Technology & Innovation

Identifying a better future

February 01, 2016

Global

February 01, 2016

Global

A new article that explores how biometric IDs empower women and the poor.

When Pakistani officials travelled to the country’s poorest and most remote regions to encourage citizens to register for identity cards, they encountered a problem: Many men did not want their wives to participate.


The registration process employs biometric technology, which uses fingerprint scans and facial recognition software to create unique identity profiles that can be uploaded onto cards or databases. Tariq Malik, who ran the campaign for Pakistan’s National Database & Registration Authority (NADRA), said this process made many husbands uncomfortable.


“In some areas where there is the influence of the Taliban, the men said no. They said that women can’t be photographed or they can’t have the male workers holding their wives’ hands to take fingerprints,” said Mr Malik.


So NADRA opened 13 offices that employed only women, hiring local residents who could inform their mothers and sisters about the benefits of obtaining a legal identity, such as securing the right to vote and to obtain government services. On the day the first female-only office opened, 3,000 women arrived. From 2008 to 2014, more than 21 million Pakistani women chose to register for a digital identity, increasing the number of registered women in the country by 104 percent.1

The right to a unique legal identity is one that most people in developed economies take for granted, but worldwide nearly 2 billion people have no means of proving that they are who they say they are.2 The vast majority of these individuals are poor and live in the developing world; in some sub-Saharan countries, more than half the population lacks a legal identity, the World Bank reports. This means they can be excluded from some of the most basic aspects of civic life, such as voting in an election, opening a bank account or accessing services like healthcare or education.


Weak identification systems can also hamper governments’ ability to provide services to the poor. In India, for example, more than 58 percent of subsidised grain did not reach the intended recipients in 2008.3


“There was a lack of basic identity documentation, and the databases we had were extremely dirty, as we call it, because there were so many duplicates,” says Anit Mukherjee, an IDRC fellow at the Center for Global Development, who was part of the team that developed India’s biometric identity program, the world’s largest, known as Aadhaar.


Starting in 2011, the team travelled to small villages and remote areas of the country, scanning fingerprints and irises and linking this information to demographic data such as date of birth and parents’ names. With a decentralised enrolment process and a centralised database, participants can sign up in their villages and then travel anywhere in the country, since their 12-digit identity number can be accessed online. To date, 950 million of the country’s 1.2 billion citizens have enrolled, says Mr Mukherjee.

Aadhaar has enabled government administrators to weed out duplications and other forms of corruption in many programmes. For example, subsidies for goods like food and cooking oil are now sent directly to beneficiaries, rather than distributed through a third party. As a result, the Indian government saved $2 billion last year by streamlining the cooking-oil distribution process alone, says Mr Mukherjee.

Equally impressive savings have been realised in other regions. For example, the World Bank4 reports that officials in Guinea-Bissau found 4,000 non-existent workers on the government payroll, and Nigerian authorities say they cut 43,000 “ghost workers”, a measure that saved $67 million.

Of course, the idea of scanning irises and inputting fingerprints into electronic databases makes some people uneasy, conjuring up images from an Orwell novel.

While he understands the concerns, Mr Mukherjee notes that a biometric identity is significantly less vulnerable to hacking or identity theft than older forms—forging a fingerprint or iris scan is vastly more difficult than hacking a firewall or copying a signature. “It is a far more robust system than people realise,” he says.

On the other hand, the strength of these systems could make it more difficult for individuals to challenge errors, as presumptions might be biased toward the computer, note Alan Gelb and Julia Clark in a CGD Working Paper, Identification for Development: The Biometrics Revolution.5 They also point out that facial recognition software can capture individuals’ images without their consent, raising privacy
concerns. There is also an issue of exclusion, as obtaining fingerprints is not always possible for manual laborers and the elderly.

Ensuring that identification systems protect privacy means staying ahead of the technological curve, Mr Mukherjee says. It also means having a clear vision of each programme’s intent—for example, to deliver better government services—and ensure that the system serves that long-term goal.

“When you build identity systems today, you are not building for the next five years. You’re building for the next 50 years,” says Mr Mukherjee. “So it’s important to be clearon the strategic vision and then build accordingly.”

In Pakistan, empowering the country’s poorest women was a key part of the game plan. Mariana Dahan, coordinator of the World Bank’s Identification for Development (ID4D) Working Group, says that with an official digital identity, women are able to assert their rights to own property, file for divorce, or register children born outside of marriage.

“It gives them access to rights and services that they didn’t have before,” she says.


In that country, biometric identity cards are used to ensure that government payments go directly to female beneficiaries and can’t be intercepted by male relatives, as has often been the case under less-secure identification systems.

Pakistani women receiving payments through this system report that they have greater confidence and more bargaining power in their families since receiving their IDs. 

“They feel empowered and have a sense of identity for the first time. Their money belongs to them and only to them,” says Ms Dahan.

A background paper coauthored by Ms Dahan, The Identification for Development (ID4D) Agenda: Its Potential for Empowering Women and Girls,6 reports that the majority of recipients say they are able to spend their payments as they choose, which appears to have beneficial effects on their families, as the majority say they spend the money primarily on food and healthcare.


1 Technology in the Service of Development: The NADRA Story. Tariq Malik. Center for Global Development, Nov. 5, 2014.

2 Digital IDs for Development: Access to Identity and Services for All. Mariana Dahan and Randeep Sundan. The World Bank,
April 2015.

3 The Evolution of India’s UID Program: Lessons Learned and Implications for Other Developing Countries. Frances Zelazny. The
Center for Global Development, August 2012. Digital IDs For Development.

4 Digital IDs For Development.

5 Identification for Development: The Biometrics Revolution. Alan Gelb and Julia Clark. The Center for Global Development,
January 2013.

6 The Identification for Development (ID4D) Agenda: Its Potential for Empowering Women and Girls. Mariana Dahan and
Lucia Hanmer. The World Bank, 2015.

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