世界银行-ID4D全球数据集第2卷：数字识别进展与差距

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14D

IDENTIFIcaTIONFORDEVELOPMENT

ID4D

GLOBALDATASET2021

Volume2|DigitalIdentificationProgress&Gaps

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I4D

IDENTIFIcaTIONFORDEVELOPMENT

ID4D

GLOBALDATASET2021

Volume2|DigitalIdentificationProgress&Gaps

AnnaMetz

ClaireCasher

JuliaClark

OTHERTITLESINTHEID4DGLOBALDATASET2021SERIES:

Volume1:GlobalIDCoverageEstimates

Volume3:TrendsinIdentificationforDevelopment

iii

CONTENTS

ABSTRACT

v

ABOUTID4D

vi

ACKNOWLEDGEMENTS

vii

EXECUTIVESUMMARY

viii

1.INTRODUCTION1

Context1

Purpose2

ScopeandLimitations2

2.MEASURINGDIGITALIDCAPABILITY4

Unpacking“DigitalID”4

DataandMethodology7

3.RESULTS&DISCUSSION12

DigitalData12

DigitalVerification13

OnlineDigitalIdentity14

4.LIMITATIONS16

5.CONCLUSION18

REFERENCES19

APPENDIX1.COUNTRYDATATABLE21

FIGURES

Figure1.NumberofPeopleWithoutAccesstoDigitalIdentificationxii

Figure2.EvolutionofIDEcosystems5

Figure3.DigitalCapabilitiesAcrossThreeDimensions7

TABLE

Table1.SummaryofDataSourcesbyIndicator8

iv|ID4DGLOBALDATASET2021:DIGITALIDENTIFICATIONPROGRESS&GAPS

v

ABSTRACT

Thispaperprovidesasnapshotofthedigitalcapabilitiesofgovernment-recognizedidentification(ID)systemsacrossthreedimensions:(i)digitallystoredrecords;(ii)digitalverificationorauthenticationforin-persontransactions;and(iii)digitalauthenticationforonlinetransactions.Thispaperanddataarepartofathree-volumeseriesthatbeganwiththe2021ID4DGlobalDatasetandseektocontributetoamoreprecisetypologyandunderstandingofglobaltrendsinthedigitalizationofIDsystems.ThisanalysisisbasedonprimarydatacollectionfromIDauthorities(2021–2022),datafromthe2021WorldDevelopmentReport’sGlobalDataRegulationSurvey,anddeskresearch.

Thepaperfindsthatinmorethan90percentofcountriesglobally,IDsystemsnowrelyondigitaldata;identificationsystemsacrossatleasttwo-thirdsofcountriesofferatleastabasictypeofdigitalidentityverificationorauthenticationforin-persontransactions;andabout40percenttocountries—primarilyhigh-incomeones—haveadigitalIDecosystemthatenablesfullyremote,secureauthenticationforonlinetransactions.Whencombinedwithdataonthenumberofpeoplewithoutanofficialproofofidentity,thesefindingssuggestthat,inadditiontotheestimated850millionpeoplegloballywhodonothaveofficialidentification,manymoredonothaveofficial,digitallyverifiableidentitycredentialsorcredentialsthatwouldallowthemtosecurelytransactinonlinecontexts.Ouranalysissuggeststhatatleast1.1billionpeopledonothaveadigitalrecordoftheiridentity;1.25billionpeopledonothaveadigitallyverifiableidentity;and3.3billionpeopledonothaveaccesstoagovernment-recognizeddigitalidentitytosecurelytransactonline.WehopethisdataprovidesausefulstartingpointforfurtherunpackingIDsystems’digitalcapabilitiesandhowtheyareusedinpractice.

ABOUTID4D

TheWorldBankGroup’sIdentificationforDevelopment(ID4D)Initiativeharnessesglobal

andcross-sectoralknowledge,WorldBankfinancinginstruments,andpartnershipstohelp

countriesrealizethetransformationalpotentialofidentification(ID)systems,including

civilregistration(CR).Theaimistoenableallpeopletoexercisetheirrightsandaccess

betterservicesandeconomicopportunitiesinlinewiththeSustainableDevelopment

Goals.Thisisespeciallyimportantascountriestransitiontodigitaleconomies,digital

governments,anddigitalsocieties,whereinclusiveandtrustedmeansofverifyingidentity

areessentialtoensureaccessibilityanddataprotection.

