Togo has embarked on an ambitious project for the biometric identification of its population. Led by the Agence Nationale d’Identification (ANID), the e-ID Togo project aims to provide each Togolese citizen and foreign resident with a Unique Identification Number (UIN). This large-scale operation will then enable the creation of a secure central database, which will serve as a reference for identifying individuals to access and improve public and private services. The impact should be felt particularly in improving access to basic social services. Between promises, concerns and hopes, the e-ID Togo project heralds a new phase in Togo’s digital transformation and in interactions between citizens and the State. Wide angle on the project and its implications, with Clément Gado, journalist on a fellowship from the Media Foundation for West Africa.

One person, one identity

Togo, like other developing countries, faces considerable challenges in identifying its population and issuing official documents. According to Dr. Richard Djagri Tindjo, lecturer and researcher in development and social change at the University of Lomé, “less than 15% of Togolese hold a national identity card. More than half the population, especially in rural areas, therefore has no identity papers. What’s more, the identity file is not linked to the civil registry to extract deaths, and there is no possibility of geolocating populations.” This shows how necessary it was to provide every person living on Togolese soil with irrefutable proof of identification.

Similarly, according to the explanatory memorandum of the e-ID Togo project on the biometric identification of individuals in Togo, adopted by the government in March 2020, “analysis of identification mechanisms has revealed diversity, and even inconsistency, between the multiple means of proof used to establish the identity of individuals.” Faced with this situation, the introduction of biometric identification presents an opportunity to secure the identity of individuals and streamline administrative action. And on this point, Olivier Kouete, a German telecoms engineer of Cameroonian origin and software architect, confides: “It is important

Thus, as part of the public administration reform included in the National Development Plan (NDP) and in line with the government roadmap 2020-2025, the Togolese government has undertaken the modernization of its population identification system. Following an international call for tenders, on 1ᵉʳ June 2023, the implementation of this ambitious project was entrusted to the Atos-IDEMIA consortium. The consortium’s main task will be to implement the technical aspect of this innovative project in Togo, in particular setting up the information system. This will be done using the MOSIP (Modular Open source Identity Platform), which has proved its worth in countries such as India.

A profound transformation ahead

Biometric identification promises significant changes in the relationship between the Togolese population and the State. According to the Togolese authorities, the Unique Identification Number (NIU) should be an essential tool in supporting the underprivileged, thus improving social programs such as the NOVISSI (editor’s note: mutual aid, in the local language) assistance and money transfer program for vulnerable households, launched at the height of the Covid-19 crisis. This program suffered from guaranteed identification of beneficiaries, rightly or wrongly involving certain target groups, when it was first launched, before being improved thanks to the intelligence of our staff.

On the socio-economic front, experts are also unanimous: biometric identification will have a profound impact on the socio-economic life of citizens and residents. Dr. Djagri Tindjo believes that “the Togolese public administration will be able to track citizens’ administrative status, facilitate access to health services, universal health insurance and the targeting of aid beneficiaries in the social sector (social safety net programs, cash transfers, etc.), and reduce fraud in the financial sector.” Software architecture expert Olivier Kouete agrees. For him, the fields of use of this database are enormous, and many public and private services can be offered and improved thanks to the reliability of the information collected. “It’s complicated and expensive for people to get medical treatment. Now, with personal identification, public services can be offered, such as universal health insurance, pension insurance, etc.”, explains this expert. Individuals who have no proof of identity are often excluded from access to public and even private services, and the absence of secure means of identification often gives free rein to abuses such as fraud, reveals the expert.
By allowing every citizen to have easy access to public and private services, Togo could follow the example of countries like Zimbabwe. Following the implementation of a biometric system and the completion of an audit in 2020 by the Public Service Commission, in partnership with the World Bank, approximately 3,000 “ghost workers” were identified and removed from the payroll. This has led to significant financial savings for the country, says Dr Tindjo of the University of Lomé.

Politically, Dr. Tindjo adds, these unique identification numbers will make it possible to “simplify the updating of the electoral register and reduce massive electoral fraud, which is often a source of socio-political crises.”

