Identity Cards Act 2006

"National Identity Cards (United Kingdom)" redirects here. This article is about the defunct 2006 National Identity scheme. For the 1939 scheme, seeNational Registration Act 1939.

TheIdentity Cards Act 2006(c. 15) was anActof theParliament of the United Kingdomthat was repealed in 2011. It createdNational Identity Cards,a personalidentification documentandEuropean Economic Area travel document,which were voluntarily issued to British citizens. It also created aresident registrydatabase known as the National Identity Register (NIR), which has since been destroyed. In all around 15,000 National Identity Cards were issued until the act was repealed in 2011. The Identity Card for Foreign nationals was continued in the form ofBiometric Residence Permitsafter 2011 under the provisions of theUK Borders Act 2007and theBorders, Citizenship and Immigration Act 2009.

Identity Cards Act 2006

Act of Parliament
Parliament of the United Kingdom
Long title	An Act to make provision for a national scheme of registration of individuals and for the issue of cards capable of being used for identifying registered individuals; to make it an offence for a person to be in possession or control of an identity document to which he is not entitled, or of apparatus, articles or materials for making false identity documents; to amend theConsular Fees Act 1980;to make provision facilitating the verification of information provided with an application for a passport; and for connected purposes.
Citation	2006 c. 15
Dates
Royal assent	30 March 2006
Repealed	21 January 2011
Other legislation
Repealed by	Section 1,Identity Documents Act 2010
Status: Repealed
History of passage through Parliament
Text of statute as originally enacted
Revised text of statute as amended

The introduction of the scheme by theLabourgovernment was much debated, andcivil libertyconcerns focused primarily on the database underlying the identity cards rather than the cards themselves. The Act specified fifty categories of information that the National Identity Register could hold on each citizen. The legislation further said that those renewing or applying forpassportsmust be entered on to the NIR.

TheConservative/Liberal Democrat Coalitionformed following the2010 general electionannounced thatthe ID card scheme would be scrapped.The Identity Cards Act was repealed by theIdentity Documents Act 2010on 21 January 2011, and the cards were invalidated with no refunds to purchasers.

Nobody in the UK is required to carry any form of ID. Therefore,driving licencesandpassportsare the most widely used ID documents in the United Kingdom. Young people are able to apply and be issued aprovisional driving licenceusually without any preconditions, and under most circumstances can be used as ID in the same way as a standard driving licence. Utility bills are the primary document used as evidence of residency.Authorities and police generally do not make spot checks of identification for individuals, although they may do so in instances ofarrest.

Development

Reasons given for the need for introduction

A specimen of the British National Identity Card, issued briefly from October 2009 to May 2010.

Initial attempts to introduce a voluntary identity card were made under theConservativegovernment ofJohn Major,under then Home SecretaryMichael Howard.At theLabour Partyconference in 1995,Tony Blairdemanded that "instead of wasting hundreds of millions of pounds on compulsory ID cards as the Tory Right demand, let that money provide thousands more police officers on the beat in our local communities."It was included in the Conservative election manifesto for the 1997 general election, in which Labour returned to office.

A proposal for ID cards, to be called "entitlement cards", was initially revived by theHome Secretaryat the time,David Blunkett,following theterrorist attacks of 11 September 2001,but was reportedly opposed byCabinetcolleagues. However, rising concerns about identity theft and the misuse of public services led to a proposal in February 2002 for the introduction of entitlement cards to be used to obtainsocial securityservices, and a consultation paper,Entitlement Cards and Identity Fraud,was published by the Home Office on 3 July 2002.A public consultation process followed, which resulted in a majority of submissions by organisations being in favour of a scheme to verify a person's identity accurately. However, it was clear that the ability to properly identify a person to their true identity was central to the proposal's operation, with wider implications for operations against crime and terrorism.

In 2003, Blunkett announced that the Government intended to introduce a "British nationalidentity card"linked to a national identity database, theNational Identity Register.The proposals were included in the November 2003 Queen's Speech, despite doubts over the ability of the scheme to preventterrorism.Feedback from the consultation exercise indicated that the term "entitlement card" was superficially softer and warmer, but less familiar and "weaselly", and consequently the euphemism was dropped in favour of "identity card".

During a private seminar for theFabian Societyin August 2005,Tony McNulty,the minister in charge of the scheme, stated "perhaps in the past the government, in its enthusiasm, oversold the advantages of identity cards", and that they "did suggest, or at least implied, that they might well be a panacea for identity fraud, for benefit fraud, terrorism, entitlement and access to public services". He suggested that they should be seen as "agold standardin proving your identity ".Documentation released by the Home Office demonstrated analysis conducted with the private and public sector showed the benefits of the proposed identity card scheme could be quantified at £650m to £1.1bn a year, with a number of other, less quantifiable, strategic benefits — such as disrupting the activities of organised crime and terrorist groups.

Legislative progress

The Identity Cards Bill was included in theQueen's Speechon 23 November 2004, and introduced to theHouse of Commonson 29 November.

