UK Passport to only include a digital photo but costs set to double

Privacy International

29/03/2005

In an eagerly awaited announcement, the UK Home Office declared that new passports may be issued from the end of this year. These 'ePassports'will include a scanned image of the face of the individual, i.e. a digital photograph on a chip. It was previously thought that these new passports would also include extended information such as fingerprints and iris scans, but these plans have been abandonned for the moment. There will be an interview for first-time applicants, however. These announcements followed the release of the five-year plan from the Passport Service.

This is a surprising development as the Government continually argued that the national ID card was an inevitability because of the international obligations placed upon the UK to develop biometric passports (see the LSE interim report for an analysis of the speeches by Home Office Ministers, the Home Secretary, and the Prime Minister). In its enrollment trial last summer, the Passport Service captured iris scans, fingerprints, and facial scans. The final report of that trial still has not been released, even ten months later and following debates in Parliament. Now it appears that these ePassports will contain little more than a digital photograph.

The Government is still claiming that ID cards will be built on top of the passport infrastructure, however. According to Home Office Minister Des Browne,

"The UKPS plans set out how the agency will make British passports even more secure and how it will continue to provide a first-rate service to the public. This programme of work will significantly improve the integrity of the UK passport, helping to tackle fraud and ensuring that the UK remains at the forefront of the international drive to improve document security.
"These changes will also lay the foundations for the Government’s proposed national identity cards scheme – which would help tackle identity fraud, organised crime, illegal immigration, and terrorism, as well as making it easier for UK citizens to travel and to carry out everyday transactions securely and conveniently. The UKPS would be a key part of the new Home Office agency that would be established to run the scheme."

UKPS Chief Executive Bernard Herdan said:

"The UK Passport Service’s Integrated Change Programme will put in place key building blocks for the identity cards programme, at the same time as delivering major improvements in the passport issuing process and the document itself.
"Our vision remains focused on stronger identity authentication to continue to provide even better customer service by safeguarding our customers’ identities and reflecting our intended future role in the Government’s identity cards scheme."

It remains unclear how exactly the Passport Service will be implicated in the card scheme if the Passport Office is not required to collect additional biometrics for the passport, or if it will be required to create the national identity register.

This is likely to be a setback for the Government's initiative on identity cards since it can no longer confuse the identity card with the passport. However, in our review and analysis of the Passport Service's five-year plan, released the last day before the Easter holidays, we find that the Government is insisting on its strategy of confusion. By doing so, it is hoping to conceal the fact that passports are going to cost almost twice as much as they do now even without the additional burden of issuing an ID card and collecting secondary biometrics. And the Passport Service is going to be late in meeting the U.S.-imposed deadline for biometric passports, subjecting Britons to applying for visas beginning in the fall of 2005.

Previously, Britons were going to face a higher cost for passports because the Government was trying to conceal the identity card costs within the passport costs. Now, because the Government and the Passport Service have confused identity cards and passports, passports are going to cost almost double, even without the identity card.

On Biometrics

The Passport Service, and the Government, finally accepts that a biometric passport need only consist of a digital photograph. Previously this was ambiguous due to the pressure to build the backbone for the proposed identity card. The change in direction towards a single biometric is probably due to the timing problem of the U.S. deadline (requiring that such passports be issued by October 2005) and because of the likely surge of applications for the next two years (as predicted by the Passport Service).

However the Passport Service does intend to complete trials of including a second biometric and intends to implement it by late 2007. (Figure 2.5, p.17). It remains confused as to which biometric, however:

on page 19 it says fingerprints and iris scans may be required
later in that same page they claim that 'we expect to add fingerprint scans'
on page 26 they again confuse international requirements with the UK Government's identity card scheme, saying that fingerprints are required by international standards.

At this rate, the digital-photograph-on-a-chip 'ePassport' will only be introduced by mid-2006, which is already late. This delay will likely cause trouble for travellers to the U.S., and it is worth asking why the UK is so far behind on the ePassport scheme. This is most likely because it has been toying with the additional biometrics because of the Home Office pressure to develop biometric identity cards.

[Key task for 2005/6]: to complete a study of the likely benefits and implementation options for additional biometrics which may be used to eliminate duplicate identities and be incorporated in ePassports, as required by new international standards, by the end of Second Quarter 2005 (p.9)

[Key task for 2005/6] to begin the production of a new design ePassport with additional security features and containing a biometric chip, by Fourth Quarter 2005, and complete roll-out by Second Quarter 2006

On International Obligations

For quite some time, Ministers have been claiming that biometric identity cards are inevitable because of international obligations to develop biometric passports. This is an incorrect interpretation of the international standards and obligations, however.

As stated above, it appears that finally the ePassport will only involve a digital photograph on a chip, when previously ministers implied that it would involve iris scans and fingerprints.

However, the Passport Service is continuing to confuse international obligatoins with political interests. At times the Passport Service claims that international obligations require digital photos, then other times fingerprints, and other times, iris-scans.

