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Strategic Action Planfor theNational Identity Scheme

Safeguarding your identity

Home Office December 2006

COI-Strategic Action Plan 11/12/06 17:51 Page ofca

COI-Strategic Action Plan 11/12/06 17:51 Page ifcb

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Contents

Foreword 2

Executive summary 4

Chapter 1 The National Identity Scheme 6

Chapter 2 Operating the National Identity Scheme 8Application and enrolment, customer services and document production 8The National Identity Register 10Identity checking services 11

Chapter 3 Securing the National Identity Scheme 13Creating each person’s NIR record from new, based on rigorous checking 13Effective checking when a person reports a change to their details or wants to look at their record 13Holding each person’s NIR record in separate, discrete parts 13Enforcing a clear separation 13Making sure only authorised people and organisations can use NIR information 14Accrediting the NIR 14Overseeing the wider Scheme 14Making sure the NIR’s operation is secure 15

Chapter 4 Delivering the National Identity Scheme 16Enhancing customer experience 16Increased passport integrity 16Introduction of identity checking services 17Improving passport security and strengthening passport checks 17Biometrics required for visa applications 18Evolution of the Scheme’s identity checking services 18Biometrics introduced for non-EEA foreign nationals already in the UK 18Identity cards 182009 and beyond 19

Chapter 5 Overseeing the National Identity Scheme 20Laws and regulations for the Scheme 20National Identity Scheme Commissioner 20Managing shared services 20The wider Scheme 21

Chapter 6 Next steps 22Procurement 22Joint ventures 23Trialling and piloting 23Recruitment 24Refining our estimate of Scheme costs 24Leadership in identity management 24

Annex 1 Summary grid of actions up to 2009 25

Annex 2 Abbreviations 26

COI-Strategic Action Plan 11/12/06 17:51 Page 1

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Foreword by the Minister of State for Nationality, Citizenshipand Immigration; the Under-Secretary of State for Nationality,Citizenship and Immigration; and the CEO of the Identity andPassport Service

This Action Plan sets out how we plan to deliver the National Identity Scheme.

The Scheme will provide a comprehensive and secure way of managing the personal identity data of all thosewho legally reside or work in the UK.

Our ambition for the Scheme can be simply summarised: making good choices easier, bad choices harder.

An effective National Identity Scheme will do that, by delivering benefits in a number of key areas.Specifically it will:

� help secure our borders and tackle illegal immigration: effective identity management will mean thatonly those entitled can live and work in the UK;

� prevent identity fraud: the use of false identity currently costs the UK more than £1.7 billion a year.The Scheme will make it much more difficult for such fraud to occur;

� become a key defence in the fight against crime and terrorism: the use of false identities plays anincreasing part in illegal activity, with sometimes devastating and costly results;

� enhance checks as part of safeguarding for the vulnerable: the Scheme will introduce a high level ofefficiency in authentication of identity, and this will significantly support checks on people working withchildren and the most vulnerable; and

� improve customer service: the Scheme will make it possible to join up and personalise services acrossgovernment departments, and the wider public sector, by ensuring that we have a consistent means ofidentifying those receiving services.

In delivering these benefits, we will:

� ensure that the Scheme delivers best return on investment. Not only are the benefits we have listedabove economically tangible, but it is also important to realise that much of the cost of what we are doingwould be incurred regardless of the Scheme. Specifically, biometric passports will soon be required in almostall of the largest passport-issuing countries. Around 70 per cent of the cost of the combined passport and IDcard will be required to keep our passports up to international standards;

� take an incremental and pragmatic approach. We will keep risks and costs down, by using existingGovernment investment and delivering incrementally, based on extensive piloting and trialling;

Liam Byrne MP Joan Ryan MP James Hall


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Foreword

� provide key safeguards that protect the privacy of the individual and ensure the integrity of theScheme. These exist at every level – from the legislative framework that underpins the Scheme and theindependent Scheme Commissioner who will oversee it, to the security of the systems that hold yourinformation and, crucially, your right to see your information and, if necessary, correct it; and

� deliver a positive customer experience during the implementation and operation of the Scheme.The Identity and Passport Service, the government agency responsible for the Scheme, has a customerservice reputation that is literally second to none. We will ensure that those standards are maintained,as we introduce the key changes described in this document.

The Scheme is a long-term programme, creating a comprehensive identity management infrastructure for theUK. We have already begun work on laying its foundations.

As with any such long-term plan, the Scheme will evolve over time. The plan we are publishing today sets outour current intentions and focuses on what we plan to deliver between now and 2010. As with any undertakingof this scale, there is still much detailed planning work to be done, and we shall learn many lessons as we startto deliver. We shall adjust the details of this Action Plan as required by experience, and we shall keep thepublic informed by publishing updated plans periodically.

In delivering the Scheme, the Identity and Passport Service is working very closely with the Immigrationand Nationality Directorate of the Home Office, with the Foreign and Commonwealth Office and withUKvisas to support their identity management requirements. Indeed, much of what we shall be deliveringin 2007 and 2008 will be in support of the Government’s commitments to transform the immigrationsystem. The Borders, Immigration and Identity Action Plan, which is being published simultaneously with thisdocument, sets out how the Government will use the National Identity Scheme to strengthen our borders andto enforce compliance within the UK. We shall deliver the first ID cards for British citizens in 2009.

We recognise that our ambitions for the National Identity Scheme are considerable. They reflect the scale ofthe benefits that are achievable.

To return to our opening point. Good policy, well implemented, makes bad choices much more difficult. TheScheme will do that. But the great promise of the Scheme is that it makes good things easier. A really effectiveidentity management scheme is central to aligning public services around the citizen and realising the goal oftruly joined-up and personalised government.

Liam Byrne MP, Joan Ryan MP, James Hall,Minister of State for Nationality, Under-Secretary of State for CEO, Identity andCitizenship and Immigration Nationality, Citizenship and Passport Service

Immigration


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Executive summary

This document explains what the National IdentityScheme is, what it will deliver and when.

