The default extension for the policy file is .POL. The policy file filters the settings it enforces by user and by group (a "group" is a defined set of users). To do that the policy file merges into the registry, preventing users from circumventing it by simply changing back the settings. The policy file is usually distributed through a LAN, but can be placed on the local computer.
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The "HKLM\SAM" key usually appears as empty for most users (unless they are granted access by administrators of the local system or administrators of domains managing the local system). It is used to reference all "Security Accounts Manager" (SAM) databases for all domains into which the local system has been administratively authorized or configured (including the local domain of the running system, whose SAM database is stored a subkey also named "SAM": other subkeys will be created as needed, one for each supplementary domain). Each SAM database contains all builtin accounts (mostly group aliases) and configured accounts (users, groups and their aliases, including guest accounts and administrator accounts) created and configured on the respective domain, for each account in that domain, it notably contains the user name which can be used to log on that domain, the internal unique user identifier in the domain, a cryptographic hash of each user's password for each enabled authentication protocol, the location of storage of their user registry hive, various status flags (for example if the account can be enumerated and be visible in the logon prompt screen), and the list of domains (including the local domain) into which the account was configured.
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The policy file is created by a free tool by Microsoft that goes by the filename poledit.exe for Windows 95/Windows 98 and with a computer management module for Windows NT. The editor requires administrative permissions to be run on systems that uses permissions. The editor can also directly change the current registry settings of the local computer and if the remote registry service is installed and started on another computer it can also change the registry on that computer. The policy editor loads the settings it can change from .ADM files, of which one is included, that contains the settings the Windows shell provides. The .ADM file is plain text and supports easy localisation by allowing all the strings to be stored in one place.
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The terminology is somewhat misleading, as each registry key is similar to an associative array, where standard terminology would refer to the name part of each registry value as a "key". The terms are a holdout from the 16-bit registry in Windows 3, in which registry keys could not contain arbitrary name/data pairs, but rather contained only one unnamed value (which had to be a string). In this sense, the Windows 3 registry was like a single associative array, in which the keys (in the sense of both 'registry key' and 'associative array key') formed a hierarchy, and the registry values were all strings. When the 32-bit registry was created, so was the additional capability of creating multiple named values per key, and the meanings of the names were somewhat distorted. For compatibility with the previous behavior, each registry key may have a "default" value, whose name is the empty string.
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In Windows, use of the registry for storing program data is a matter of developer's discretion. Microsoft provides programming interfaces for storing data in XML files (via MSXML) or database files (via SQL Server Compact) which developers can use instead. Developers are also free to use non-Microsoft alternatives or develop their own proprietary data stores.