In a witty TV ad, an ill-groomed, middle-aged man sits in a recliner, drinking beer. From his mouth, in perfect lip-sync, comes the voice of a mischievous young lady.
 
"I just had to have it," she says. "$1,500 for a leather bustier. I didn't care. It lifts and separates. Plus, it's not like I'm actually paying for it. Ha ha ha."

 The ad promotes Citibank's ability to protect customers from identity theft. Now, in an ironic twist, a General Accounting Office (GAO) report released this month reveals that bureaucrats in the Veterans Health Administration have been using cards issued by Citibank to charge movie and baseball tickets, children's clothing, country club outings, expensive meals and even cases of beer to the taxpayers.

 Over the past four years, GAO has released several similar reports studying how federal workers use -- and sometimes abuse -- charge cards in the taxpayer's name.

 But neither Citibank, nor any of the other financial institutions that issue these cards, are at fault. They are wholly innocent contractors doing exactly what the government has contracted with them to do.

 The initial fault lies with Bill Clinton.

 In 1989, says GAO testimony presented April 28 to the Senate Governmental Affairs Committee, the government started a "purchase card" program "to streamline federal agency acquisition processes." Under the program, the government "awarded contracts to banks to provide standard commercial charge cards for use by federal employees."

 But only a readily monitored few received these cards. "Use of the purchase card," says GAO, "was initially restricted to procurement personnel."

 Then a month before the 1994 midterm election, President Clinton signed the Federal Acquisition Streamlining Act. It authorized low-level federal managers to use government charge cards, and, as Clinton put it, "decide on purchases of less than $2,500."

 Yet, for Clinton, even that did not go far enough. As he signed the charge-card law, he announced: "Today, I am signing an executive order that will go a little beyond the law. It will actually give people who use these products the authority to make small purchases so the managers don't have to do it either."