The Scheme will provide a comprehensive and secureway of recording personal identity information,storing it and making it possible for you to use it ifyou want to prove your identity. It will be availablefor all those over 16 years old who legally reside orwork in the UK. Specifically, it includes biometricvisas and biometric documents for foreign nationals,enhanced passports, and ID cards for British citizens.

The Scheme will be implemented carefully andsecurely and we will take an incremental approach togetting it right. We have focused much effort onreducing risk and have developed contingency plansto cover potential delays. The overall timetable fordelivering the components set out in this Action Planwill be determined by our total resources: centralfunding, efficiency savings and income fromcharging. It will also need to take account oftechnical and commercial feasibility.

So, while continuing to provide excellent customerservice, we will strike a balance to ensure that bestvalue for money is obtained, without compromisingthe Scheme’s integrity.

We are also committed to meeting European andworldwide initiatives to make passports ever more

secure, including the use of fingerprint biometrics.The timing of these changes will depend onbalancing a number of factors, including costs, risk,the outcome of pilots and development across the EUand internationally.

As part of this, we will make use of pilots, which willinform and refine our thinking as to the best way ofrolling out services as the Scheme develops.

The remaining chapters of this document set out howwe do all this in more detail, as follows:

� First, in Chapter 1, we describe the scope of theNational Identity Scheme, its principal functionsand how it will deliver services to customers.

� Chapter 2 expands on this description of theScheme and sets out in more detail how we planto create the National Identity Register (NIR),partly by using technology that already exists ingovernment. It sets out what we will do for peopleapplying to and enrolling in the Scheme, whatidentity checking services we will make available,and how these building blocks of the Scheme willevolve from what we have today and how they willfit together.

� Chapter 3 explains how we plan to make theScheme secure and how we will ensure thatinformation held by the Scheme is only seen ormodified by those authorised to do so.

� Whereas Chapter 2 answers the ‘what?’ question,Chapter 4 answers the ‘when?’ question. Startingfrom our existing work on passports and theidentity checking services available today, it sets

Some important milestones in the delivery of theScheme are:

� from 2008 the Immigration and NationalityDirectorate (IND) will issue biometricidentification to foreign nationals;

� from 2009 the Identity and Passport Service(IPS) will issue ID cards for British citizens;and

� from 2010 IPS will issue significant volumesof ID cards alongside British passports.


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Executive summary

out the evolutionary changes which will buildup through the introduction of biometric visasand other documents for foreign nationals,enhancements to the passport, ID cards forBritish citizens, identity checking servicesbased on these, and so on.

� Chapter 5 sets out how the Scheme will bemanaged, explaining in particular that we willintroduce a framework of regulations under theIdentity Cards Act 2006 for the operation ofthe Scheme and that we will appoint a SchemeCommissioner to oversee the Scheme.

� Chapter 6 looks to the future, setting out how wewill proceed towards procurement and what ourkey short-term activities are.

At the back, there is a list of abbreviations anda summary grid of actions which brings togetherin one place the key dates and activities fromthe document.


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1. The National Identity Scheme, underpinnedby the Identity Cards Act 2006, and otherimportant legislation such as the DataProtection Act 1998, will provide acomprehensive identity management service forall those who legally reside or work in the UK.

Over time, this will include all British citizensover 16 and foreign nationals (includingEuropean Economic Area nationals) in the UK.

The key parts of the Scheme are summarised inFigure 1 below.

Chapter 1:The National Identity Scheme

National Identity Scheme

National Identity Register:storing your identity data

Security, assurance and integrity: securing the Scheme

Home Secretary Scheme Commissioner

Application:applying for your ID card

Production and delivery:issuing your ID card

Other governmentsystems

Identity checking services:checking your identity

Background checking:confirming what you tell us

Accredited organisations

Individual

Parliament

Figure 1: The key parts of the National Identity Scheme


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Chapter 1:The National Identity Scheme

2. The Scheme has five major parts.

� Applying for your card: this is how youapply for a passport or a card. Through theapplication process you will go on to enrol inthe Scheme and will be issued with a card.– To apply, you will need to provide

biographical information covering basicpersonal details (e.g. name, address, dateof birth). When you enrol, biometricinformation (e.g. facial image, fingerprints)will be recorded. This will allow youridentity to be checked by confirmingwhat you tell us. This is to prevent peopleattempting to defraud the system.

– For British nationals, biographicaland biometric information will be givenat a local office. For foreign nationals,this will be done through existingimmigration processes, enhanced as necessary.

– Each person will need to re-enrol onceevery 10 years, in much the same way aspassports are currently renewed every10 years.

– There will be a combined application andenrolment process for passports and IDcards for British citizens.

– A range of options will be available if youwant to register a change of details, such asa contact centre or using the Internet.

� Storing your identity data: the NationalIdentity Register (NIR) is where yourpersonal identity details will be securelyrecorded and maintained. It will have linkswith other Government systems to shareidentity data, and will support identitychecking services.

� Issuing your card: the creation and deliveryof your card and passport and documents forforeign nationals.

� Checking your identity: you will be able touse the Scheme to prove your identity.

– When you want to prove your identity toan accredited organisation, for example toopen a bank account, they will, with yourconsent, be able to use the Scheme’sidentity checking services.

– Different levels of checking will apply,depending on the service you want toaccess. For example, a financial institutionmay ask for proof of identity beforecompleting certain transactions and willwish to check the validity of the ID cardwhen you present it.

– Some of the identity checking services willonly be made available to accreditedorganisations, authorised by the Identityand Passport Service.

� Securing the Scheme: there are integralfunctions that will oversee and manage theScheme, to provide safeguards and make surethe Scheme is properly run and is supportedby the proper legislation and regulations. – The Home Secretary is ultimately

responsible to Parliament for the runningof the Scheme.

– The independent Scheme Commissionerwill continually review the operation ofthe Scheme and report to Parliament.

– The security, assurance and integrityfunctions will act to drive out fraud,protect your identity information andprotect the integrity of the Scheme.

– Regular reports will be provided toParliament on the progress of the Schemeand its cost.