ID4DoperatesacrosstheWorldBankGroupwithglobalpracticesandunitsworkingon

digitaldevelopment,socialprotection,health,financialinclusion,governance,gender,and

dataprotection,amongothers.Toensurealignmentwithinternationalgoodpracticesfor

maximizingdevelopmentbenefitsandminimizingrisks,ID4Disguidedbythe10Principles

onIdentificationforSustainableDevelopment,whichhavebeenjointlydevelopedand

endorsedbytheWorldBankGroupandover30globalandregionalorganizations(see

).

ID4Dmakesthishappenthroughitsthreepillarsofwork:

1.Thoughtleadership,research,andanalyticstogenerateevidenceandfillknowledge

gaps

2.Globalpublicgoodsandconveningtodevelopandamplifygoodpractices,foster

collaborationacrossregionalandglobalstakeholders,andsupportknowledge

exchange

3.Countryandregionalactionthroughfinancialandtechnicalassistancetorealize

inclusiveandtrustedidentificationandcivilregistrationsystems

TheworkofID4DismadepossiblethroughsupportfromtheBill&MelindaGates

Foundation,theUKGovernment,TheFrenchGovernment,TheNorwegianAgencyfor

DevelopmentCooperation(Norad),andtheOmidyarNetwork.

TofindoutmoreaboutID4Dandaccessourotherpublications,visit

.

vi|ID4DGLOBALDATASET2021:DIGITALIDENTIFICATIONPROGRESS&GAPS

ACKNOWLEDGEMENTS

The2021–2023IdentificationforDevelopment(ID4D)GlobalDatasetupdatewasa

significantundertakingthatwouldnothavebeenpossiblewithoutthesupportand

dedicatedeffortsofalargeteam.Thisworkwasledbytheauthorsofthisreport,Anna

Metz,ClaireCasher,andJuliaClark,undertheguidanceofVyjayantiDesai.Theauthors

wishtoacknowledge,withdeepgratitude,themanypeoplewhocontributedtothe

DatasetprojectaswellasthispaperonIDsystemdigitalcapabilities,whichisthesecondin

aseriestoaccompanytheDatasetrelease.

ThisincludesRongChen,AdamCooper,JonathanMarskell,andRobertPalacios(World

Bank)fortheirinsightfulpeerreviewsandfeedbackonthemethodologyandpresentation

oftheanalysisforthisvolume.Inaddition,wethankChrisPhillips(CircleGraphics)forhis

excellentworkonthedatavisualizationsfeaturedinthisreport.

Manycolleagues,includingEstefaniaCalderon,NayConstantine,FaherElfayez,Jonathan

Marskell,ReinaNtonifor,VasilikiPapagianni,AnaQuiroz,AliaksandraTyhrytskaya,and

EmmanuelVassor,alsomadesignificantcontributionstothebroaderadministrativedata

collection,validation,andpublicationprocess.Finally,continuedimprovementstotheID4D

GlobalDatasetwouldnotbepossiblewithoutcontinuedsupportfromID4D’sMulti-Donor

TrustFundpartners,includingtheBill&MelindaGatesFoundation,theUKGovernment,

TheFrenchGovernment,TheNorwegianAgencyforDevelopmentCooperation(Norad),

andtheOmidyarNetwork.

vii

EXECUTIVE

SUMMARY

TheID4DGlobalDatasetestimatesthatasof2021,850millionpeoplegloballydonot

haveofficialproofoftheiridentity(Clark,Metz,andCasher2022)—however,thisfigure

onlycapturesonefacetoftheglobalidentificationchallenge.Beyondthecoverageof

civilregistration(CR)andidentification(ID)systems,goodsystemdesignandgovernance

arealsocriticaltoensurethatsystemscanmaximizetheirdevelopmentimpactwhile

minimizingrisks.ThePrinciplesonIdentificationforSustainableDevelopmentidentify

severalimportantsystemcharacteristics,suchastheestablishmentofa“trusted—unique,

secure,andaccurate—identity”andcreating“aresponsiveandinteroperableplatform”,

whichrequireasystemwithrobustdigitalcapabilities(WorldBank2022a).Effective

digitalizationisalsocriticalforenablingpeopletoprovewhotheyaresecurely,reliably,

andconvenientlyinamultitudeofin-personandonlinesettingsandtoensurethat

systemscanmeetpeople’sandserviceprovider’sneedsintoday’sworld.