It was first voted on byMembers of Parliamentfollowing thesecond readingof the bill on 20 December 2004, where it passed by 385 votes to 93. The bill was opposed by 19LabourMPs, 10ConservativeMPs, and theLiberal Democrats,while a number of Labour and Conservative members abstained, in defiance of party policies. A separate vote on a proposal to reject the Bill was defeated by 306 votes to 93.Charles Clarke,the new Home Secretary, had earlier rejected calls to postpone the reading of the Bill following his recent appointment.

Thethird readingof the bill in the Commons was approved on 11 February 2005 by 224 votes to 64; a majority of 160. Although being in favour in principle, the Conservatives officially abstained, but 11 of their MPs joined 19 Labour MPs in voting against the Government. The Bill then passed to theHouse of Lords,but there was insufficient time to debate the matter, and Labour were unable to do a deal with the Conservatives in the short time available in the days before Parliament was dissolved on 11 April, following the announcement of the2005 general election.

Labour'smanifestofor the 2005 general election stated that, if returned to power, they would "introduce ID cards, including biometric data like fingerprints, backed up by a national register and rolling out initially on a voluntary basis as people renew their passports". In public speeches and on the campaign trail, Labour made clear that they would bring the same Bill back to Parliament. In contrast, the Liberal Democrat manifesto opposed the idea because, they claimed, ID cards "don't work",while the Conservatives made no mention of the issue.

After the 2005 election

Following their 2005 general election victory, the Labour Government introduced a new Identity Cards Bill, substantially the same as the previous Bill, into the Commons on 25 May. The Conservatives joined the Liberal Democrats in opposing the Bill, saying that it did not pass their "five tests". These tests included confidence that the scheme could be made to work, and its impact on civil liberties. In December 2005, the Conservative Party elected a new leader, future Prime MinisterDavid Cameron,who opposed ID cards in principle.

The second reading of the Bill on 28 June was passed, 314 votes to 283, a majority of 31.

At its third reading in the Commons on 18 October, the majority in favour fell to 25, with 309 votes in favour to 284 against.In the report stage between the readings, the Bill was amended to prevent the National Identity Register database being linked to thePolice National Computer.

In early 2006, the Bill was passed through theHouse of Lordscommittee stage, where 279 amendments were considered. One outcome of this was a vote demanding that the Government instruct theNational Audit Officeto provide a full costing of the scheme over its first ten years, and another demanding that a "secure and reliable method" of recording and storing the data should be found. A third defeat limited the potential for ID cards to be required before people could access public services.On 23 January, the House of Lords defeated the government by backing a fully voluntary scheme.

The committee stage ended on 30 January, and the third reading of the Bill took place on 6 February, after which it returned to the Commons. There, on 18 February, the legislation was carried by a majority of 25, with 25 Labour MPs joining those opposing it. Following the defeats in the House of Lords, the government changed the Bill in order to require separate legislation to make the cards compulsory; however, an amendment to make it possible to apply for a biometric passport without having to register on the National Identity Register database was defeated, overturning the Lords' changes to make the Bill fully voluntary. The Lords' amendment requiring a National Audit Office report was rejected.

The Bill returned to the Lords on 6 March, where the Commons amendments were reversed by a majority of 61.The defeat came despite ministers warning that the Lords should follow theSalisbury Conventionby refraining from blocking a manifesto commitment. Both Conservatives and Liberal Democrats stated generally in 2005 that they no longer felt bound to abide by the convention, while in this specific case several Lords stated that it would not apply as the manifesto commitment was for implementation on a "voluntary basis" as passports are renewed, rather than being compulsory as passports are renewed.

Subsequent votes:

• 13 March: House of Commons — majority of 33 for Government (310 to 277)
• 15 March: House of Lords — majority of 35 against Government (218 to 183)
• 16 March: House of Commons — majority of 51 for Government (292 to 241)
• 20 March: House of Lords — majority of 36 against Government (211 to 175)
• 21 March: House of Commons — majority of 43 for Government (284 to 241)

On 29 March, the House of Lords voted in favour of a new plan with a majority of 227 (287 to 60).Under this scheme, everyone renewing a passport from 2008 would be issued an ID card and have their details placed on the national ID card database. The Government said that until 2010, people could choose not to be issued a card, though they would still have to pay for one, and still be placed on the database.

The Bill receivedRoyal assenton 30 March 2006.

Timescale and implementation progress

On 11 October 2006, the Labour government announced a timescale described as "highly ambitious" by computer experts.TheHome Officeannounced that it would publish an ID management action plan in the months from November 2006, followed by agreements with departments on their uses for the system. There was to be a report on potential private sector uses for the scheme before the 2007 Budget.

On 25 September 2006, Home Office Minister Liam Byrne said that "There are opportunities which give me optimism to think that actually there is a way of exploiting systems already in place in a way which brings down the costs quite substantially".

Emails leaked in June 2006 indicated that the plan was already in difficulty, with plans for the early introduction of a limited register and ID card with reduced biometrics known as the "early variant" described as a "huge risk".