– The Information Commissioner has keypowers to protect personal information,including information held in the NIR.

3. Our plans set out in this documentfor delivering the Scheme show how thiswill be done, building on what we havedelivered already.


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4. The Identity and Passport Service (IPS) has beenreviewing over the last few months its plansfor delivery of the National Identity Scheme.This is to ensure an integrated approach withthe Home Office’s work on securing borders,to minimise delivery risk, to ensure value formoney and to accelerate the introduction ofthe Scheme’s benefits.

5. The Scheme will require people, processes,premises and technology. We will maximise thepotential of such resources already availableacross government. This use of what is already inplace is in line with Government policy, both interms of sharing resources across governmentand in terms of delivering more ‘joined-up’,personalised and effective services to customers.

6. This chapter explains, in more detail, howwe intend to deliver the Scheme, includingusing resources that the Government hasalready created. Figure 2 expands on Figure 1(see page 6) to illustrate the key elements thatneed to be delivered.

Application and enrolment, customerservices and document productionApplication and enrolment7. For British citizens, when you apply for an ID

card it will be a very similar experience to howyou will apply for a passport. Your applicationdetails will be processed and you will be askedto come to a local office, where your biometricswill be enrolled.

8. We are already putting in place an expandedIPS office network. We are opening 69 newlocal offices to meet and interview first-timeapplicants for passports, and to prepare forrecording biometrics. These offices will open in2007 and will be used for the National IdentityScheme. Where the network of enrolmentcentres needs to be further expanded, we willfirst seek to use high street offices that arealready used by central and local government.

We will also look at options for the privatesector providing outlets. At these offices, thesystems which staff use to help people applyingfor their passports will be used to handle ID cardapplications for British citizens.

9. We will be using new tools to do backgroundchecking against identity information from otherparts of government and the private sector.Particularly important is improving our abilityto check people’s identity details against otherdata within government, most obviously dataheld by the Department for Work and Pensions(DWP), which covers the vast majority of theUK population. In 2007, checks to validateidentity will start being done against theelectronic records of deaths (held by DWP) andnaturalisation (held by the Immigration andNationality Directorate (IND)), followedprogressively by data on marriages and births,and matching against identity information onother relevant government department databasesfrom 2008 onwards.

Customer services10. We will deliver customer services in a range of

ways (e.g. online, by telephone) and these willinclude handling changes to your personaldetails, correcting data when necessary (forexample if you change your address, or if youlose your card), and allowing you to review yourNational Identity Register (NIR) information.

Production and delivery11. We will produce ID cards for British citizens

and other identity documents, such as a Britishpassport. After secure production, the applicant’spersonal details will be written onto the chip ineach document and electronically ‘signed’ toensure it cannot be modified. For passports,production will continue to use the existingcontract, which will be replaced when it expires.The secure delivery contract for passports iscurrently being retendered.

Chapter 2:Operating the National Identity Scheme


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National Identity Scheme

National Identity Register

Security, assurance and integrity: • biometrics support – expert biometric-matching service • counter-fraud, intelligence and enforcement

Home Secretary Scheme Commissioner

Biographical data: • personal details (name, address, etc.)

Biometrics: • fingerprint images• facial images

Information security: • Public Key Infrastructure

Application

Enrolment and application:

Customer services:

Production and delivery:

Other government systems • Changed details• Asylum/ refugee systemsIdentity checking services:

Background checking:

Accredited organisations

Individual

Parliament

• application processing, interviews and decisions

• change of details, lost/stolen, customer enquiries, etc.

• identity verification• identification• authentication of ID card, passport, etc.• information provision

• public sector• private sector

• ID cards, passports, etc.

Figure 2: Key elements to be delivered


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12. In the shorter term, for card production we willseek to use secure production facilities that theUK government already has in place. Goingforward, we will secure new capability toproduce cards in the medium to long term.

The National Identity Register (NIR)13. There are already several government databases

that hold biographical information used toidentify people. The real step change in theNational Identity Scheme is that biometrics,such as fingerprints, will be recorded and linkedto a single, confirmed biographical record(covering name, address, etc.). Biometrics willtie an individual securely to a single uniqueidentity. They are being used to prevent peopleusing multiple or fraudulent identities.

14. The capacity to record and link biometric andbiographical details, along with administrativedata (for example, details of the card issued to aperson), in the NIR, is laid out in the IdentityCards Act 2006. The Act details specifically theinformation that can be recorded in the NIR.

15. These sets of information – biometric,biographical and administrative – do not allneed to be held in a single system. In fact, forsecurity reasons, and to make best use of thestrengths of existing systems, it makes sense tostore them separately. Specifically:

� for NIR biometric information, we willinitially use existing biometric systems used forasylum seekers and biometric visas to meet ourshort-term needs, moving to new biometricservices when the NIR is fully operational;

� for NIR biographical information, we plan touse DWP’s Customer Information System(CIS) technology, subject to the successfulcompletion of technical feasibility work.DWP’s CIS technology is already used to holdrecords for everyone who has a NationalInsurance Number – i.e. nearly everyone inthe UK. However, even though the CISalready contains personal details for mostadults in the UK, these entries will notsimply be copied to the NIR. The details ofany individual entered in the NIR will berecorded when they apply and verified tothe highest possible standard before beingrecorded in the NIR; and

PKI

NIR

Biometric systems

Other PKI data

NIR store of PKI data

NIR store of biographical data

NIR store of biometric data

Other biometric

data

Biographicalsystem

Otherbiographical

data

Figure 3: Separation of NIR information


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� for NIR information related to the secureissue and use of ID cards, passports, etc.(technically called ‘Public Key Infrastructure’(PKI) information), we will build on theexisting IPS systems. These are used today toissue the six million ePassports each year.

This separation is summarised in Figure 3.

16. On each of the three systems that hold NIRinformation there will be other information thatis not part of the NIR. For example, thebiometric store will hold biometrics for childrenaged between 11 and 16, in line with the EUrequirements for passports, but this informationis not part of the NIR; and the CIS technologyholds information specific to DWP’s work,which again is not part of the NIR.

