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Aadhaar is the national identification number assigned to residents of India. It is not a proof of citizenship. It only guarantees identity, not rights, benefits or entitlements. Aadhaar program is operated by the Unique Identification Authority of India (UIDAI), an authority of the Government of India. It was established in January-2009 under the Planning Commission of India.

Overview

The UIDAI's role is to assign unique identities, and to authenticate the identities online.

It is supposed to assign two types of unique identities:

• Residents of India (called Aadhaar)
• Corporate entities like Companies, NGOs, Trusts, Political Parties etc.(Corporate-UID)

So far UIDAI has made progress on Aadhaar only. Work on Corporate-UID is yet to be published. However Corporate-UID has been provisioned with its 12-digit number system. Corporate-UID is designed to bring transparency on donations, financial transactions; and to prevent corruption by money laundering, benami transactions (i.e. under a fictitious name), allocation of natural resources like land, spectrum, mining of sand, iron-ore, coal-blocks, etc.

UIDAI owns and operates the main database server called the Central Identity Data Repository (CIDR). Aadhaar enrollment commenced in September 2010.

Aadhaar number serves the purpose if Aadhaar-holder can memorize it and gets verified online in a paperless way through KYC or E-KYC process.

Aadhaar has already crossed the critical-mass as on 15 Aug 2013 by enrolling about 450 million people, processing and assigning more than 400 million Aadhaar numbers (33% of population) and linking over 30 million bank accounts for Direct Benefit Transfer for many social security benefits across many states.

Properties of the Aadhaar number

Aadhaar is a 12-digit social security number assigned to residents of India for lifetime. It is not a proof of citizenship. It only guarantees identity, not rights, benefits or entitlements. It is a digital identity, verifiable online instantly in public domain, at anytime, from anywhere, in a paperless way. It is assigned only to humans, not to entities like non-governmental organisations or companies, unlike the PAN card. The government expects that it will enable under-privileged people to access social security resources, which they have been deprived so far due to lack of identity.

It is designed to enable government agencies to deliver retail public service securely based on biometric data (fingerprint, iris scan and face photo), along with demographic data (name, age, gender, address, parent/ spouse name, mobile phone number) of a person. The data is transmitted in encrypted form over internet for authentication, aiming to free it from limitations of physical presence of a person at a given place.

Aadhaar number also works as a financial address of a person, i.e. it works as a bank account number. This is designed to help spread low cost, ubiquitous, branchless banking services in rural areas - called micro-ATM, as part of the Financial Inclusion initiative.

Aadhaar is valid all over India as a proof of identity, age and address, and can be used by migrant workers for employment and social security benefits. In case of change of personal information, the same can be updated at Aadhaar Kendra with substantiated proof.

The Aadhaar number is stored in a centralized database (CIDR) and linked to the basic demographics and biometric information – photograph, ten finger-prints and both iris – of each individual. It is verifiable online with the database server (CIDR) instantaneously, at a low cost. It is portable and robust enough to identify duplicate and fake identities from government and private databases. It is a randomly generated number, is sparsely populated in the database, designed not to be guessable, with no associated intelligence, and no profiling information such as caste, creed, religion or language. Aadhaar has an address space of 10 (100 billion), so it can be assigned to 100 billion residents, and is designed not to get used up in the next 100 years. 11-digits are used as a sequence number with the rightmost 1-digit as an error checksum digit. Upon the death of a person, the database record is marked as 'inactive', but is never deleted.

Goals

In order to receive social security benefits as well as any service regulated by government (e.g. bank account, insurance, mobile SIM, driving license, vehicle registration, subsidized LPG etc.), compliance to Know-Your-Customer (KYC) conditions are mandatory. The minimum KYC consists of 3 proofs:

• Proof of Identity (Name with Photograph),
• Proof of Age (Date of Birth or estimated age),
• Proof of Residence (presently staying)

Out of 1.25 billion (125 crore) population of India, over 1 billion (100 crore) do not hold documents to satisfy minimum KYC.

There are over 400 million migrant laborers (internal) who are poor, landless, not educated or illiterate. These migrant workers do not exist on the government's databases, despite having worked for years in another district of the same state or another state of India. Lack of identity prevents them from receiving even basic social security services, and Aadhaar aims to provide identity in these cases.