Due to the costs of developing a new system from scratch, in 2007, the Government approved an alternative plan to use theDepartment for Work and PensionsCustomer Information System to store the biographical information, linked to a new database to store biometrics, despite concerns over issues of inter-departmental governance, funding and accountability which were never resolved.

The schedule for putting passport applicants' and renewers' details on the National Identity Register (NIR) was never announced. A nationwide network of 68 interview offices for first-time passport applicants started opening in June 2007 and was subsequently completed. The interview consisted mainly of asking applicants to confirm facts about themselves, which someone attempting to steal their identity may not know. The government stated that all personal information used in the interview not required for the application was destroyed shortly after the passport was issued.Fingerprints were not taken. Plans to take iris scans were dropped, although the Government had not ruled them out as a future option.

In March 2008, theHome Secretaryannounced that people could choose to have an identity card, a passport, or both when they became available (although they could not opt out of having their details recorded on the NIR). On 25 November 2008, people making applications to remain in the United Kingdom as a student or based on marriage were required to have an identity card. Under those plans, it was estimated that by the end of 2014–15 about 90% of all foreign nationals would have been issued with one. On 22 January 2008, the Home Office confirmed that large numbers of cards would not be issued until 2012; however, ID cards were issued to workers in critical locations, starting withairsideworkers inManchesterandLondon Cityairports in 2009, and young people were being offered cards in 2010.

A leaked document, published on 29 January 2008, suggested that "universal compulsion should not be used unless absolutely necessary... due the need for inevitably controversial and time-consuming primary legislation" but that "various forms of coercion, such as designation of the application process for identity documents issued by British ministers (e.g. passports) were an option to stimulate applications in a manageable way".

In January 2008, theFinancial Timesreported thatAccentureandBAE Systemshad withdrawn from the procurement process.Fujitsu Services,CSC,EDS,IBM,SteriaandThales Groupwere still negotiating framework agreements with the government.On 1 August 2008, it was confirmed that Thales Group was awarded a four-year contract to work on the design, building, testing and operation of the National Identity Scheme.

On 25 September 2008,Jacqui Smithunveiled replicas of the first actual cards to be issued as residence permits to foreign nationals.

The first to receive ID cards were foreign nationals, from 25 November 2008. National Identity Cards for British nationals became available to people resident in the Greater Manchester area on 30 November 2009.Ordinary British citizens were then meant to be offered (on a voluntary basis) ID cards from 2011 to 2012.A Home Office minister,Meg Hillier,said that they would be a "convenient" way for young people to prove their age when going to bars and that at £30 they were cheaper than purchasing passports (£77.50 at the time).

Although in later rollout stages, it was envisioned that retailers could accept applications and be able to charge processing fees; the total cost to applicants was expected to be £60 per card.

In December 2009, while on a trip to promote identity cards, then Parliamentary Under-Secretary for IdentityMeg Hillierhad to admit she had forgotten hers and was left unable to display one for photographers.TheManchester Evening Newsrevealed in 2010 that senior Whitehall officials were urged to email friends and relatives encouraging them to buy cards, because of fears about the level of demand.

Identity card for foreign nationals (Biometric Residence Permit)

Originally called theIdentity Card for Foreign Nationalswhich was blue and pink in colour,was continued and renamed theBiometric Residence Permit,still issued as of 2024. It followed the common EU format until theUK's exit from the European Union.

Their issuance began in November 2008 when non-European Unionforeign nationals with permission to stay in the UK on the basis of a student visa or a marriage/civil partnership visa would, when applying to extend their stay, be required to apply for an ID card. This was later expanded to all non-EU residents.

Initial rollout

The initial rollout began on a regional basis, first in Greater Manchester. The cards were voluntary and cost £30 and were issued by the Identity and Passport Service, until its eventual cancellation.

• October 2009: Greater Manchester residents– applications opened to all residents of Greater Manchester
• November 2009: Air industry staff– a pilot scheme involving free, voluntary ID cards for airside workers at Manchester and London City airports.
• January 2010: North West England-applications opened to residents in Cheshire, Merseyside, Lancashire and Cumbria
• February 2010: Young London residents– applications opened to all residents of London aged 16–24 who already had a passport or a recently expired one.
• February 2010: Citizens over the age of 16 if registered for IPS newsletter updates– 21,000 people were registered for updates at the time

Planned wider rollout

• Young people opening bank accounts (voluntary)– in 2010, young people would have been encouraged to get ID cards when they opened bank accounts.
• Citizens over the age of 16 applying for a passport(voluntary)intended in 2011–2012, optional, but applicants' details would have been entered into the National Identity Register

2010 general election

During the2010 general electioncampaign, the publishedmanifestos of the various partiesrevealed that the Labour Party planned to continue the introduction of the identity card scheme, while all other parties pledged to discontinue plans to issue ID cards. The Conservative Party also explicitly pledged to scrap the National Identity Register, while the wording of several other manifestos implied that this may have been the position of certain other parties too.