17. As explained in Chapter 3, there will be a rangeof shields and controls in place to ensure effective

separation of NIR information from this non-NIR information, critically in terms of who cansee and who can change which information. Thiswill be subject to independent verification.

Identity checking services18. ID cards will be widely used and part of

everyday life and we want to make sure wedesign the Scheme to get the most out of them.

19. ID cards will be used to facilitate access tomany public services. This will be the casethroughout the country, as the Scheme is UK-wide. Application, enrolment and thestorage of data in the NIR will be managed ona UK-wide basis, in much the same way aspassport applications operate today. However,the devolved administrations will haveresponsibility for how the ID card is used togain access to those public services which aretheir responsibility.

Key services� Authentication and identity verification: you will be able to present your card to give consent to having

your identity verified. There will be a number of ways of doing this, reflecting the importance of what youwant to do. Offering these different levels of identity check allows organisations to balance the level ofassurance of someone’s identity with the investment they make to support this:– visual check: the person you present your card to might check whether the photograph on the front

of the card is your photograph;– card authentication: the person you present your card to will be able to check, using information

held on the chip on the card, whether it is a genuine, unaltered card;– PIN check: if they require a higher level of proof, they might ask you to enter a Personal

Identification Number (PIN) that only you should know;– verification online or over the telephone: if you want to prove your identity to someone on the

telephone or over the Internet, you will be able to do this by supplying your card details and possiblysome ‘shared secret’ information, like banking services use today. Higher levels of security will bepossible by using the chip on the card to generate a temporary password. Small hand-held devices tosupport this are cheaply available. Using one of these, the chip can provide a temporary code whichconfirms that your card is the one being used and that you have entered your PIN correctly; and

– biometric check: if they require a still higher level of proof, they might ask you to present afingerprint to be checked against those which you gave when you enrolled for the card.

� Identification: finding out, by searching for your details in the NIR, who you are. This might be usedif you do not have your card with you.

� Information provision: this is the ability to make data from the NIR available to other parts ofgovernment, to make sure that all parts of government are using the most up-to-date identityinformation about you, for example to make it much simpler when you change your name or address.


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20. Initial identity checking services will beavailable, to enable cardholders to prove theiridentity easily, to get access to services, to proveentitlement, and, for British citizens, to travelwithin Europe using their ID card instead of apassport. The key types of services that will beoffered are shown in the box on page 11. Notall of these services may be available when IDcards are initially launched, but they willbe introduced as the Scheme moves forward.

21. These services will be delivered by using cardsthat we will issue securely, including throughthe current passport-issuing business. The cardswill, like passports, contain a microprocessorchip. The chip will hold data in line withInternational Civil Aviation Organization(ICAO) recommendations, including a biometricimage of the bearer’s face. This is important intheir use as travel documents, as they can beused to cross other countries’ borders.

22. When we record and store fingerprint biometrics(all 10 fingerprints for each person), we store acomplete set in the NIR and a subset of thesewill be recorded on the card or passport, in linewith ICAO recommendations. Again, this willbe important for travel, given the internationalmove to adopt fingerprints in travel documents.

23. Subject to reaching commercial agreements,we also intend to make the ID card for Britishcitizens compatible with Chip and PIN cardreaders. We have started work on this. We willseek to work with the owners of the Chip andPIN infrastructure in our feasibility work andcollaborate in piloting future identity-relatedprotocols and services.

24. Being sure we can make best use of ID cardtechnology in the future means working todaywith a range of partners to refine the usesof the Scheme.

25. We will enter into joint venture partnershipswith other parts of government and the privatesector to develop those identity checking servicesthat will be offered at the launch of the Scheme.

26. We expect to engage with the private sector toencourage the innovative provision of an ever-evolving set of identity checking services. Allservices delivered will have oversight andaccreditation from IPS, to ensure the necessarysafeguards are in place.

27. In terms of initial services offered, the PassportValidation Service (PVS) is a valuable platformto be built upon. PVS is a service whichorganisations can already use to check that aBritish passport, which is presented to them asproof of identity, has been issued validly and hasnot been reported lost or stolen. For Britishcitizens, this means an assurance of theiridentity; for business, a reduction in thepotential for fraud. For example, using PVS weare already making it easier and more secure toapply to the Driver and Vehicle LicensingAgency (DVLA) for a driving licence, if youhave a recently issued passport.

28. At the end of September 2006, there were 18different organisations using PVS, includingthree high street banks, and IPS was handlingthousands of enquiries per week. PVS iscurrently engaging with a large pool ofinterested potential user organisations and willcontinue to grow to maximise efficiency andprovide the best possible customer service.


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Chapter 3:Securing the National Identity Scheme

29. The success of the National Identity Schemein delivering its benefits relies on publicconfidence, especially in the accuracy andsecurity of the information held in the NationalIdentity Register (NIR).

30. Effective security measures will be in place forthe entire Scheme. For example, ID cards andpassports will be produced and delivered underappropriate levels of security, including thenecessary physical and electronic securitymeasures. However, key to the security of theScheme is the security of the NIR, and that iswhat this chapter concentrates on.

Creating each person’s NIR record fromnew, based on rigorous checking31. When a person applies to the Scheme, they

provide a small set of biographical and biometricinformation. A range of background checkswill be carried out, based on this information.For example, biographical details will becorroborated against private and public sectordatabases, such as those of the Department forWork and Pensions (DWP) and the Immigrationand Nationality Directorate (IND). Biometricswill be checked against those of other peoplewho have enrolled in the Scheme, to stop thesame person applying twice under differentidentities. This corroborated information willbe stored in the new NIR record.

Effective checking when a personreports a change to their details orwants to look at their record32. It is important that all customers can have access

to their record and tell us when, for example,they have moved or changed names. But we needto guard against fraudulent changes beingreported or fraudulent access being requested.

33. So we will put in place effective checks to makesure that the person we are dealing with is whothey claim to be, before making any changes totheir NIR record or revealing information.