The International Civil Aviation Organisation (ICAO) has agreed that in future passports should, at a minimum, include a facial biometric relating to the passport holder. The threat of terrorism has also prompted the United States to require those countries that wish to participate in the Visa Waiver Program to have in place a programme to put biometric chips in their passports by October 2005. The deadline for this was previously October 2004, but it had to be extended, as the appropriate technological solutions were not available in all countries. (p.12)
These circumstances have forced many of the visa waiver countries (including the UK) to accelerate plans to put chips carrying data and a facial image biometric in their passports, which will have the benefit of making such documents more secure. (p.12)
The recently established European Union standards for passports require EU Member States to include in their passports both a facial image and fingerprint scans, as well as various other security features. The UK is currently considering its requirements in light of the EU standards; these will probably impact on future UK passport designs, and fingerprint scans are likely to be incorporated into the passport chip later in the decade. (p.13)
The new British ePassport will employ leading-edge technology to ensure a secure, high-integrity design that is fully compliant with ICAO standards for passports with facial biometrics. We will also be investigating the implications of a further development to incorporate fingerprint biometrics in future, in line with emerging European Union standards. (p.25)
[Identity Authentication key tasks and performance indicators] to complete, by the end of Second Quarter 2005, a study of the likely benefits and implementation options for additional biometrics, which may be used to eliminate duplicate identities and be incorporated in ePassports, as required by new international standards.
The moves towards additional biometrics are driven by European and international standards for passports, and by the potential introduction of identity cards in the future. (p.37)

The Passport Office does note that while it is obliged to adhere to internaitonal obligations, it also is busy creating these standards.

We remain committed members of the Five Nations group of countries, and will benchmark our activities with others in this group and across the EU. In doing so, and in working with the rest of the Home Office, we will seek to ensure that UK interests are effectively represented in the EU’s development of standards for travel documents. We are also active members of the ICAO, and will continue to drive forward and support the development of international passport standards worldwide. (p.14)

This policy laundering confuses the political goals of the Home Office and the Passport Service's international goals to adhere to agreed-to rules established in international bodies.

On Authentication, Enrollment, and Identification

As part of the fraud-detection strategy, the Passport Service will also collect biographical information.

We plan to continue to strengthen our present arrangements for identity authentication. Improved identity authentication will provide a better service to our customers by offering greater identity protection. By using ‘biometric’ (e.g. facial photograph, fingerprints and/or iris scan), ‘attributed’ (e.g. place and date of birth and parents’ details) and ‘biographical’ (e.g. address history) information, we enhance our capabilities to prevent and detect fraud. (p.3)

The Passport Service intends to introduce more thorough enrollment processes for new passport holders. This will involve registration centres and in-depth interviews with each application.

From late 2006, it is planned that all first-time applicants will be required to attend a face-to-face interview as part of the application process. This will be known as Authentication by Interview (AbI). During the period to launch we will be opening a network of offices located so as to minimise the travel requirements of applicants. It is planned that the offices will strike a balance between convenience and cost: 97% of the population will have an office within 20 miles of their home, 2.4% between 20 and 40 miles away, and approximately 0.7% over 40 miles. For those with longer travel distances we will be investigating the practicalities of mobile facilities or peripatetic staff. Overall this will result in a significant investment in both infrastructure and staff to service a proposed network of approximately 70 to 80 offices. (p.3)
Authentication interviews for first-time applicants The project to implement a network of locations, processes and a system to support the interviewing of first-time applicants is underway. The interviews will also enable biometric information to be collected in future. Whilst this will provide better identity authentication, we recognise the need to make the process as convenient as possible for the customer. For this reason we will be opening approximately 70 offices nationwide to support the interviews of some 600,000 first-time applicants per annum. (p.19)

At the point of enrollment, the face of the individual will be compared to a database of faces of known fraudsters.

Facial recognition To detect fraudulent applications, facial recognition (FR) technology is being piloted. This compares each applicant’s facial image against our stop-file images of known fraudsters in order to complement current stop-file data checks. (p.19)

Eventually, the Passport Service foresees that these interviews will provide the opportunity to collect secondary biometrics (fingerprint or iris scans) for the identity card.

Personal Identification Project

The PS also intends to introduce the 'Personal Identification Project'. This will involve the collection, sharing, and mining of information from a variety of sources, including other government departments and the private sector to protect against fraud.