Ending of the scheme

Main article:Identity Documents Act 2010

In theConservative–Liberal Democrat coalition agreementthat followed the 2010 general election, the new government announced that they planned to scrap the ID card scheme, including the National Identity Register (as well as the next generation of biometric passports and theContactPointdatabase), as part of their measures "to reverse the substantial erosion of civil liberties under the Labour Government and roll back state intrusion."

In a document published in May 2010 at the time of theQueen's Speech,the new Government announced that the scrapping of the scheme would save approximately £86 million over the following 4 years, and avoid a further £800 million in maintenance costs over the decade which were to have been recovered through fees.

TheIdentity Documents Act 2010was announced on 27 May 2010, passed by the House of Commons on 15 September 2010 and received Royal Assent on 21 December 2010. Section 1(1) of the Identity Documents Act repealed the Identity Cards Act 2006 on 21 January 2011 (making ID cards invalid) and mandated the destruction of all data on the National Identity Register by 21 February 2011.

In May 2010 the Identity and Passport service stopped accepting applications for identity cards.On 21 January 2011, identity cards already issued became invalid, despite the cards themselves stating a 10 year expiry.

In all around 15,000 National Identity Cards were issued until the act was repealed in 2011. A banker fromGermanywith joint British and Swiss nationality was arguably the last person to officially use the ID card on a flight fromDüsseldorftoManchesteron 21 January 2011, landing 90 minutes before the scheme was officially scrapped at midnight. No refunds were offered to cardholders who paid £30 for the card.

The National Identity Register was officially destroyed on Thursday, 10 February 2011, when the final 500 hard drives containing the register were shredded atRDCin Witham, Essex.

Some aspects of the original Identity Cards Act were continued includingbiometric British passportsas well as theIdentity Card for Foreign Nationals,which were renamed and continued asBiometric Residence Permits(BRP). The new Identity Documents Act 2010 allows private companies to issue proof of age cards, under thePASS scheme.PASS scheme cards are not usable as identification in most circumstances except for purchasing age-restricted items.

Historical and international comparisons

ID cards during the World Wars

A mid-20th century ID card

Compulsory identity cards were first issued in the United Kingdom duringWorld War I,and abandoned in 1919. Cards were re-introduced duringWorld War IIunder theNational Registration Act 1939,but were abandoned seven years after the end of that war, in 1952,amid widespread public resentment. The National Register became the National Health Service Register and is maintained to this day. Wartime alphanumeric identity numbers continued to be used asNHS numbersuntil 1996, when they were replaced by new fully numeric identifiers.

The World War I identity card scheme was unpopular, though accepted in the light of the prevailing national emergency. It is possible to take a small measure of how the national identity scheme was received from remarks by the historianA. J. P. Taylorin hisEnglish History, 1914–1945,where he describes the whole thing as an "indignity" and talks of theHome Guard"harassing" people for their cards.

After the Second World War the government ofClement Attleedecided to continue the scheme in the face of theCold Warand the perceived Soviet threat, though it grew ever less popular.Identity cards also became the subject of a celebrated civil liberties case in 1950.Harry Willcock,a member of the Liberal Party, refused to produce his after being stopped by the police. During his subsequent trial he argued that identity cards had no place in peacetime, a defence rejected by the magistrate's court. In his subsequent appeal,Willcock v Muckle,the judgment of the lower court was upheld.

Protest reached Parliament, where the Conservative and Liberal peers voiced their anger over what they saw as "Socialist card-indexing". After the defeat of the Labour Government in thegeneral election of October 1951the incomingConservative administrationofWinston Churchillwas pledged to get rid of the scheme, "to set the people free", in the words of one minister. Cheers rang out when on 21 February 1952 the Minister for Health,Harry Crookshank,announced in the House of Commons that national identity cards were to be scrapped. This was a popular move, adopted against the wishes of the police and the security services, though the decision to repeal the 1939 legislation was, in significant part, driven by the need for economies. By 1952 national registration was costing £500,000 per annum (about equivalent to £18,200,000 in 2023) and required 1500 civil servants to administer it.

International comparisons

Identity cards

Identity cards are issued in every EU/EEA countryexcept for Denmark and Ireland. However, since 2015, Ireland issues apassport cardwith similar properties to an identity card and Danish municipalities issue simpler identity cards (which are not valid for international travel). They are compulsory in 14 EU countries, voluntary in 9 countries and in 8 countries they are semi-compulsory (some form of identification required). They can be used to travel within the EU/EEA.

During the British Presidency of the EU in 2005, a decision was made to "agree common standards for security features and secure issuing procedures for ID cards (December 2005), with detailed standards agreed as soon as possible thereafter. In this respect, the British Presidency has put forward a proposal for EU-wide use of biometrics in national ID cards."In 2019, aharmonised modelfor identity cards in the EU was adopted and was in force in 2021, introducing biometric functionality and a standardised format.

Generally, mostcountries in the world issue identity cards,with the exception generally being countries in theanglosphere.For example,Australiastarted work on ahealth and social services access card,but the government elected in the2007 federal electioncancelled it. However an exception is theUS passport cardis issued with similar properties to an identity card.