34. Also, the number of staff who will be able to seethe whole of a person’s identity record or makechanges to it will be limited and fully securityvetted. For any such access by staff there will berigorous auditing, alerts and a range of technicalcontrols to guard against internal misuse of, orfraudulent changes to, the NIR.

Holding each person’s NIR record inseparate, discrete parts35. As described in Chapter 2, the information

in each person’s NIR entry will be in severalparts, with each part being held on a separateset of technologies:

� biometric details will be held on thebiometric system;

� a biographical part of the entry will be heldon the Customer Information System (CIS)technology; and

� Public Key Infrastructure (PKI) relatedinformation will be held on the PKItechnology already being used for issuingePassports.

36. This separation is important in guarding againstmalicious or fraudulent damage to the NIR,since it would require unauthorised andundetected changes to these separate systems andthe corresponding card.

37. Each of these systems will have its own specificsecurity controls and integrity mechanisms.Biometric information will be stored with verytight security. We will build on our experiencewith passports, where photographs have beenheld for a number of years with no knowncompromise or misuse of the images. Stringentcontrols on access will be used to protect theinformation held and all staff will be vettedprior to employment.

Enforcing a clear separation38. On each of the three systems that hold NIR

information, there will be other informationthat is not part of the NIR. For example, thebiometric store will hold biometrics for children


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aged between 11 and 16, in line with the EUrequirements for passports, but this informationis not part of the NIR. The CIS technologyholds information specific to DWP’s work;again, this is not part of the NIR.

39. There will be controls to enforce the clearseparation between NIR information andinformation that is not part of the NIR. Thesewill be enforced at various technical levels andwill be supplemented by strict access controls todetermine which data can be seen by those withthe appropriate permission (e.g. security-clearedIdentity and Passport Service (IPS) staff).

40. Any information held that does not relate to theNIR will not be part of the NIR and will notbe available to NIR users. Conversely, any NIRinformation that does not relate to the needs ofother users of these systems, such as DWP staff,will not be viewable or accessible in any way bysuch staff.

Making sure only authorised people andorganisations can use NIR information41. Security-cleared IPS staff will be responsible for

the running of the NIR and the authorisedprovision of information from it. It will be acriminal offence to tamper with the NIR, witha maximum penalty of 10 years’ imprisonmentfor an unauthorised disclosure of information.We will enforce these powers.

42. The Identity Cards Act 2006 allows for certainNIR information to be provided, with a person’sconsent, to an accredited organisation, forexample a bank. This could be to confirm anID cardholder’s identity when opening a newaccount. This may include information such astheir address, which is not shown on the face ofthe card. IPS will be responsible for accreditingall such organisations to ensure they and theirstaff do not misuse these services. IPS will alsoput in place rigorous security controls so thatonly accredited organisations can use suchservices and only in the way intended.

43. It is important to stress that no part of theNIR will be directly connected to the Internetor any public network. Any request for NIRinformation will have to pass through a numberof intermediate systems and filters, to make sureonly authenticated and authorised requests canget through. Further, very strong physicalsecurity will be in place, to guard against therisk of direct physical attack.

44. The National Identity Scheme is also intendedto support and enable the prevention anddetection of crime and safeguard nationalsecurity. NIR information may therefore beprovided from the NIR without an individual’sconsent to the security services, the police andHM Revenue & Customs. Again, IPS willenforce strict controls to ensure any such accesscan only happen when fully authorised.

45. It would also be possible, subject toParliamentary approval, for information tobe provided without consent to, for example,government departments or other public bodies.This might allow a person to report a change ofname or address to government once, rather thanthe many times needed today.

Accrediting the NIR46. Each of the systems holding NIR information

will be accredited by the government’s securityauthorities, to ensure that they are notvulnerable to attack. The government’s securityauthorities will also accredit the separate partstogether, to ensure they are properly protected asa whole, and that there are effective protectionsin relation to the other parts of the Scheme towhich the NIR will be connected.

Overseeing the wider Scheme 47. The NIR and wider Scheme integrity and

security will also be overseen by a new NationalIdentity Scheme Commissioner, who will makeregular reports on the Scheme’s operation thatwill be laid before Parliament and published.More details of the Commissioner’s role are setout in Chapter 5.


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Chapter 3:Securing the National Identity Scheme

48. Data storage in the NIR will meet therequirements of the Data Protection Act 1998,including customers’ rights to see informationheld about them in computer systems.The operation of the Data Protection Act isoverseen by the independent InformationCommissioner, who has a statutory role toprotect personal information and legal powersto enforce compliance with that Act.

Making sure the NIR’s operationis secure49. Further, in terms of day-to-day integrity and

security, two key expert groups will be put inplace, building on the significant expertise thatalready exists within the Home Office.

Supporting the use of biometrics50. We will put in place the skills and expertise to

support large-scale use of biometric matching.Biometric technology identifies small percentagesof what are known as ‘false matches’ or ‘false non-matches’. These need expert human assessment toensure that matches are being made correctly. Forthis, we will build on resources which currentlyexist within government.

Counter-fraud, intelligence and enforcement51. We will enhance existing fraud and intelligence

capabilities to counter attempted fraud andenforce the powers of the Identity Cards Act2006 on those who attempt such activity.


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Chapter 4:Delivering the National Identity Scheme

52. Improving the security and managementof identity has already started, and theNational Identity Scheme will build onmany enhancements and initiatives that arewell advanced at the Identity and PassportService (IPS), the Immigration andNationality Directorate (IND), the Foreignand Commonwealth Office (FCO) and UKvisas.We will also maintain the high levels ofcustomer service achieved over recent years –for the third year in a row, IPS topped theindependent Comparisat Customer Satisfactionsurvey, ahead of organisations such as Amazon,Asda, eBay, Marks and Spencer, and Tesco.

53. Figure 4 shows our recent major areas ofdelivery. We also work closely with relatedinitiatives in other areas of government, inparticular those in IND, such as the ApplicationRegistration Card (ARC). Since 2002, thissystem has been recording fingerprint and facialbiometric data from asylum applicants in theUK. We also work closely with the IrisRecognition Immigration System (IRIS)initiative, which since early 2006 has beenoffering a quick way for registered travellersto clear immigration at some UK airports.

