pros/cons, and more from me...
Choices:
1) Initially issue a certificate equivalent to PID/password that includes encryption – easy to issue (self-service), not worth much for strength of authentication or digital signatures. If we do this, we could still issue a LoA3 certificate later, but the problem would be dealing with 2 certificates. How bad a usability problem would this introduce?
2) Issue a certificate with better identity proofing (may not be able to achieve self-service), but we could have one certificate with good strength and also enable encryption. The advantage is simplicity of only having one certificate for users to manage. The downside of this is the up-front identity proofing (although we could to it in a distributed fashion). Another downside is losing non-repudiation for digital signatures if we include encryption in this certificate. The good side is that we do have PDCs on eTokens for people who feel strongly about the non-repudiation element.
The LoA 3 certificate will require more technical interface work, and more training, but if we ultimately think we are going to need it, then even if we start with the PID/password-equivalent cert, we'll have to do this work, and will end up managing 2 certs.
Therefore, I think garnering a perspective from the user support end would be extremely helpful!