Through the Personal Identification Project (PIP), we are piloting the use of data sharing with the private sector and other government departments, to strengthen identity authentication. Our pivotal role in the Identity Cards Programme will ensure we continue to work in partnership with others in government as well as with the private sector, using the latest proven technologies and application channels to deliver modern services that meet customer expectations. (p.14)
Roll out of Personal Identification Project (PIP) We are currently trialling the use of access to private- and public-sector databases at one office (with applicant consent), to assess the operational implications and whether identity authentication is strengthened. The outcomes of this pilot have informed a plan to roll out PIP to all offices on a limited basis (i.e. all first-time adult applicants) and explore integration into our standard processes. Changes in legislation may be required to make this scheme fully effective. (p.18)
Equifax has a contract with UKPS until 2007 to provide the systems and private-sector data for PIP. The effectiveness of PIP and plans for the future roll-out are currently under review. (p.34)
To provide the UKPS with the capability to verify the identity of passport applicants and holders by accessing commercial databases and those of other government departments. Improving fraud detection and prevention by more detailed yet automated/rapid checks into applicants’ attributed and biographical information. This provides an infrastructure for identity verification that can be used by other government departments via data presented by a private-sector partner. (p.37)

Such a scheme will likely face technological and legal challenges. Legally, the sharing of this information is not currently permitted. Technologically, it is very difficult to interface with a variety of government departments and the private sector on a massive scale. Combined, the accuracy and integrity of this information is highly questionable. It sounds increasingly as though the PS is establishing itself as the central guarantor of identity within the UK Government, which will also create political challenges.

On ID Cards Scheme

The Passport Service is quickly transforming into a new institution. It seems more intent to focus on identity authentication than previously. Much of this can be attributed to the UK Government's insistence on Identity cards. The Passport Service and the Home Office are taking strategic steps to be prepare for identity cards even before Parliament has approved the necessary laws and regulations.

This will lead to the development of a new government department, merging the Passport Service with the Home Office Identity Cards Programme. This new department is an integral part of the 'route-map' to national identity cards.

Much of what the UKPS already does, and the content of the Integrated Change Programme described in this document, will potentially contribute towards the development of the Identity Cards Scheme, and planned UKPS developments over the next few years will help de-risk the Identity Cards Programme. We are currently defining the projects that potentially will be undertaken during the life of this Plan, projects that will form part of the UKPS’s ‘route map’ to the introduction of Identity Cards. These will be subject to change, particularly after 2006, as the shape and detail of the Identity Cards scheme is further developed. (p.25)

This is a transformation of the Passport Service into an identity department, and begins the confusion of the passport for the identity card.

Looking to the future, we have developed our vision: ‘to focus on stronger identity authentication for the purpose of issuing passports and providing identity services’. Our vision remains focused on stronger identity authentication, in order to continue to provide even better customer service by safeguarding our customers’ identities and reflecting our intended future role in the Government’s Identity Cards Scheme. We believe significant improvements in identity authentication and document security, both for passports and identity cards, will be reliant upon the inclusion of biometrics. The recent UKPS biometric trial has given good insight into the practical aspects of biometric enrolment, and was well received by the members of the public who participated. (p.2)
Assuming that the Bill to establish the Identity Cards scheme obtains parliamentary approval and royal assent, the intention would be in due course to establish a new Home Office Executive Agency to implement the scheme. The UKPS would become a key element of this Agency, which would subsume all the current UKPS functions and add the new ones needed to deliver the full Identity Cards Scheme. (p.2)
KEY TASKS AND PERFORMANCE INDICATORS FOR 2005/06:

to establish an integrated definition of the high-level requirements, business processes and blueprint of continued systems which would be needed to issue passports and identity cards and to deliver identity services

to establish a Transition Planning Project for a potential move from the current separate UKPS and Home Office Identity Cards Programme towards the formation of a single agency

to establish the detailed definition of a joint UKPS/Identity Cards Programme ICP

to establish a joint UKPS/Identity Cards Programme procurement strategy. (p.7)

A centralised database of all individuals is also becoming a key part of a 'route-map' for passports and identity cards. Again confusing its task of being responsible for passports as being responsible for UK Government identity systems, the Passport Office intends to create a database on all British citizens on a person-by-person basis, rather than the current database of all British passports, on a passport-by-passport basis.

Person-centric database The proposed introduction of a number of initiatives requires the UKPS to examine how we store data on passport holders. Current research has identified that there could be significant benefits in storing the data on a person-by-person rather than a passport-by-passport basis. (p.25)

All these programmes will have significant technological, legal, political implications.

On Costs

Because of the additional services involved with the ePassport and the move to identity cards, the cost of passports, in their current form with a single digital photo, are going to increase by 91%. According to figure 4.1 on page 30,

04/05

05/06

06/07

Passport Output ('000s)

6386

6910

6853

Average Unit cost per passport

35.60

42.36

67.93

This is a remarkable increase, and does not even include the costs of issuing the identity card with additional biometrics. This can not be entirely left to the cost of meeting international obligations, however, as the U.S. Government has proposed a maximum cost increase of 20% for new passports.

This is because of the confusion of passports for identity cards, and the resulting administrative costs.

The large increase in the average unit cost per passport in 2006/07 is based on a number of our improvement initiatives, in particular Authentication by Interview (AbI), the Personal Identification Project (PIP) and facial biometric chips (ePassports) being implemented completely. As explained throughout this Plan, these steps are essential if we are better to safeguard our customers’ identities.

These figures are all preliminary, however, and have not been agreed or approved by the Treasury.

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