Biometrics in identity and travel documents

There has been an international move towards the introduction of biometrics into identity and travel documents. TheICAOhas recommended that all countries adoptbiometric passports,and theUnited Stateshas made it a requirement for entering the US under the visa waiver programme. Biometric passports are issued in many countries, including inBritish passports.Internationally, the only requirement for biometric passports is a digital photograph.

System

Legal requirements

Under the NIS, residents who wanted or were required to apply for an ID card would have been required to fulfil certain functions:

• Attend in person to have their fingerprints recorded at one of the Identity & Passport Service's high street partners.
• Promptly inform the police or Identity & Passport Service if a card is lost or damaged, and apply for a new card.
• Promptly inform the Identity & Passport Service of any change of address.
• Promptly inform the Identity & Passport Service of any prescribed change of circumstances affecting the information recorded about them in the Register.

Failure to do so would have meant a penalty of up to £1,000 or a shortened permission to stay.

National Identity Register

Key to the ID Card scheme was a centralised computer database, the National Identity Register (NIR). To identify someone it would not have been necessary to check their card, since identity could be determined by a taking a biometric scan and matching it against a database entry.

ID cards for foreign nationals were produced by the Driver and Vehicle Licensing Agency (DVLA) in Swansea on behalf of the Home Office.

Identity Registration Number

One entry on the NIR was the Identity Registration Number. The Home Office had recognised that a unique identifier was needed as aprimary keyfor the database.

The Home Office's Identity Cards Benefits Overview documentdescribed how the IRN would have enableddata sharingamongst police, legal and corporate databases (including bank and travel operators).

Types of cards

Three types of identity cards were issued:

• TheNational Identity Card,which was lilac and salmon in colour, was issued to British citizens only. It contained the text "British Citizen" and was a valid travel document for entry into any EEA state and Switzerland until its invalidation in 2010.
• TheIdentification Cardwas turquoise and green in colour and did not mention the holder's nationality. It was issued to EU, EEA and Swiss citizens living in the UK (including Irish citizens living in Northern Ireland). It was also issued to certain family members of EU/EEA citizens, to British citizens to whom certain conditions or restrictions apply, and as an additional card to a person living in twogender roles.
• TheIdentity Card for Foreign Nationalswas blue and pink in colourand was issued to certain categories of immigrants from non-EU/EEA countries. They were renamed and continued in the form of Biometric Residence Permits.

Use as travel document

Until midnight on 21 January 2011, the National Identity Card was officially recognised as a valid travel document by theEEAandSwitzerland,following which the United Kingdom instructed immigration authorities therein to cease accepting it as a valid travel document. It also became accepted voluntarily by a number of other European countries but its current validity in these additional countries remains unclear, given that its acceptance and subsequent denial by these countries was never mandated by the United Kingdom through EU or EEA channels. It was the only travel document valid for use by British nationals throughout theEEAandSwitzerland,other than a valid British citizen passport or a pinkGibraltar identity card.The exception to this was for travel to theRepublic of Ireland.All British citizens are entitled to enter the Republic of Ireland without the need to carry a valid travel document, on account of theCommon Travel Areaagreement, though in practice, theIrish Naturalisation and Immigration ServiceorGarda Síochánasystematically require proof of identity from all travellers landing in Irish airports from the UK.

• European Union
• Iceland(EEA)
• Liechtenstein(EEA)
• Norway(EEA)
• Switzerland

It became accepted also by:

• Albania
• Andorra"Any travel document recognised by France or Spain"
• Bosnia and Herzegovina
• Croatia
• Faroe Islands
• North Macedonia
• Monaco
• Montenegro
• Morocco(only for tours organised by a travel agency for groups of more than three people)
• San Marino
• Serbia
• Vatican City

It was also accepted as a travel document to enterthe British Crown Dependenciesand theBritish Overseas Territories:

• GibraltarPart of EU
• GuernseyPart of Common Travel Area — no travel document required to enter from the UK. (NB: Air travellers require photo ID for airline security purposes.)
• Isle of ManPart of Common Travel Area — no travel document required to enter from the UK. (NB: Air travellers require photo ID for airline security purposes.)
• JerseyPart of Common Travel Area — no travel document required to enter from the UK. (NB: Air travellers require photo ID for airline security purposes.)

All other overseas territories require a fully valid passport. Of the two countries closest to the UK not to accept British ID cards,UkraineandBelarus,the latter requires not only a passport but also for British citizens to obtain a visa in advance (except if entering and exiting through Minsk airport and staying for max 5 days).

Initially, some travel companies initially refused to carry passengers with UK National Identity Cards due to their novelty.

Reaction

The announcement of the scheme had seen a mixed reaction from both the public and from figures connected to terrorism and law enforcement.

Public reaction

For a detailed account of opinion polls concerning the National Identity Card, seeOpinion polls on the British national identity card.