Existing IDs and problem areas

Traditionally existing IDs in India have been paper and plastic-based driving license, passport, PAN card, voter ID etc. None of these IDs have the feature of being lifetime digital identity that can be verified instantly in public domain at anytime anywhere for uniqueness and real existence. Moreover, as of 2013, only 150 million hold driving license, 50 million people hold passport and 30 million pay taxes, and these are mutually inclusive. These IDs do not qualify the generic all-purpose ID for life. These IDs expire at certain intervals, for various reasons, and need to be re-applied with payment for fresh-issuance or renewal. The identification number on these IDs changes with each renewal. Some IDs are not accepted across states, and people are asked to provide local ID. These IDs (except voter ID) are generally possessed by urban higher-income group. The rural and poor, who are largest number, do not possess it. Hence these do not serve the purpose of providing minimum KYC to a billion people. Others do have some ID yet not sufficient for minimum KYC. Women and children of well-to-do families in rural and tribal areas also generally lack KYC IDs.

Traditional IDs are not biometric based. Moreover, these plastic or paper-based IDs are easily reproducible with modified and fake information (such as by scan, super-imposition and print functions of ubiquitous printers). Thus these easily lead to identity theft and identity fraud.

Photocopy of IDs of various people are taken fraudulently or stolen from various places (e.g. photocopy shops, employment applications), then multiple copies are made and sold to needy people at high price. Since very large number of people in India do not hold minimum KYC IDs, therefore they buy such identity-theft papers to procure mobile SIM. At least 100 million mobile SIMs in India, currently in use, have been procured on identity-theft and Identity-fraud.

The driving license cannot be issued to a person below 18 years. It is not verifiable online instantly in public domain. Obtaining it is costly and lengthy process for the general public, and only 150 million hold it. Fake driving licenses also exist.

Obtaining a passport is costly and lengthy process, and only 50 million hold it. It is not verifiable online instantly in public domain. Fake passports also exist.

Although PAN is issued for the holder's lifetime, yet it is meant only for income tax payers. It is not verifiable online instantly in public domain. There are only 30 million income tax payers, yet 170 million PANs have been issued. Obtaining PAN is a costly and lengthy process, and millions of PAN cards are suspected to have a fake user, fake holder or fake card due to lack of biometrics and instant verification in public domain. Hence the Finance Ministry has started linking PAN with Aadhaar in order to eliminate fake users and fake cards, so that it can prevent income tax-evasion at higher slabs.

Ration cards are issued one per family, and every family does not hold one. It is not verifiable online instantly in public domain. It does not help migrant workers when they move to another location. Millions of ration cards are either fake or defunct, yet these are used as ID.

Voter ID cannot be issued to a person below 18 years. It is not verifiable online instantly in public domain. Names get deleted from the voter-list from time to time for various reasons. Voter ID becomes invalid once the name of that serial number is deleted. Photo and other data on voter ID is generally not clear and jumbled. Millions of fake and bogus voter IDs exist. It is not unique because some persons have multiple. It can be misused after death of the holder.

The primary objective of Aadhaar is to provide lifetime digital identity that can be verified instantly in public domain with biometrics in paperless way.

e-governance

Another objectives of Aadhaar is to use it as an effective governance tool - to bring transparency, efficiency and weed out the bogus beneficiaries from social security programs e.g. social security pensions, scholarships, public health, NREGA, subsidy on PDS Ration, Kerosene, LPG etc. Thus Aadhaar is expected to save public exchequer from bogus beneficiaries up to Rs. 1.1 Trillion (Rs. 110,000 crore) by the year 2020 as per study report of National Institute of Public Finance and Planning.

In 1980s pointing towards the widespread corruption in social security programs in India, the then Prime Minister Rajiv Gandhi had made a famous statement in Parliament that only 15% of benefits reach the poor people; the remaining 85% are eaten-away by the corrupt officials and middlemen. Similarly, the World Bank Chief said that Aadhaar will help eradicate poverty in India.

The stand-alone databases of social security services can not interact with each other due to lack of a unique identifier like Aadhaar. Thus stand-alone databases do not have ability to detect and prevent fictitious and ineligible beneficiaries. Therefore, Aadhaar is aimed at eliminating retail corruption in the public domain which has affected social security programs since independence. In India, about 750 million people starve everyday for at least one meal.

Prevention of corruption

Although Aadhaar can prevent retail-corruption to much extent, yet it is not capable of preventing wholesale-corruption like allocation of coal-blocks, 2G spectrum, mining of Iron-ore, sand, onion hoarding etc. Corporate-UID is required to prevent such wholesale-corruptions and this provision is already inbuilt in UIDAI Number System, yet implementation is pending.

