OIM - Legal Identity System Maturity Assessment Methodology

LEGAL IDENTITY

SYSTEM MATURITY ASSESSMENT METHODOLOGYThe opinions expressed in this publication are those of the authors and do not necessarily reflect the views of the International Organization for Migration (IOM). The designations employed and the presentation of material throughout the publication do not imply expression of any opinion whatsoever on the part of IOM concerning the legal status of any country, territory, city or area, or of its authorities, or concerning its frontiers or boundaries. IOM is committed to the principle that humane and orderly migration benefits migrants and society. As an intergovernmental organization, IOM acts with its partners in the international community to: assist in meeting the operational challenges of migration; advance understanding of migration issues; encourage social and economic development through migration; and uphold the human dignity and well-being of migrants.

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Required Citation: International Organization for Migration (IOM) (2025). Legal Identity System Maturity Assessment:

Methodology. IOM, Geneva.

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PUB2025/032/RLEGAL IDENTITY

SYSTEM MATURITY

ASSESSMENT

METHODOLOGY Prepared by Zoran DjokovicCONTENTS Introduction to Legal Identity System Assessment Methodology v Pillars of a legal identity system vi Maturity Level Assessment Methodology viii Assigning scores and weights ix Calculating weighted points ix Overview of legal identity system categories, their maturity indicators, scores and weights xi Determining the overall maturity level xiv

1. Civil Registration 1

Historical background/legal framework and institutional setup 1 1.1 Birth registration completeness 2 1.2 Death registration completeness 4 1.3 Marriage, divorce and other vital events registration completeness 7 1.4 Accessibility of registration services 10 1.5 Decentralization of notifiers of vital events 12 1.6 Unique identifier 15 1.7 Digitalized records processing 17 1.8 Digitalized legacy records management 20 1.9 Registration of vital events of citizens abroad 23

2. National ID System 27

Historical background/legal framework and institutional setup 27 2.1 ID Card coverage rate 27 2.2 Accessibility of ID application/renewal offices 30 2.3 T ype of ID token 33 2.4 T echnology and infrastructure 35 2.5 Operational efficiency 38 2.6 Accessibility of passport services for citizens abroad 41 2.7 Passport security 443. Digital Public Infrastructure 47 3.1 Civil registration and national identity records integration 47 3.2 Population register 50 3.3 Digital Identity accessibility 52 3.4 National data interoperability layer 54

2.6 Accessibility of passport services for citizens abroad 41 2.7 Passport security 443. Digital Public Infrastructure 47 3.1 Civil registration and national identity records integration 47 3.2 Population register 50 3.3 Digital Identity accessibility 52 3.4 National data interoperability layer 54 3.5 Security of personal data 57

4. Management of Foreigner’s Identity Data 61 4.1 Visa management system 61 4.2 Border management information system 64 4.3 Register of resident non-citizens 67 4.4 Access to legal identity for undocumented migrants 70 4.5 Access to legal identity for migrants with refugee or asylum-seeker status 73

5. Compliance with Rights-Based and Equality Standards 77 5.1 Children’s right to legal identity 77 5.2 Women’s right to equal legal identity 80 5.3 Migrants’ Right to Legal Identity 83 5.4 Persons with disabilities’ right to legal identity 86 5.5 Legal identity data protection and privacy 89 5.6 Civil society participation and oversight 92INTRODUCTION TO LEGAL IDENTITY SYSTEM ASSESSMENT METHODOLOGY A legal identity system refers to the institutional, administrative and technical framework established by a government to register, manage and maintain the legal identity of individuals from birth to death.

It encompasses civil registration processes, identity management systems and the issuance of credentials such as birth certificates, identity cards or digital identity credentials. The system ensures the continuous, universal and permanent recording of individuals’ vital events, such as births, deaths and marriages, and provides mechanisms for updating and verifying legal identity information throughout an individual’s life. A legal identity system also incorporates technologies for managing and securing personal data, ensuring privacy and preventing unauthorized access, while facilitating access to public services and participation in legal and economic activities. Assessing legal identity systems is essential for countries seeking to establish reliable, efficient civil registration and identification systems. An assessment provides critical insights into system strengths and weaknesses, offering a roadmap for targeted improvements. It allows governments and stakeholders to evaluate