Enhancing customer experience 54. We have done the following to enhance

customer experience:

� 2001: we introduced extended openinghours, so that all offices are now open atweekends and in the early evening followingthe introduction of appointment-basedcounter services.

� 2001: we introduced guaranteed servicelevels, with fast-track and premier services.

� 2003: we introduced integrated call handling,improving the ability of the contact centre toresolve queries about the progress of passportapplications without needing to transfer callsto passport offices.

Increased passport integrity55. We have done the following to increase passport

integrity:

� 2002: we introduced information updatesfrom the Office for National Statistics andothers on infant deaths to detect passportapplication fraud.

� 2002: we set up the personal identityprocess pilot project, collaborating witha credit reference agency to validate thepersonal information provided on passportapplication forms.

Enhancing customer experience

Increased passport integrity

Introduction of identity checking services

2002 2003 2004 2005 2006

Figure 4: Recent major areas of delivery


17


� 2003: we established a new system to managelost, stolen and recovered passports.

� 2004: we introduced secure courier deliveryfor passports.

� 2006: the full operational implementation ofthe personal identity process took place.

� 2006: proof-of-concept trials took place offacial recognition to detect fraudulentapplications.

� 2006: ePassports were rolled out nationally.These are the first ‘biometric’ passports: theycontain a chip with key personal details andthe photograph of the bearer (as alreadyprinted in the passport) stored on it.They cannot be changed, but can be readelectronically at borders both here andabroad. By the end of 2006, we will haveissued four million ePassports.

Introduction of identity checkingservices56. We have done the following to introduce

identity checking services:

� 2002: we provided a Passport ValidationService to the Foreign and CommonwealthOffice.

� 2005: we provided a Passport ValidationService to the Driver and Vehicle LicensingAgency (to validate driving licenceapplications), IND (for border controlpurposes) and other government departments(for relevant business purposes).

� 2006: we provided a Passport ValidationService to financial institutions.

57. Figure 5 shows how we are building on existingsuccesses to put the foundation for the Schemein place. Some examples of how we are doingthis are listed below.

Improving passport security andstrengthening passport checks 58. In mid 2007 we plan to commence a

live pilot of interviewing first-time adultpassport applicants.

Improving passport security and strengthening passport checks

Biometrics required for visa applications

Evolution of the Scheme’sidentity checking services

Biometrics introduced for non-EEA foreign nationals already in the UK reapplying to stay here

Identity cards

2006 2007 2008 2009 2010 2011

Figure 5: Foundations of the Scheme


18

Biometrics required for visa applications 59. We will do the following in relation to

biometrics for non-EEA foreign nationalscoming to the UK:

� 2008: by April 2008 we will berecording biometrics for everyone from the169 nationalities outside the EEA applying towork, study or stay in the UK for more thansix months, and for people from 108nationalities applying to visit the UK.

Evolution of the Scheme’s identitychecking services60. We will do the following to improve identity

checking services:

� 2007: we will enhance the Passport ValidationService and continue its expansion.

� 2007 onwards: we will design and prototypenew and expanded identity checking servicesthrough joint ventures with other parts ofgovernment and the private sector. In parallel,we will work with the private sector todevelop innovative identity checking servicesfor use across the UK.

Biometrics introduced for non-EEAforeign nationals already in the UK61. We will do the following in relation to

biometrics for non-EEA foreign nationals:

� 2008: we will begin to issue biometrically-enabled identity documents to foreignnationals from the 169 nations outside theEEA who are already in the UK and reapply to stay here.

Identity cards62. We will do the following in relation to

identity cards:

� 2009: we will issue the first ID cardsfor British citizens, using the improvedapplication and enrolment systems. We willbuild on our experience of biometrics for visasand other documents for foreign nationals,and will use our learning from the pilotingof identity checking services.

� 2010: we will issue significant volumes of IDcards alongside British passports.


19


63. We are also committed to meeting European andinternational initiatives to make passports evermore secure, including the use of fingerprintbiometrics. The timing of these changes willdepend on balancing a number of factors,including costs, risk, the outcome of pilots anddevelopment across the EU and internationally.

2009 and beyond64. The first ID cards will be issued to British

citizens in 2009. As the Scheme rolls outthereafter, it will continue to evolve, with thedelivery of innovative services. There will beincreasing involvement from the private sector,and growing numbers of people enrolled in theScheme. This will eventually lead to registrationbeing made compulsory (subject toParliamentary approval).

Biometrics65. When you enrol into the Scheme, your

fingerprint biometrics (all 10 fingerprints) willbe recorded and stored in the National IdentityRegister. A subset of these will be held onyour ID card or passport, in line withInternational Civil Aviation Organizationstandards. The introduction of iris biometricsalso remains an option.

Private sector66. As the Scheme grows, we will continue to

engage with the private sector. The identitychecking services that you will be able to use toprove your identity will grow in scale, and therange of channels through which they will bemade available will also be increased. We expectthe private sector to play a key role by drivinginnovation in the use of these services. Our firststeps can be seen in our work on joint ventures(see Chapter 6).

Take-up and compulsion67. Our enrolment strategy will be to focus firstly

on target groups who stand to make most use ofID cards, or to address specific risks, for examplewhere existing documents are abused.

68. It is the Government’s policy that registration inthe National Identity Scheme should eventuallybe compulsory for all those resident in the UKwho are over the age of 16. The Identity CardsAct 2006 allows for the registering and issuingof an ID card to be linked to the issuingof official documents such as passports andimmigration documents. This means that wecan issue ID cards to a large proportion of thepopulation while managing the delivery risks.For example, around 8 per cent of the adultpopulation receive a passport each year, but wewill never be able to issue everyone in the UKwith an ID card by this method. At some timein the future, further primary legislation will belaid before Parliament to provide the powers toissue ID cards to the rest of the population.


20

Chapter 5:Overseeing the National Identity Scheme

69. For British citizens, the National IdentityScheme will be administered by the Identity andPassport Service (IPS) on behalf of the HomeSecretary. IPS will be responsible for the dataheld and for the provision of data from theNational Identity Register (NIR).