Prevention of identity fraud

Identity frauds such as identity theft (using the identity of another person, dead or alive) and identity document forgery (fake IDs created on fictitious person, also called benami) has been a common practice in India. The scan, super-imposition and color-print functions of ubiquitous printers have made paper-based and plastic card-based frauds much easy. Identity fraud is committed for financial gain or due to compulsion. Identity fraud committed for financial gains are mostly benami companies and benami bank accounts used for bribery and money laundering. Identity fraud committed on compulsions is either due to lack of a person's own ID documents, or due to the intention of not using one's own ID.

In the telecoms sector companies paid a Rs. 7 billion (Rs. 700 crore) penalty to the telecoms regulator on fake KYC IDs in 2011. The examples also can be used to other areas such as PDS ration and kerosene, subsided LPG, welfare pensions, scholarships etc.

There are 400 million workers who work in other states (internal migrant workers) in unorganized sectors like construction and farming. They need mobile phones to keep in touch with their family and employers. They do not possess minimum KYC IDs (Proof of Identity, Proof of Age, Proof of Residence) to procure a mobile phone SIM card. Telecommunications service providers (TSP) in India ask for minimum KYC IDs, where the Proof of Residence (PoR) must be the local address only. Since they normally stay in shared shanties without any valid documents, they cannot produce PoR. So they fraudulently purchase available IDs of other persons at a high price in order to obtain a mobile SIM. Prisoners, criminals and terrorists never procure mobile SIMs using their own IDs due to obvious reasons of getting tracked.

The employees of TSPs are generally under pressure to achieve sales targets. Hence there are cases where one set of IDs submitted by a genuine customer to procure just one SIM has been reused 100 times to issue 100 SIMs fraudulently.

Some photocopy shops fraudulently scan and make extra copies of identity papers and sell them at a premium, leading to identity fraud. Some prospective employers do not destroy the papers of rejected candidates, and some times that goes into wrong hands leading to identity fraud.

Employees' Provident Fund Organisation of India frauds can be prevented if its Aadhaar linking is not opposed.

Aadhaar E-KYC is designed to solve the problems of identity fraud. Telecom companies have started adopting it to avoid KYC penalties.

Authentication of identity

The power of Aadhaar vests with its instant online validation in public domain with demographic and biometrics attributes at anytime from anywhere in paperless way. No other ID in India has this feature. The validation in public domain means any service provider under license from UIDAI can verify Aadhaar, unlike only passport office can verify a passport.

It is designed to be secure, auditable, non-repudiable, and consent-based (by biometrics or a one-time password (OTP)). OTP is sent to mobile phone or email ID of the Aadhaar-holder by CIDR server. There are mainly 2 types of authentication with different combination of attributes:

• KYC: On consent, the service provider inputs the Aadhaar Number + Demographic data + Biometric or OTP, and receives ‘Yes’ or ‘No’ response from CIDR database server.
• E-KYC: On consent, the service provider inputs the Aadhaar Number + Biometric or OTP, and receives demographic data (photo, name, gender, address, date of birth, mobile number, email-id i.e. receives digital copy of the Aadhaar letter) from CIDR database server. Biometric data of resident is never shared by CIDR.

The authentication data requested and received use encrypted communication from machine to machine through an application programming interface (API) without human intervention. Following authentication, the received KYC data gets stored in the system of the service provider in the required data-format along with audit-track. Then this data is processed and service is provided to the customer immediately.

The service provider decides what demographic and biometric attributes it wants to use for a given service. For example, iris and multiple fingers along with demographics may be used for high value transactions. Similarly, few demographic attributes with OTP only (no biometrics) may be used for low value transactions.

Aadhaar-DBT

Aadhaar-Direct Benefit Transfer is a financial service, known as an "Aadhaar-enabled service delivery" (AeSD). Aadhaar-DBT pays social security benefits directly into bank account of the beneficiary.

When a social security beneficiary links his or her bank account and a given service, say subsidized LPG, to Aadhaar number then required mapping information gets stored onto NPCI payment-gateway, that facilitates the subsidy payment. It is used for payment of social security benefits such as pensions, scholarships, NREGA wages, healthcare, subsidy for LPG, kerosene, PDS ration etc. It is also used for Aadhaar-enabled bank transactions (withdrawal, transfer, balance-check etc.) between two persons at micro-ATM (requires Aadhaar + fingerprint) in rural areas. The seeding helps identify the genuine and eligible beneficiary, and prevents duplicate and non-existent (fake, dead) persons.

Eligibility of beneficiary is applied based on rules and is cross-checked with other related databases which are also Aadhaar-linked. This approach is designed to improve the audit trail, add efficiency; prevent corruption, middlemen and delayed payments; eliminate non-existent, duplicate and ineligible beneficiaries. It results in direct benefit access to the eligible people; and saves multi-billion rupee from corruption annually.