economic activities. Assessing legal identity systems is essential for countries seeking to establish reliable, efficient civil registration and identification systems. An assessment provides critical insights into system strengths and weaknesses, offering a roadmap for targeted improvements. It allows governments and stakeholders to evaluate system functionality, focusing on data accuracy, security, accessibility and interoperability, which are key to effectiveness and reliability. By identifying weaknesses, the assessment guides strategic planning and resource allocation, ensuring resources are directed where most needed. For international development partners, such assessments are vital for designing targeted interventions that support countries in achieving comprehensive, reliable legal identity systems. For IOM, these assessments provide a detailed understanding of the existing infrastructure and processes, therefore directly facilitating the design and implementation of potential projects. By identifying areas that need strengthening, IOM can tailor its support to address specific gaps and challenges. This targeted assistance ensures that resources are used efficiently, maximizing the impact of development efforts. The assessment process itself involves a systematic evaluation using defined indicators that capture the essential components of the legal identity system. These indicators cover a range of factors, including the completeness and accuracy of civil registration data, the accessibility and inclusiveness of registration services and the security and integration of identity management systems. By scoring these indicators across various maturity levels, the assessment provides a quantifiable measure of the system’s performance. This approach not only facilitates a thorough evaluation but also promotes consistency and comparability across different assessments. It enables countries to benchmark their systems against established standards and best practices, fostering a culture of continuous improvement. Furthermore, the results of these assessments can be used to monitor progress over time, demonstrating the effectiveness of interventions

and informing future strategies. LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogy vPILLARS OF A LEGAL IDENTITY SYSTEM Figure 1. Pillars of a legal identity system Birth registration Death registration Marriage and divorce registration Consular services Voting services Issuance of passports and other ID documents Voting services Residency permits Work authorizations Cloud services Data security Interoperability of systems National ID cards Digital ID initiatives Biometric data collection Voter registration Social security databases Health registers Education registers Legal frameworks Registration procedures Protection considerations IDENTITY AND MIGRATION MANAGEMENT Anti-discrimination policies Access to justice Privacy and data protection Civil registration systems Identity management for citizens abroad Addressing irregular migration Identity management for foreigners Functional registers Identification systems Digital public infrastructure Human rights and equality standards The assessment methodology adopts a holistic approach in examining a specific country’s legal identity system, recognizing that the civil registration, identification systems and functional registers are not isolated components but rather integral parts of a comprehensive and interconnected ecosystem. The strength or weakness of any individual component can have ripple effects across the entire legal identity landscape. This holistic view acknowledges that the civil registration system, responsible for recording vital events such as births, deaths, marriages and divorces, serves as the foundational component that feeds into the identification management systems. Robust civil registration is essential for establishing legal identity from birth and enabling the issuance of identity credentials. Furthermore, the identification management systems, encompassing national identity document (ID) programmes, digital ID initiatives and population registers, rely on accurate and timely data from civil registration to ensure the integrity and completeness of identity records. Weaknesses in civil registration processes can lead to gaps or inconsistencies in identification databases, undermining their reliability and effectiveness. Inefficiencies or limitations in identification systems can hinder access to essential services and rights that require proof of legal identity, consequently impacting the demand for and perceived value of civil registration services.

in civil registration processes can lead to gaps or inconsistencies in identification databases, undermining their reliability and effectiveness. Inefficiencies or limitations in identification systems can hinder access to essential services and rights that require proof of legal identity, consequently impacting the demand for and perceived value of civil registration services. Additionally, functional registers, such as voter rolls, social security databases or immigration records, often draw upon the foundational data from civil registration and identification systems. Discrepancies or challenges in these core systems can cascade into inaccuracies or incomplete information in functional registers, affecting their intended purposes. LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogyviThe assessment also encompasses the identity management of citizens abroad and foreigners staying on the national territory, whether as visitors or permanent residents. Special attention is devoted to addressing irregular migration in the context of identity management. For citizens abroad, the assessment examines the processes and systems in place for civil registration and issuance of identity documents through consular services. This includes the ability to register vital events, such as births, marriages and deaths for citizens living overseas and the mechanisms for providing them with legal identity documents, such as passports. Regarding foreigners staying on the national territory, the assessment evaluates the procedures for registering and managing their identities, including the issuance of appropriate documentation, such as residence permits or work authorizations. This aspect is crucial for ensuring the proper identification and legal status of foreign nationals within the country, facilitating foreigners’ access to rights and services, and supporting effective immigration policies. The approach applied in this assessment methodology specifically addresses the challenges posed by irregular migration, recognizing the complexities and sensitivities surrounding this issue. The assessment explores the existing frameworks and capabilities for identifying and registering individuals in irregular migration situations, while also considering the protection needs and human rights implications involved. Through its comprehensive approach, the assessment methodology examines the interdependencies and interconnections between these various components