70. For foreign nationals (including both EEA andnon-EEA nationals), authentication, enrolmentand the production of documents will allbe carried out in the early stages by theImmigration and Nationality Directorate(IND), supported by IPS.

71. To deliver the Scheme, IPS will be commissioningwork from a range of organisations including theDepartment for Work and Pensions (DWP) andprivate sector companies.

Laws and regulations for the Scheme72. The National Identity Scheme will be governed

by the Identity Cards Act 2006, immigrationlegislation, the secondary legislation (regulationsand orders) made under the Identity Cards Act2006 and approved by Parliament, and otherlegislation (e.g. the Data Protection Act, etc.).This includes regulations that will set the feesto be charged and the requirements for applyingfor ID cards. All of these regulations and orderswill be subject to Parliamentary scrutiny, whichwill allow debate on the detailed proposals forthe Scheme.

73. The first secondary legislation will be an orderunder Section 38 of the Identity Cards Act2006. This will be placed before Parliamentin early 2007, and provides for verifyinginformation in passport applications. It enablesorders to be made specifying organisations thatmay be required to provide information for thispurpose; this is necessary to ensure that IPS hasthe ability to identify fraudulent passportapplications and guard against identity theft.

National Identity Scheme Commissioner74. Appointing a commissioner to oversee the

operation of the National Identity Scheme is akey safeguard of the Identity Cards Act 2006.The Commissioner will be recruited by meansof an open competition, which will beginsignificantly before the first ID card is issued:there will be full and proper oversight from theoutset. We will ensure that the Commissioneris in post before the first ID cards are issuedunder the Identity Cards Act 2006. To ensureindependence, the Commissioner will not bebased in IPS. He or she will review the operationof the Scheme, including the uses to which IDcards are being put and the arrangements madefor securing the confidentiality and integrityof information recorded in the NIR. TheCommissioner will make regular reports tothe Home Secretary, and these will be publishedand laid before Parliament.

Managing shared services75. There are challenges inherent in operating a

shared service, where a single system meets theneeds of two or more organisations; this will bethe case with the NIR operating on CustomerInformation System technology. We are workingwith partners across government to ensure thatthere are effective management and governancearrangements in place for managing this shareduse of technology.

76. In order to effectively manage shared services,the following arrangements will typicallybe followed:

� Working with other partners, such as UKvisas,IND and DWP, IPS will develop the processesand systems required to support the enrolmentand maintenance of biographical andbiometric data in separate data stores, as wellas the links between the two.

� IPS will be responsible for the Scheme andaccountable for its success.

� IPS’s partners, such as DWP, will deliver thechanges needed and operate the technologies.


21

Chapter 5:Overseeing the National Identity Scheme

� IPS will integrate the Scheme, ensuring thateach component part from each partner fitswith the rest (e.g. card production, biometricinformation, etc.).

� A governance framework which is joint andmultilateral across all key partners will be putin place.

� Service delivery will remain embedded withinthe key partner organisations and will be paidfor through agreed charging mechanisms.

The wider Scheme77. Beyond the NIR, governance structures are

being developed to address the following:

� The processes for accreditation through whichorganisations – both public and private sector– can make best use of the Scheme. Suchprocesses will make clear who is able to verifyan individual’s identity using the Scheme.

� Counter-fraud, intelligence, and the measuresnecessary to protect the security, resilience andintegrity of the NIR. This will be developedin close liaison with the relevant securityspecialists within government and with theScheme’s independent security accreditor.


22

Chapter 6:Next steps

78. The Scheme will evolve, delivering increasingbenefits over time, to support ever more effectiveidentity management across the UK. Theintroduction of the National Identity Schemewill be incremental – not a ‘big bang’. Evennow, we are adding to and enhancing ourexisting systems and services to ensure thatthe Scheme delivers.

Procurement79. As already stated, our strategy for delivery is to

make best use of existing assets and investment.Within this, we will continue to explore (withother parts of government and the suppliermarket) innovative options for delivery ofthe Scheme’s services. As discussed below, weexpect to put in place flexible and responsivecommercial arrangements to enable us toachieve this.

80. An important aspect of our preparation is howwe engage with private sector partners to deliverthe services needed to make the Scheme a reality.During 2005, the Identity and Passport Service(IPS) commenced its market engagement bytaking soundings on a potential procurementstrategy and its implementation. Intellect’sConcept Viability Scheme was used as part ofthis process. Now that the Identity Cards Act2006 is in place, we have used that market inputand further work on priorities and planning torefine our strategies for delivery. The intention isto update the market on the new propositions(through a briefing pack – available on ourwebsite – and with other public information),with further engagement and consultationtaking place during early 2007. This will leadup to significant procurement activity beginningin the second quarter of 2007.

81. The procurement approach will harness theknowledge gained from earlier market soundings.We will be outcome-focused and will work incollaboration with the market to define solutionsand long-term strategies. As part of this we will

consult with the market on how best to ‘package’the services needed. In addition to the detail ofthe consultation, we will be looking at how themarket can deliver speedily and flexibly, whileachieving value for money.

82. There are a number of key passport-relatedcontracts within IPS that are due to expire overthe next few years. By adopting an incrementalapproach, IPS will seek to put contracts outto tender in a manner that will promote thecontinued successful delivery of passportoperations and enable the development of newcapabilities for future Scheme delivery. Webelieve that this approach reduces risk andprovides best value for money.

83. During 2007, we will begin the work to put inplace new commercial arrangements for keyparts of the Scheme, including the following:

� The core biometric services underpinningNational Identity Register (NIR) delivery.We will meet our early needs by usingexisting biometric storage and matchingsystems from within IPS and the Immigrationand Nationality Directorate (IND). We willneed to procure further capabilities asthe Scheme grows and we will put in placethe necessary room for expansion. We willensure that the security measures necessary toprotect the data are in place. The first stage ofthis procurement process is planned to beginformally in the second quarter of 2007.