By 01-Jan-2014, half the population of India (289 districts across various states) will be covered under DBT for subsidized LPG. By August-2013, 6.3 million duplicate connections were detected by Aadhaar-seeding and cancelled. Thus government saved $1 billion on reduced import by mid-2013.

Enrollment

Process

Enrollment is voluntary and free of cost. When a person desires to obtain Aadhaar number, he or she has to submit a prescribed enrollment form attached with minimum KYC documents (i.e. proof of identity, proof of age, proof of residence) to a UIDAI appointed registrar. If, for example, a person from a village does not have KYC IDs, then a recognized Introducer (generally a village head) can introduce and certify his or her PoI, PoA and PoR. Introducers are appointed by Registrar based on certain criteria and conditions.

On completion of paper formalities, the biometric scanning (2 iris, 10 fingers, facial photo) is done by the operator and a printed acknowledgement is given to the applicant. Then scanned data, along with the application form, is sent to appropriate authorities for verification and final processing. It takes about three months to get an Aadhaar number on successful processing.

As self-service, it is faster to download the "E-Aadhaar" letter (pdf copy) from the UIDAI portal after 3 months than await the postal delivery of Aadhaar letter, which may take 6 to 9 months presently.

UIDAI versus NPR

UIDAI has been mandated to enroll 600 million people in its assigned territory. Similarly, the Census Operations group (under the Ministry of Home Affairs) has been mandated to enroll the remaining 650 million people in its assigned territory under the National Population Register (NPR) program. Although an enrollment of 650 million is done by Census Operations, the collected data is given to the UIDAI for generation of Aadhaar numbers. Thus UIDAI generates Aadhaar numbers for the whole of India.

UIDAI has no role to play in management of NPR enrollment centres.

The UIDAI territory for enrollment includes Delhi, Himachal, Goa, Karnataka, Kerala, Andhra, Pondichery, Maharashtra, Madhya Pradesh, Sikkim and Tripura, etc. The Census Operations territory for enrollment includes Jammu and Kashmir, Uttar Pradesh, Bihar, Tamil Nadu, West Bengal and Assam, etc.

As of October 2013, a large volume of scanned biometric data have been rejected by UIDAI due to poor quality, thus causing delay and inconvenience to the public.

Status of enrollment and generation

The total number of Aadhaar enrollment as of November-2013 is over 550 million (55.0 crore) and is going at the rate of about 1 million per day. The total number of Aadhaar processed and assigned as of 07-Nov-2013 is over 480 million (48.0 crore). This is about 40% of the population of India. It has been planned to achieve 600 million by mid-2014, when one in every two Indians will have Aadhaar number.

The following table displays the progress of generated Aadhaar (state-wise). The up-to-date information can be found on official website of the UIDAI.

Acceptance and applications

Delhi was the first State to reach almost 100% enrollment in September 2013. Various government departments, public sectors and private sectors are making headway to its acceptance and applications.

The Reserve Bank of India (RBI) has made Aadhaar and E-KYC as a standard Proof of Identity (PoI) and Proof of Address (PoA) to open and operate a bank account.

Axis Bank was the first bank to make its all branches Aadhaar and E-KYC compliant from October 2013, so any Aadhaar-holder can use an Axis Bank without carrying any paper-based identity documents, by providing their Aadhaar number, authenticate using finger-print through the E-KYC process and open or operate the bank account transaction.

LPG companies use Aadhaar numbers to pay subsidy and eliminate fake beneficiaries. In 2013 it had saved one billion dollar from fake beneficiaries.

Various state governments use it for public welfare programs such as pensions and scholarships, which has saved millions from fake beneficiaries.

Aadhaar letter is also accepted by Passport Seva, SEBI, Department of Revenue, IRDA, PFRDA, and the Department of Telecommunications.

IN 2013 LPG companies saved $1 billion using Aadhaar, and the government has used it to reduce pension fraud.

The government estimates that Aadhaar will save it 1.1 trillion by 2020.

Effects

As the public databases are getting inter-linked one by one through Aadhaar number in various states (particularly Delhi), middlemen and officials now find difficult to continue with corruption in social security programs like pensions, scholarships, health, NREGA, subsidy on PDS Ration, kerosene and LPG.

Ineligible, duplicate and fictitious beneficiaries are getting eliminated from social security programs.

Corrupt people are finding difficult to buy and sell benami land and building (i.e.under fictitious name), to open and operate benami companies for money-laundering. They are also finding difficult to open and operate benami bank accounts for keeping criminal proceeds. Tax-evaders are finding difficult to evade taxes, and impersonation and proxy are getting difficult to commit due to online biometric validation.