Theapplicationofdigitaltechnologiesinthecontextofidentificationisfrequently

referredtoasdigitalID—however,thevariationinsystemcapabilityisoftenobscured

bythisbroadterm.DigitalIDordigitalidentityhavebeenusedinmanywaysacross

countries,institutions,andpublications,andthereisnouniversallyrecognizedoraccepted

definition.Thisnoteunpacksthisconceptbyfocusingontheoutcomesthatcanbe

achievedwiththedigitalizationofgovernment-recognizedID:(a)recordsbeingstored

digitally,ratherthanonpaper(“digitaldata”);(b)digitalverificationorauthentication

forin-persontransactions(“digitalverification”),and(c)digitalauthenticationforonline

transactions(“onlinedigitalidentity”)1.

Thisnoteanddataarepartofathree-volumeseries2thatbeganwiththe2021Global

IDCoverageEstimatesandcontributeamoreprecisetypologyandmeasurementofID

systemdigitalization.Thedatawascollectedusingthreesources:(i)dataprovidedbyID

authorities(2021–2022);(ii)dataprovidedbyin-countrylegalexpertsaspartofthe2021

WorldDevelopmentReport’s(WDR)GlobalDataRegulationSurvey;and(iii)deskresearch.

Whileeveryeffortwasmadetoensuretheaccuracyandcompletenessofthedataforthis

report,IDsystemsanddigitalcapabilitiesarerapidlyevolving,andthisanalysisprovides

onlyasnapshotasofJuly2022.

1Thetermsinbracketsaretheshorthandusedinthisnotetoeasereadability.Forthefulldefinitions,

seeSection3.

2Thefirstvolume,“GlobalIDCoverageEstimates,”usesnewdataandmodelingtoestimatethenumberofglobally

whodo(anddonot)haveofficialproofofidentity.Thissecondvolume,“TheDigitalIdentificationGap,”presents

dataonthedigitalmaturityandcapabilitiesoftheworld’sIDsystems.Thethirdvolume,“TrendsinIdentification

forDevelopment,”enhancesthatsnapshotbyexploringmanymorefacetsofeachcountry’sIDsystem.

viii|ID4DGLOBALDATASET2021:DIGITALIDENTIFICATIONPROGRESS&GAPS

ix

Digitalizationisatwo-sidedcoin.Whencomplementedbypoliciesandpracticesto

ensureinclusivityandtrust—assetoutinthePrinciplesonIdentificationforSustainable

Development—thedigitalizationofCRandIDsystemscanhelpdriveefficiency,transparency,

andconvenienceforusersinthepublicandprivatesectors.Digitalizationcanstrengthenthe

securityandreliabilityofidentitydocumentsandenablenewmodesofidentityverification

andauthenticationthatallowforhigher-assurancetransactionstobecompletedquicker

andinamoreuser-friendlyway.Whendigitalidentificationsystemsaredesignedasdigital

publicinfrastructure—thatis,asopenresourcesforthepublicandprivatesectorto

innovateontopof—thereisevenmorescopeforbenefitstomultiply,suchascreating

newopportunitiesfordigitalservicedeliveryandgrowingthedigitaleconomy,including

e-commerceandonlinework(Desaietal.2023).

Atthesametime,digitalizationalsointroducesnewrisks,includingthepotentialexclusion

ofcertainvulnerableindividualsandgroupsduetogapsindigitalconnectivityandskills

ortechnologyfailures,thepotentialfordatabreachesandmisuseonanextendedscale,

excessdependencyonorlock-inbyvendors,andfinanciallyunsustainableinvestmentsin

high-techsolutionsthatarenotwell-suitedtolocalcontexts.Assystems’digitalcapabilities

advance,theserisksneedtobecarefullymanaged(WorldBank2019a).3

THREEDIMENSIONSOFDIGITALCAPABILITY

Yetdespitethesepotentialbenefitsandchallenges—andgrowingrecognitionthatbeing

abletoproveyourlegalorofficialidentityonlineisimportant—therehasbeennocommonly

acceptedunderstandingoftheterms“digitalID”or“digitalidentity.”Indeed,suchterms

havebeenusedtodescribesystemsatvaryinglevelsofdigitalization,development,and

capacity,andtoreferbothtosystemsdesignedforin-personandonlineuse.Asastep

forward,thegoalofthisnoteistounpackandmeasurevarioustypesofdigitalization

globally,toenableamorenuanceddiscussionaboutthecurrentgapsandfuturedirections.