Over a period of time, public opinion, as measured by opinion polls, appears to have shifted away from support for the scheme towards opposition. This appeared to have become more of a concern since the disclosure of theloss of 25 million recordsbyHM Revenue and Customs.

In 2003, the announcement of the scheme was followed by a public consultation exercise, particularly among 'stakeholder groups'. At March 2003 the government stated that the overall results were:

in favour: 2606 responses (61%)

against: 1587 responses (38%)

neutral: 48 responses (1%)

By July 2006, an ICM pollindicated that public support had fallen to 46%, with opposition at 51%.

A further poll byYouGov/Daily Telegraph, published on 4 December 2006, indicated support for the identity card element of the scheme at 50%, with 39% opposed. Support for the national database was weaker, with 22% happy and 78% unhappy with the prospect of having their data recorded. Only 11% trusted the government to keep the data confidential. 3.12% of the sample were prepared to undergo long prison sentences rather than have a card.

Terrorism and crime

Eliza Manningham-Buller,the former head of Britain's counter-intelligence and security agencyMI5was on record as supporting the introduction of identity cards, as wasSir Ian Blair,former Commissioner of theMetropolitan Policeand his predecessor, Sir John(now Lord) Stevens.TheAssociation of Chief Police Officerswas also supportive.

However, in November 2005,DameStella Rimington,who wasDirector GeneralofMI5before Eliza Manningham-Buller, questioned the usefulness of the proposed scheme. This intervention caused a good deal of controversy amongst supporters and opponents of the scheme, especially as Manningham-Buller stated that ID cards would in fact disrupt the activities of terrorists, noting that significant numbers of terrorists take advantage of the weaknesses of current identification methods to assist their activities.

Lord Carlilewas appointed after 11 September attacks on New York and Washington in 2001 to independently review the working of theTerrorism Act 2000and subsequent anti-terrorist laws.Talking onGMTVon 29 January 2006, he expressed his views on the proposed legislation, sayingthat ID cards could be of limited value in the fight against terrorism but that Parliament had to judge that value against the curtailment of civil liberties. Speaking on the same programme, Lord Stevens of Kirkwhelpington, former Met Police Commissioner, argued in favour for the need for identity cards, saying they had benefits in tackling serious crimes, such as money laundering and identity theft.

Objections to the scheme

Costs

The estimated 10-year cost of the biometric identity and passport scheme was £5.612bn, in November 2007.Much of the cost involved was due to the introduction and production of biometric passports, which became standard worldwide and British passports were continued to be issued biometrically. Up to 70% of the total cost was due to biometric passport issuances.

By the time the Act was repealed, the Home Office stated that £257 million had been spent specifically on implementing identity cards.

Independent studies including one by theLondon School of Economicshad suggested that total costs of implementing the biometric identity and passport scheme could be as much as £10.6 billion to £19.2 billion, with an estimated £814 million to £1,200 million from costs directly attributed to ID card issuance.The reliability of this study was challenged by the Labour Government which disputed some of the assumptions used in the calculations, such as the need to retake biometric information every 5 years. The government argued that this assumption had not been supported by any research in the London School of Economics report, and that biometric experts quoted in the LSE reports had sought to distance themselves from its findings. The Government also claimed that the authors of these estimates were established opponents to the scheme and could not be considered unbiased academic sources.

Tony McNulty,Home Officeminister who was responsible for the scheme, responded by saying a "ceiling" on costs would be announced in October 2005.There were indications that the Labour Government was looking at ways of subsidising the scheme by charging other Government Departments, with the implication that this would result in increased charges for other Government services to individuals or businesses.

The Labour Government abandoned plans for a giant new computer system to run the national identity card scheme. Instead of a single multibillion-pound system, information was held on three existing, separate databases.

An estimate from the Home Office placed the cost of a passport and ID card package at £85, while after the 2005 general election in May 2005 they issued a revised figure of over £93,and announced that a standalone ID card would cost £30.In 2009, it was announced that retailers would be collecting fingerprints and photographs, and that they would be able to charge for this, meaning that the total cost for a standalone ID card was expected to be up to £60.

Effectiveness

The then Home SecretaryDavid Blunkettstated in 2004 said the cards would stop people using multiple identities and boost the fight against terrorism and organised crime. However, human rights group Liberty disputed this, pointing out that the existence of another form of ID cards in Spain did not prevent theMadrid train bombings.

However, Blunkett subsequently made a significant U-turn. At his opening speech for Infosecurity Europe on 27 April 2009, he stepped back from the concept of a full National Identity Database for every citizen, saying it would be sufficient to improve the verification of passports.

His successor,Charles Clarke,said that ID cards "cannot stop attacks", in the aftermath of the7 July 2005 London bombings,and added that he doubted it would have prevented the atrocities. However, he felt that on the balance between protecting civil liberties and preventing crime, ID cards would help rather than hinder.

