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Identification for Development: the Biometrics Revolution Identification for Development: The Biometrics Revolution Alan Gelb and Julia Clark Abstract Formal identification is a prerequisite for development in the modern world. The inability to authenticate oneself when interacting with the state—or with private entities such as banks—inhibits access to basic rights and services, including education, formal employment, financial services, voting, social transfers, and more. Unfortunately, underdocumentation is pervasive in the developing world. Civil registration systems are often absent or cover only a fraction of the population. In contrast, people in rich countries are almost all well identified from birth. This “identity gap” is increasingly recognized as not only a symptom of underdevelopment but as a factor that makes development more difficult and less inclusive. Many programs now aim to provide individuals in poor countries with more robust official identity, often in the context of the delivery of particular services. Many of these programs use digital biometric identification technology that distinguish physical or behavioral features, such as fingerprints or iris scans, to help “leapfrog” traditional paper-based identity systems. The technology cannot do everything, but recent advances enable it to be used far more accurately than previously, to provide identification (who are you?) and authentication (are you who you claim to be?). Technology costs are falling rapidly, and it is now possible to ensure unique identity in populations of at least several hundred million with little error. This paper surveys 160 cases where biometric identification has been used for economic, political, and social purposes in developing countries. About half of these cases have been supported by donors. Recognizing the need for more rigorous assessments and more open data on performance, the paper draws some conclusions about identification and development and the use of biometric technology. Some cases suggest large returns to its use, with potential gains in inclusion, efficiency, and governance. In others, costly technology has been ineffective or, combined with the formalization of identity, has increased the risk of exclusion. One primary conclusion is that identification should be considered as a component of development policy, rather than being seen as just a cost on a program-by-program basis. Within such a strategic framework, countries and donors can work to close the identification gap, and in the process improve both inclusion and the efficiency of many programs. JEL Codes: H80, J10, O33, O38, Z18 Keywords: biometric identification, civil registry, voter registration, G2P, financial inclusion, transfers. Working Paper 315 www.cgdev.org January 2013 Identification for Development: The Biometrics Revolution Alan Gelb Center for Global Development Julia Clark Center for Global Development The authors thank Charles Kenny, Roberto Palacios, Wyly Wade, and Frances Zelazny for helpful comments as well as participants at the 2012 World Bank / IIT Conference on Implementing Social Programs: “Better Processes, Better Technology, Better Results,” in Bangalore, India, and the 2012 Biometrics Consortium Convention in Tampa, Florida. Caroline Decker contributed to early drafts of this paper. All errors of interpretation or omission are the responsibility of the authors. CGD is grateful for contributions from the UK Department for International Development and the William and Flora Hewlett Foundation in support of this work. Alan Gelb and Julia Clark. 2013. “Identification for Development: The Biometrics Revolution.” CGD Working Paper 315. Washington, DC: Center for Global Development. http://www.cgdev.org/content/publications/detail/1426862 Center for Global Development The Center for Global Development is an independent, nonprofit policy 1800 Massachusetts Ave., NW research organization dedicated to reducing global poverty and inequality Washington, DC 20036 and to making globalization work for the poor. Use and dissemination of this Working Paper is encouraged; however, reproduced copies may not be 202.416.4000 used for commercial purposes. Further usage is permitted under the terms (f) 202.416.4050 of the Creative Commons License. www.cgdev.org The views expressed in CGD Working Papers are those of the authors and should not be attributed to the board of directors or funders of the Center for Global Development. Contents Abbreviations ................................................................................................................................................... ii Figures and Graphs ........................................................................................................................................ iii 1. Introduction ............................................................................................................................................. 1 2. Identification, development, and biometrics ..................................................................................... 5 2.1. Official Identity and the identity gap ................................................................................. 5 2.2. The Technology revolution and its limits ......................................................................... 8 2.3. Perspectives and concerns .................................................................................................12 3. Survey of Biometric identification Applications .............................................................................19 3.1. Overview ...............................................................................................................................19 3.2. Functional Applications .....................................................................................................23 3.3. Foundational Applications ................................................................................................35 3.4. Pathways to a National Identity System ..........................................................................38 4. Emerging Trends and implications ....................................................................................................44 4.1. Successes ...............................................................................................................................44 4.2. Failures and risks .................................................................................................................46 4.3. Strategy ..................................................................................................................................49 4.4. Role of donors .....................................................................................................................51 5. Conclusion .............................................................................................................................................52 References .......................................................................................................................................................54 Appendix 1: Key Concepts in Biometrics .................................................................................................62 Biometric basics ..............................................................................................................................62 Accuracy and Error Rates .............................................................................................................64 Industry Growth .............................................................................................................................66 Appendix 2: Referenced Cases....................................................................................................................67 Abbreviations 4Ps Pantawid Pamilyang Pilipino Program (Philippines) AFIS automated fingerprint identification system AHR advanced human recognition ARV antiretroviral ATM automatic teller machine BEVS Biometric Electronic Voting System (Philippines) BIS biometric information system (Yemen) BISP Benzir Income Support Program (Pakistan) BOM Banco Oportunidade de Moçambique (Opportunity Bank of Mozambique) CCT conditional cash transfer CDC Centers for Disease Control and Prevention (United States) CLARCIEV Consejo Latinoamericano y del Caribe de Registro Civil, Identidad y Estadísticas Vitales (Latin American and Caribbean Council for Civil Registration, Identity and Vital Statistics) CNAMGS Caisse Nationale d'Assurance Maladie et de Garantie Sociale (National Health Insurance and Social Welfare Fund, Gabon) CNPSS Comisión Nacional de Protección Social en Salud (National Commission of Social Protection in Health, Mexico) DECT Dowa Emergency Cash Transfer project (Malawi) DGRCIC Dirección General de Registro Civil, Identificación y Cedulación (General Directorate of Civil Registry, Identification, and ID Cards, Ecuador) DRC Democratic Republic of Congo EBIRS Employee Biometric Identification & Records System (Liberia) EEG electroencephalography (brain waves) EHR electronic health record ELECT Enhancing Legal & Electoral Capacity for Tomorrow (Afghanistan) EU European Union HANIS Home Affairs National Identification System (South Africa) HDSS health and demographic surveillance system ICT information and communication(s) technology ID identity document IDB Inter-American Development Bank IDP internally-displaced person IFC International Finance Corporation ILO International Labor Organization J-PAL Abdul Latif Jameel Poverty Action
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