Criminals and terrorists are getting detected and tracked through inter-linked databases of mobile phone numbers, bank account numbers and travel documents. Illegal immigrants are similarly detected and tracked through these databases. Records are becoming accessible to police from any state of India. It is getting difficult to obtain new driving licenses and arms license from another state, once one is impounded in another state.

Obstacles and opposition

The Supreme Court of India passed an Interim Order on 23-Sep-2013 that no public services such as LPG be denied to public due to lack of Aadhaar. However, the government maintained that it does not deny public services such as LPG at market rate (i.e. non-subsidized). However, Aadhaar will continue to be mandatory for receiving social security benefits like subsidy on LPG. Those who do not want social security benefits can continue without Aadhaar. The Supreme Court made no such statement that Aadhaar or UIDAI is illegal or invalid.

The Union Cabinet headed by the Prime Minister of India has cleared the UIDAI Bill-2010 on 08-Oct-2013. It is expected to be tabled in Parliament during winter session.

Privacy

India has had a law called Information Technology Act 2000 since the year 2000 that protects Aadhaar data along with other laws.

Privacy issues and risks equally apply to data collected by census office, passport office (with biometric data), driving license, PAN card, employers (current, past and prospective employers with or without biometric data), schools, colleges, US and UK visa (with biometric data) etc.

Aadhaar does not violate any privacy or fundamental right.

Cost and benefits

About Rs. 30 billion (Rs.3,000 crore) has been spent on Aadhaar program as of October 2013 with enrollment of over 500 million (50 crore) persons. Government informed the Parliament in August-2013 that the total sanctioned cost of UIDAI (including cost of permanent infrastructure like land, buildings, computers, software etc.) is Rs.123 billion (Rs. 12, 398 crore) for assigning 1.25 billion Aadhaar numbers. Thus at the end the unit cost will be about Rs.100 per Aadhaar.

The projected cost and benefit analysis report by National Institute of Public Finance and Policy shows that Aadhaar-enabled public welfare programs will be able to save Rs. 1.1 Trillion (Rs. 110,000 crore) by the year 2020.

International Monetary Fund (IMF) has projected that Aadhaar-DBT will save 0.5% of GDP from corruption.

Aadhaar-enabled LPG subsidy payment has saved US$ 1 billion till August 2013 due to reduction of bogus connections. It is expected to save more than US$ 2 billion once LPG subsidy through Aadhaar becomes applicable to entire country. Similarly, 2/3rd of subsidized Kerosene has been saved from bogus beneficiaries in one block in Rajasthan.

Gallery

• Data collection (Demographic and Biometric)
• Iris image collection
• Finger-print collection
• Outside an Enrollment Center
• Inside an Enrollment Center

Problems

Problems have been reported with the enrollment and delivery of the Aadhaar letter and the acceptance of Aadhaar number.

There have been reports of impolite staff, and unsatsfied queries. Most of the centers are queue based, only few centers are appointment-based. One week prior information of camps are not given in the locality.

Acceptance

For the process to link Aadhaar with LPG and bank account to receive subsidy, recipients have been asked to submit various paper-based copies, rather than via online self-service. A photocopy of Aadhaar on folded form is required, rather than the e-Aadhaar or an e-KYC at LPG dealer office.

• Bank Staff ask for original Aadhaar card to be produced for verification when we present printout of e-Aadhaar letter. They are not aware that Aadhaar is just a Number, not a Card which needs online verification with Aadhaar-database-server.

Staff of some departments are not yet aware that Aadhaar can be accepted as a minimum KYC (PoI, PoA, PoR) document. RTO accepts Aadhaar only as additional ID, not sole ID till the Motor Vehicle Act is amended. No branches of Banks (except those of Axis Bank) have so far become e-KYC compliant yet.

Some politicians and middlemen have vehemently opposed adoption of Aadhar for the PDS Ration, and corruption continues.

Enrollment

People of some states, such as Uttar Pradesh, Bihar, Tamil Nadu and West Bengal, are not aware that NPR (under the Ministry of Home Affairs) is responsible for Aadhaar enrollment in those areas.

Aadhaar letter delivery problems

The public is generally not aware of E-Aadhaar download (self-service to download pdf copy). The Aadhaar letter is not delivered by India Post even after 3 months. Intimation of the generated Aadhaar is not given to applicants by SMS or email.

See also

• National identification number
• Social Security Number
• Aadhar-enabled payment system
• National Population Register
• Social Security (USA)

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