� Key IPS operational services, not least in theareas of application and enrolment processing.Again, we plan to formally beginprocurement in 2007.

� The manufacture and delivery of identityproducts, some of which will be procured anddelivered in collaboration with deliverypartner organisations (such as IND and theForeign and Commonwealth Office).

� An innovative and growing range of identitychecking services.


23

Chapter 6:Next steps

Joint ventures84. We plan to initiate a series of joint ventures –

strategic partnerships across government and theprivate sector – that will shape the developmentof the Scheme.

85. The Government has said1 that it wants ID cardsand the NIR to be the ‘glue’ that allows personaland identity-related data to be joined up acrossgovernment. Through these joint ventures, weaim to build confidence in and support for theNational Identity Scheme among those peoplewho have enrolled, people in the public sectorand people in business. We also aim to tackleidentity-related business challenges and toimprove the customer experience for all those(the individual, as well as the private and publicsectors) who interact with government services.It is important to stress that the use of the NIRhere will be to provide proof of identity to jointventure partners, by only providing identity-related data that is specific to the partner’sbusiness process – not to provide wider accessto the full set of data that the NIR holds.

86. The first joint venture initiatives have beenselected on a priority basis, based on theirattractiveness and achievability. They are amixture of initiatives both to make access toservices and proper use of identity data easier,and to make fraudulent use of identity, illegalworking and illegal immigration harder. Thefollowing joint ventures have been prioritised forearly development:

� Criminal Records Bureau (CRB): theNational Identity Scheme will help to makeidentification within the CRB processquicker, and will help with cracking down oncriminals applying for jobs working withchildren and vulnerable adults.

� IND and employers: a combined ‘identityand right to work’ checking service willmake it harder for foreign nationals towork illegally.

� Retail sector: when customers buy age-restricted goods, retailers will easily be ableto establish proof of age.

� Department for Work and Pensions(DWP), the Department for Communitiesand Local Government (DCLG) and localauthorities: we are exploring the feasibility ofa joint venture with DWP and DCLG, and inassociation with local authorities, to establishhow efficient verification of identity willinform customer experience improvementsand access to entitlements.

� Government Gateway: a single accesspoint to multiple government services usingsecure identity verification. It provides ameans for citizens to update their identityinformation easily.

Trialling and piloting87. We will build upon the trialling work carried

out to date – both to learn lessons from a‘customer experience’ perspective and to provethe effectiveness of the technology and processesthat we plan to adopt. Excellent work in thisarea has already been carried out by IPS, INDand UKvisas, and this will inform our triallingplans going forward. Trialling will be based onanalysis from IPS’s risk management strategy ofwhat is necessary, and on input from suppliersand the market. The following are some of thekey features of our approach to triallingand piloting:

� We will be flexible about the scope of thetrials and will adapt our trialling approach tochanging circumstances and the results ofearlier trials.

1 Cabinet Office (November 2005) Transformational Government: Enabled by Technology(www.cio.gov.uk/documents/pdf/transgov/transgov-strategy.pdf ).


24

� We will test suppliers’ technology to ensurethat it meets our requirements as the Schemegoes forward.

� Testing will be undertaken through the life ofthe Scheme. We will trial solutions at keypoints in the development process, and willbe looking for assurances that solutions are fitfor purpose before use.

Recruitment88. We will continue to develop our in-house

capacity to meet the additional demandsreflected in this Action Plan. In particular,we will concentrate on building our changedelivery capacity and on how key customer-facing areas will be resourced, to ensure thatIPS’s current excellent customer service ratingsare maintained.

Refining our estimate of Scheme costs89. In accordance with the Identity Cards Act 2006,

a report of the estimated costs of the NationalIdentity Scheme was laid before Parliament on9 October 2006.2 The report estimated thecosts of issuing passports and ID cards overthe coming 10 years at some £5.4 billion(excluding the cost of issuing documents toforeign nationals), much of which will berecovered from fees. We will continue to reviseour estimates of the costs of implementing theScheme as work proceeds, and will provideregular updates to Parliament; the next isscheduled for April 2007. As part of it, we willbe validating the estimated costs of the work setout in this Action Plan. We will have updatedthe business case in the light of the approach setout in this document and will be subjecting itto independent scrutiny, including through theOffice of Government Commerce Gatewayprocess over the coming months.

Leadership in identity management90. IPS will continue to lead collaborative work

across government to improve identitymanagement and to help to ensure that this fitswith the related changes prompted by Sir DavidVarney’s review and the Government’s strategyon data sharing, both of which aim to enablebetter, person-centred public services.

91. Government and business have a shared interestin accurate and accessible information about thecustomers of their services and in buildingpublic confidence in how identity information isused. The Public Private Forum on IdentityManagement3 chaired by Sir James Crosby, whowas appointed by the Chancellor of theExchequer, is considering these issues, and howthe public and private sectors can work togetherto deliver real improvements for individuals. Theforum will report to the Chancellor of theExchequer and the Ministerial Committee onIdentity Management in April 2007.

92. Within the Home Office we are already workingon simplifying and improving the way wehandle identity information. Over time, we willbe able to link people to a single identity acrossour systems using biometrics.

A really effective identity management scheme isessential in order to shape public services aroundthe citizen and realise the goal of truly joined-upand personalised government.

2 Identity Cards Act 2006: First Section 37 report to Parliament about the likely costs (presented to Parliamentpursuant to Section 37 of the Identity Cards Act 2006).

3 See www.hm-treasury.gov.uk/newsroom_and_speeches/press/2006/press_51_06.cfm for more information.


25

Annex 1:Summary grid of actions up to 2009

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26

Annex 2:Abbreviations

CRB Criminal Records Bureau

DVLA Driver and Vehicle Licensing Agency

DWP Department for Work and Pensions

EEA European Economic Area

EU European Union

ICAO International Civil Aviation Organization

IND Immigration and Nationality Directorate

IPS Identity and Passport Service

NIR National Identity Register

Passport British passport

PIN Personal Identification Number

PKI Public Key Infrastructure

PVS Passport Validation Service


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