To carry out this vast project, ANID has planned large-scale awareness and testing campaigns to present the benefits of the e-ID project. Indeed, the free and informed consent of citizens will be paramount when collecting data. According to article 13 of the law on biometric identification of natural persons in Togo, biometric registration is not an obligation for citizens. However, the obligation of the administration to include NIUs in the documents they issue to citizens as part of the services it provides them is not fulfilled.

Data security and protection, a crucial issue

In terms of security, whether physical or digital, “zero risk does not exist”, specialists are used to warning. It is therefore easy to understand that, beyond the acceptance of populations, one of the main challenges of the e-ID Togo project is to ensure its security; The accessibility of the biometric database to certain private administrations or companies requires a fine-grained control of access to prevent inappropriate uses. Ensuring data security and protection is a crucial point, as Dr. Richard Djagri Tindjo points out. The Professor-researcher at the University of Lomé in development and social change warns: While keeping in mind that biometrics are not infallible, it is important to know their limits and have the economic and legal conditions for better security and protection of citizens’ privacy. Misuse or misappropriation of such data can then have serious consequences for the citizen and the sovereignty of the country.”

The telecommunications engineer, software architect and computer network administrator wants to be reassuring. “The strategy of collecting data is important,” says Olivier Kouete. He goes on to talk about the reliability of biometrics. The expert specifies that “even if it is for example a photo data, the final information that is saved is not the initial image, but modalities, to such an extent as to minimize the risk of exposure of these data.” What it recommends is to raise the level of security of information systems such as data centers that host this data.

And for good reason, citizens’ confidence in the system depends on the assurance that their data will remain intact and not be exploited for harmful purposes. To meet this challenge, it is imperative that robust cybersecurity measures be in place, consistent with international standards, to ensure the integrity and confidentiality of sensitive information. Dr. Richard Tindjo then recommends that the state adhere to key principles. These principles include “limiting the use of information to specific purposes, the necessity and relevance of the data collected, a defined retention period, ensuring security and confidentiality, and respecting the rights of individuals.” In addition, the engineer Kouete insists on the implementation of an architecture that provides for different levels of access, depending on the needs and actors called to connect to these data. Because “the weakest link determines the level of safety of an infrastructure,” he adds, insisting that all components be provided with the same level of safety.”

Improving the everyday life of all

This is a promise that Dr. Richard Djagri Tindjo will not lose sight of. The researcher in development and social change, also a specialist in new technologies, believes that “Biometric identification of populations will strengthen the relationship between populations and public services once all Togolese can now prove their identity.” He believes that “for this program to be inclusive and benefit all Togolese without exception, it is necessary to network identity providers and users.” It specifies that most often the services providing identity are those that provide identification documents such as civil status, the alternate judgment, nationality, passport and national identity card, and the identity users are public services in charge of registration of civil servants, health (health training, insurance, social organizations), education, social, commercial services (banks, microfinance institutions and telecommunications operators).
But it is also aware of and raises awareness about the possible deviations of biometric identification. “We must ensure that personal data, especially from political actors, civil society, ordinary citizens, activists who denounce bad governance, are not used for discrimination and stigma.” The Teacher-researcher concludes on a note of hope by stating: “These initiatives are to be encouraged as these digital public infrastructures facilitate exchanges, remote information requests, transactions, access to information and identity documents, which was not possible a few years ago.” At the same time, he pleads for governments to make sure that they facilitate the connection of populations to these IPNs, those populations who often have a level of income low enough to pay internet fees. This justifies the choice of multiple means of access, including those that do not require internet, for example for interaction between populations and an IPN.

The e-ID Togo project, despite its challenges, is crucial for the development of the country’s digital public infrastructure. It paves the way for more effective administration, improved service delivery, and greater social inclusion. With simplified access to services, Togo can achieve significant progress in the areas of health, education and general well-being of its population. Last April, on the eve of the country’s independence day, the President of the Republic spoke about the importance of biometric identification in his socio-economic policy. Faure Gnassingbé suggested that “to serve someone, you have to know them. That’s why we want to give every person an identity, so we can make our social policy a success.”