Thisnotethereforeexaminesthedigitalcapabilitiesofofficialor“government-recognized”

IDsystemsacrossthreedimensionsofdigitalization:4

a)Digitaldata:Recordsarestoredinadigitalformat,ratherthaninpaperrecordsorledgers.

b)Digitalverification:Identitiesand/oridentityinformation(e.g.,name,dateofbirth,

etc.)canbeverifiedorauthenticatedusingdigital—ratherthanmanual—meansinthe

contextofin-persontransactions.5

3See,forexample:

/guide/creating-good-id-system-presents-risks-and-challenges

-

there-are-common-success-factors

4Forafulldefinitionofthesethreeindicators,seeSection3below.NotethatdigitalIDorauthentication

systemsusedbytheprivatesectorbutnotrecognizedasofficialproofofidentity(e.g.,Facebook,Google,or

Applelog-incredentials)areoutsidethescopeofthisnote.

5Forthepurposesofthisnote,thedefinitionof‘verification’and‘authentication’followthoselaidoutinthe

GlossaryoftheID4DPractitioners’Guide:“Althoughauthenticationandverificationarerelatedandoftenused

interchangeably,[...]theycanbedistinguishedbywhethertheprocessinvolvesdeterminingtheveracity

ofparticularattributes(verification)orensuringthatapersonisthe“true”ownerofanidentityorcredential

(authentication).”Formoredetails,see:

/guide/glossary.

c)Onlinedigitalidentity:Digitalcredentialsprovidetheabilitytosecurelyauthenticate

identitiesremotelyinordertoaccessonlineservicesandtransactions.

Forthefirsttwodimensions(digitaldataanddigitalverification),weexaminethedigital

capabilitiesofeachcountry’sfoundationalIDsystem,whichistypicallytheprimarysystem

usedtoprovidegeneralproofofidentityforavarietyoftransactions.6Forthethird

dimension(onlinedigitalidentity),welookeitheratthefoundationalIDsystem,or,where

relevantattheparallelecosystemsofdigitalIDprovidersthatsomecountrieshavebuiltto

providegovernment-recognizedformsofdigitalidentityonline.Appendix1describesthe

particularIDsystemsconsideredforeachcounty.

MAINFINDINGS

Inrecentyears,manycountries7haveembarkedoneffortstomodernizetheirIDsystems,

withthegoalofcreatingadigitalplatformandissuingcredentialsthatcansupporta

varietyoftransactionsandservices.Asaresult,almostallcountriesnowhavefoundational

IDsystemsunderpinnedbydigitaldata(i.e.,electronicidentityrecords),andthenumber

thatofferdigitalidentityverificationorauthenticationforpubliclyadministeredservices

andprograms,banks,andotherserviceprovidersisrisingrapidly,althoughtheiravailability

inlow-andlower-middleincomecountriesremainslimited.Digitalidentitysolutions

thatenablesecureauthenticationforonlineservicesandtransactionsarestillararity

inlow-andmiddle-incomecountries,butareavailableinmorethan80percentofhigh-

incomeones.

•Digitaldata:Asofmid-2022,186(outof198)8countrieshaveafoundationalIDsystemwhereidentityrecordsarestoredinadigitalformat.Whilethisisavastmajority,itstillleavesaround375millionpeoplewholiveincountrieswhereidentityrecordsarepredominantlypaper-based,makingthemdifficultorimpossibletoverifyorreplace,andparticularlysusceptibletodamage,loss,orfraud.

•Digitalverification(in-person):FoundationalIDsystemsinatleast132countries—orabouttwo-thirdsofcountriesglobally—supportsomeformofdigitalidentityverificationorauthenticationinthecontextofin-personservicesandtransactions.However,thefunctionality,availability,anduseofdigitalverificationorauthenticationservices—alongwiththelevelsofassuranceanddataprivacyandprotection

6AfoundationalIDsystemisanidentificationsystemprimarilycreatedtomanageidentityinformationforthe

generalpopulationandprovidecredentialsthatserveasproofofidentityforawidevarietyofpublicand

privatesectortransactionsandservices.CommontypesoffoundationalIDsystemsincludecivilregistries,

nationalIDsystems,andpopulationregisters(

/guide/glossary

).Forthe22countries

withoutafoundationalIDsystemthatissuescredentialstoadults,wemeasurethedigitalcapabilityofthecivil

registration(CR)system.

7Thetermcountry,asusedinthisnote,doesnotimplypoliticalindependencebutinsteadreferstoany

territoryforwhichauthoritiesreportseparatesocialoreconomicstatistics.