Ethnic minorities

The Government's Race Equality Impact Assessmentindicated significant concern among ethnic groups over how the police would use their powers under an Identity Cards Act 2006, with 64% ofblackand 53% of Indian respondents having expressed concern, particularly about the potential for abuse anddiscrimination.In their January 2005 reporton the Bill, theCommission for Racial Equalitystated that the fear of discrimination is neither misconceived nor exaggerated, and note that this is also an ongoing issue inGermany,theNetherlandsandFrance.

The CRE were also concerned that disproportionate requirements by employers and the authorities for ethnic minorities to identify themselves may lead to a two-tiered structure amongst racial groups, with foreign nationals and British ethnic minorities feeling compelled to register while British white people do not.

According to the CRE, certain groups who move location frequently and who tend to live on low incomes (such asGypsies,travellers,asylum-seekersandrefugees) would risk being criminalised under the legislation through failing to update their registration each time they moved due to lack of funds to pay the fee that may be charged.

Concerns raised by the Information Commissioner

In a press release on 30 July 2004,Richard ThomastheInformation Commissioner's Officestated that a NIR raised substantial data protection and personal privacy concerns. He sought clarification of why so much personal information needed to be kept as part of establishing an individual's identity and indicated concern about the wide range of bodies who would view the records of services individuals have used. The Commissioner also pointed out that those who renew or apply for adriving licenceorpassportwere to be automatically added to the National Identity Register, and so would lose the option of not registering. He subsequently stated: "My anxiety is that we don't sleepwalk into asurveillance society." In February 2003, onBBC Radio 4'sTodayprogramme,he warned that ID cards could become a target for identity theft byorganised crime.

Human rights

On 2 February 2005, the British Parliament'sJoint Committee on Human Rightsquestioned the compatibility of the Bill withArticle 8of theEuropean Convention on Human Rights(the right to respect for private life) and Article 14 (the right to non-discrimination),both of which are encapsulated in theHuman Rights Act 1998.

Feature creep

Even without new primary legislation, the Identity Cards Act 2006 allowed the potential scope of the scheme to be much greater than that usually publicised by the Government.

For example, Gordon Brown was reported to be "planning a massive expansion of the ID cards project that would widen surveillance of everyday life by allowing high-street businesses to share confidential information with police databases." Francis Elliott reporting on the development forThe Independentnoted that "police could be alerted as soon as a wanted person used a biometric-enabled cash card or even entered a building via an iris-scan door".

The wartime National Registration ID card expanded from 3 functions to 39 by the time it was abolished.

Concerns had also been raised following Tony Blair's response to an ID card petition stating that the fingerprint register would be used to compare the fingerprints of the population at large against the records of 900,000 unsolved crimes. Opposition MPs claimed that the use of thebiometricdata in this way would directly breach promises given during the Commons debate that there would be adequate safeguards preventing the use of ID card data for "fishing expeditions".

Database extent and access

Home Office forecasts envisaged that "265 government departments and as many as 48,000 accreditedprivate sectororganisations "would have had access to the database, and that 163 million identity verifications or more would take place each year. However, the IPS had stated that only the data needed for the passport would have been keptand that organisations that have permission to access the data held on the Register could only have done so with the individual's permission, unless to prevent or investigate a crime.

Vulnerable individuals

The CRE had also recommended that more work was required to protect the interests of vulnerable individuals. For example, people escaping fromdomestic violenceor aforced marriagemay have been at risk if their previous names or addresses were disclosed. Minister Meg Hillier, in a letter toThe Spectatormagazine, claimed that as the ID card would not have someone's address on it, it would protect such a person's privacy in a way currently unavailable.

Identity theft

In May 2005,Tony Blairsaid "ID cards are needed to stop the soaring costs ofidentity theft".However, security experts claimed that placing trust in a single document may make identity theft easier, since only this document needs to be targeted.

Technology

Elsewhere, doubts remained concerning the technological ability of the scheme. Tests offacial recognition softwaredating from 2006 showed error rates of up to 52 per cent for the disabled.

Opposition campaigns

In May 2006,NO2IDlaunched the "Renew for Freedom" campaign,urging passport holders to renew their passports in the summer of 2006 to delay being entered on theNational Identity Register.This followed the comment made byCharles Clarkein theHouse of Commonsthat "anyone who feels strongly enough about the linkage [between passports and the ID scheme] not to want to be issued with an ID card in the initial phase will be free to surrender their existing passport and apply for a new passport before the designation order takes effect".

In response, the Home Office said that it was "hard to see what would be achieved, other than incurring unnecessary expense" by renewing passports early.However, thecost of a non-biometric passportwas £51 at the time, then increased in 2006 and 2007 to £72 and was due to rise to £93 after the introduction ofbiometric passports.

On 14 November 2007, theNO2IDopposition group called for financial donations from the 11,360 people who had pledged to contribute to a fighting fund opposing the legislation.The organisation planned to challenge thestatutory instrumentsthat were planned to be brought in to enable the ID card scheme.

Baroness WilliamsandNick Cleggsaid in 2007 that they would take part in civil disobedience campaigns by refusing to register for an ID card, or to attend photographic sittings.