8TheID4DGlobalDatasetcovers198countries,excludingsomesmallerterritoriesandjurisdictions.

x|ID4DGLOBALDATASET2021:DIGITALIDENTIFICATIONPROGRESS&GAPS

xi

safeguardstheyprovide—variessubstantially.Forinstance,IDsystemsinsome

countriesofferaservicethatallowsserviceproviderstodigitallyverifywhether

anIDnumberisvalidandthatitmatchesacertainnameordateofbirth,butthere

arenodigitalmeanstoascertainwhetherthepersonclaimingthatidentity(e.g.,by

presentinganIDcard)isitsrightfulowner.Ourabilitytoprovidemorein-depthanalysis

aboutthequality,includingtheease-of-use,ofdigitalverificationandauthentication

isconstrainedbythelackofreliablecross-countrydata.

•Onlinedigitalidentity:In81countries(51ofwhicharehigh-income),peoplecan

obtainatleastonegovernment-recognizeddigitalidentitycredentialthatallows

forremoteauthenticationtoaccessonlineservicesandtransactions.Thisleaves

over3.3billionpeople(or2.2billionpeopleovertheageof15)livingincountries

withoutanoptiontoprovetheirofficialidentityonline.Thiscapabilitygapmaylimit

thedeploymentorsecurityofgovernmentservicesonline,aswellasprivatesector

servicesthatrequirehigherlevelsofidentityassurance(e.g.,inthebankingsector).

Evenincountrieswhereanonlinedigitalidentitysolutionisavailable,theirusevaries

significantly,fromveryhighuptakeinScandinaviancountriesandEstonia,tofarfewer

userspercapitainmuchofLatinAmerica,CentralAsia,andsomeEuropeancountries

likeGermany.

Whencombinedwithdataonthenumberofpeoplewithoutanyofficialproofofidentity

(Clark,Metz,andCasher2022),9thesefindingssuggestthat,inadditiontotheestimated

850millionpeoplegloballywhodonothaveofficialidentification,manymoredonot

havedigitallyverifiableidentification.

Inadditiontothe850millionwithoutanyID,weestimatethatatleast:

•1.1billionpeopledonothaveadigitalrecordoftheiridentity;

•1.25billionpeopledonothaveadigitallyverifiableidentity;and

•3.3billionpeopledonothaveaccesstoagovernment-recognizeddigitalidentitytosecurelytransactonline.

9See

/global-dataset

fordownloadabledata.

1.25+

1.1+

850MILLION

people

Figure1.NumberofPeopleWithoutAccesstoDigitalIdentification

3.3+

BILLION

people

withoutaccesstoanomcialdigital

identityforonlinetransactions

withnodigitally

verifiableidentity

withnodigitized

recordoftheiridentity

withno

omcialproofofidentity

DISCUSSION

Investing(wisely)indigitalsystemsandcapabilitiesisnecessarytoservepeople,

government,andbusinessesinarapidlydigitalizingworld.Movingfrompaper-based

todigitalizedIDsystemsandenablingsecureanduser-centricmodesofdigitalidentity

verificationandauthenticationareimportantforgreatertrust,security,efficiency,and

convenienceintransactions.Theycangeneratesavingsforboththepublicandtheprivate

sectorandreducethetimeandeffortittakesforordinarypeopletoaccessaserviceor

transaction(seeWorldBank2018aforadetailedanalysis).Thisnoteprovidesinsightinto

thescaleofthisissue—billionsofpeoplearoundtheworld(aswellasgovernmentsand

firms)canbenefitfromimproveddigitalizationofIDsystems.

However,notalldigitalcapabilitiesanddigitalizationeffortsarecreatedequalwhenit

comestosupportinginclusiveandeffectiveaccesstoidentificationandservicedelivery.

Evenifacountryhassystemsthatallowfordigitalidentityverificationorauthentication

orcanissuedigitalidentitycredentialsforonlinetransactions,thisdoesnotnecessarily

meanthatitis“doingbetter”intermsofprovidinglegalidentityforallorpromoting

xii|ID4DGLOBALDATASET2021:DIGITALIDENTIFICATIONPROGRESS&GAPS

xiii

efficientandpeople-centricservicedelivery.Indeed,digitalizedsystemsthatarepoorly

implementedmaybejustasproblematicaspaper-basedsystems.Eveninthe130+countries

whereatleastbasicdigitalidentityverif