Scotland

Although policy on passports and the National Identity Scheme was not an area devolved to theScottish Government,on 19 November 2008, theScottish Parliamentvoted to reject the ID card scheme,with no votes against thegovernmentmotion,and only theScottish LabourMSPsabstaining.In 2005, the previous Labour-Liberal Democrat coalition government had stated that "the proposals for an identity card scheme confine themselves toreserved policy areasonly ",and that ID cards will not be needed to accessdevolvedservices in Scotland, e.g.health,education,thelegal systemandtransport.However theScottish National Entitlement Cardis required to obtain concessionary travel. It can also be used as Proof of Age for young people (Young ScotNEC) and give access to civic services such as libraries and leisure centres depending on the local authority.

Northern Ireland

The introduction of compulsory ID cards to Northern Ireland would likely have provoked serious opposition given the largeNationalistcommunity who regard themselves as Irish and not British.In an effort to counter this, the British Government decided not to include theUnion Flagon the card, and had stated that a separate card will be issued to Northern Irish people who identify their nationality asIrish.The separate card would not have included any statement of nationality and could not have been used as anEEA travel document(as only theIrish Governmentmay issue travel documents for Irish citizens, wherever resident). Home Secretary Alan Johnson had also stated that the inclusion of Northern Irish people on the National Identity Register of British citizens would not have prevented such people from claiming fullIrish citizenship rights.

See also

• Opinion polls on the British national identity card
• Identity document
• "Kiss Ya Lips (No I.D.)",a protest song byIan Brown
• National Insurance number
• Human rights in the United Kingdom
• Common Travel Area
• Schengen Information System
• Mass surveillance in the United Kingdom
• Work card
• Scottish National Entitlement Card

External links

• Map of centresSeptember 2006
• Online Debate – ID cards and the National Identity Register should be scrappedAugust 2007
• UK Borders Agency website information on ID cards for foreign nationals
• Types of identity cardIPS page describing what the different cards look like

News stories

• 22 November 2007,BBC,Is Brown re-thinking ID cards?
• 22 November 2007,BBC,Cameron calls for ID cards halt
• 14 September 2006,epolitix.com,Minister defends data-sharing scheme
• 7 August 2006,Guardian,Hackers crack new biometric passports
• 14 June 2006,epolitix.com,Amnesty for illegal immigrants once identity cards in place?
• 24 May 2006,BBC,Lib Dems back the "Renew for Freedom" campaign
• 4 April 2006,The Register,Passport rule change anticipates ID refusenik sabotage efforts
• 30 March 2006,BBC,Identity cards will be made compulsory if Labour wins the next election
• 13 February 2006,The Daily Mirror,Motorists could soon be forced to carry an ID card
• 30 January 2006,BBC,Transsexuals 'to get 2 ID cards'
• 17 January 2006,The Times,Peers deal Blair blow over '£19bn cost of ID cards'
• 8 December 2005,Guardian,A pan-European ID card will make a bad idea even worse
• 17 November 2005,BBC,Ex-MI5 chief sparks ID card row
• 18 October 2005,The Scotsman,Microsoft security officer: ID cards will lead to 'massive fraud'
• 12 October 2005,The Register.support for ID cards collapses
• 4 August 2005,BBC,Labour admits ID card 'oversell'
• 8 July 2005,BBC,Chales Clarke: ID cards wouldn't stop bomb attacks
• 5 July 2005,The Register,"Clarke's ID card cost laundry starts to break surface"
• 3 July 2005,The Observer,Rebels ready to face prison over ID cards: Refuseniks will copy Australian tactics to foil scheme
• 2 July 2005, Muriel Gray inThe Guardian,Nobody has nothing to hide: Identity cards will deprive the innocent of one of their most basic rights
• "ID cards 'will reveal detail of daily life'"– Information commissioner warns of surveillance society
• December 2004GuardianLegal advice on ID cards kept secret
• December 2004GuardianIf you value your freedom, reject this sinister ID card
• April 2004TimesIt is right to experiment with identity cards
• April 2004BloombergIdentity Card Will Make Fraud Easier
• July 2003StatewatchIdentity cards in the UK – a lesson from history
• July 2002Daily Telegraph£70 ID card to combine passport and car licence
• September 2001GuardianID cards might solve asylum crisis

Guides

• March 2005London School of EconomicsAn Assessment of the UK Identity Cards Bill and its Implications
• February 2005Bow Group reportThe Case Against ID Cards, by Rt Hon Peter Lilley MP
• December 2004BBCIdentity card Q&A
• June 2004ElectricincaAn analysis of the British national identity card
• May 2004The RegisterEverything you never wanted to know about the UK ID card
• November 2003GuardianQ&A
• September 2001TelegraphThe case for and against identity cards
• Trevor MendhamUK ID Cards – the case against
• A map of the debate on UK ID cards and the related ID databases "",Debategraph

Opposition groups

• No2ID: UK campaign against ID Cards and mass surveillance
• Defy-ID
• Liberty – human rights concerns
• Reform
• idFolly
• Haringey Against Identity Cards