this issue. The assessment explores the existing frameworks and capabilities for identifying and registering individuals in irregular migration situations, while also considering the protection needs and human rights implications involved. Through its comprehensive approach, the assessment methodology examines the interdependencies and interconnections between these various components of the legal identity ecosystem by using digital public infrastructure. It analyses how the strengths or weaknesses in one area may influence or compound challenges in other areas, painting a comprehensive picture of the system’s overall performance and resilience. This holistic perspective enables the identification of systemic issues, facilitates the development of coordinated and integrated solutions and ultimately supports the establishment of a robust and coherent legal identity system that serves the needs of individuals, institutions and society. In addition, the assessment methodology emphasizes human rights and equality standards, acknowledging that a robust legal identity system must uphold the fundamental rights of all individuals. It evaluates how the system aligns with international human rights instruments, such as the Universal Declaration of Human Rights and the Convention on the Rights of the Child. The assessment examines whether the system ensures non-discriminatory access to legal identity, protects individual privacy as well as personal data protection, and includes measures to reach marginalized or vulnerable populations such as women, children, ethnic minorities, refugees and stateless persons. By integrating human rights and equality considerations, the methodology promotes a legal identity system that not only functions effectively but also upholds the dignity and rights of every person. Legal Identity Assessment in Cabo Delgado, Mozambique. © IOM 2024 LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogy viiMATURITY LEVEL ASSESSMENT METHODOLOGY Central to the methodological approach is the development of the Legal Identity System Assessment Matrix, which is developed as a structured methodological tool designed to evaluate the maturity of a country’s legal identity system. This comprehensive matrix is used to assess various pillars crucial to a robust and inclusive identity management

Central to the methodological approach is the development of the Legal Identity System Assessment Matrix, which is developed as a structured methodological tool designed to evaluate the maturity of a country’s legal identity system. This comprehensive matrix is used to assess various pillars crucial to a robust and inclusive identity management system, including civil registration, identification systems, migrants’ identity management and the supporting digital public infrastructure. The assessment matrix, available in a separate Excel file, can then be used by IOM Missions, Government entities or other stakeholders as a tool for understanding the current state of these systems, identifying gaps and planning for future improvements. The methodology uses a mixed-method approach, incorporating both quantitative and qualitative data collection techniques. This approach enables gathering a comprehensive and robust set of data, combining the statistical rigour of quantitative methods with the depth and context provided by qualitative insights. By leveraging both types of data, the aim is to ensure a well-rounded understanding of the subject, facilitating more accurate and reliable conclusions. As part of the quantitative data collection, the methodology defines a set of indicators and a scoring system to assess the level of development, digital preparedness and performance of the legal identity system. These indicators cover various dimensions, including coverage, accessibility, operational efficiency, data quality and integration with other systems. The scoring system allows for categorization of countries based on their legal identity system’s strengths and areas for improvement. DEFINING MATURITY LEVELS T o identify each of these indicators, the next step is to define four distinct maturity levels for each. These levels provide a framework for assessing the current state of the system and tracking its progress over time. The four maturity levels are: Emerging: This level signifies that the system is in its initial stages of development. At this point, many foundational elements may be missing or underdeveloped, indicating significant opportunities for improvement. Systems at this level often require substantial investments in infrastructure, processes and capacity development to progress.

Emerging: This level signifies that the system is in its initial stages of development. At this point, many foundational elements may be missing or underdeveloped, indicating significant opportunities for improvement. Systems at this level often require substantial investments in infrastructure, processes and capacity development to progress.

Developing: Systems at this level have made noticeable progress but are not yet fully established.

The system functions partially, with some components operational while others are still being developed. Continued efforts are necessary to enhance the system’s capabilities and achieve a more stable and consistent performance.

Established: At this stage, the system is well developed and operational, with most of the necessary processes and infrastructure in place. The system is generally reliable and functional, though there may still be areas that require fine-tuning and optimization to reach higher levels of efficiency and effectiveness.

Advanced: This level indicates a fully mature system that is highly efficient and meets all criteria for effectiveness and integration. Systems at this level operate seamlessly, demonstrating high levels of performance, security and user satisfaction. Continuous improvement practices are often in place to maintain this high standard and adapt to evolving needs.

LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogyviiiASSIGNING SCORES AND WEIGHTS Each indicator is then assigned a score corresponding to these four maturity levels, with scores increasing from Emerging to Advanced. This scoring system reflects the progression in system maturity and provides a quantifiable measure of the system’s current state. T o ensure a comprehensive assessment, each indicator is also assigned a weight based on its relative importance in the overall evaluation. These weights are expressed as decimal values, with the total of all weights totalling 1.0. This weighting process acknowledges that some indicators of the system may be more critical than others in determining the overall maturity level. CALCULATING WEIGHTED POINTS The next step involves calculating the weighted points for each indicator. This is done by multiplying the score

acknowledges that some indicators of the system may be more critical than others in determining the overall maturity level. CALCULATING WEIGHTED POINTS The next step involves calculating the weighted points for each indicator. This is done by multiplying the score for the applicable maturity level by the assigned weight. These weighted points provide a more nuanced view of the system’s performance by considering both the score and the importance of each indicator. The weighted points for all indicators are then summed up to obtain the total score. This total score represents the overall maturity level of the civil registration and ID integration system. It offers a comprehensive measure that highlights both the strengths and weaknesses of the system, identifying areas that are well developed and those that need further improvement. The assessment is based on weighted scores assigned to different pillars of the legal identity system. Higher scores indicate a more advanced and well-established system. Emerging Developing Established Advanced 0 25 50 75 100 Legal identity assessment report The Legal Identity System Assessment Report (report template and instructions for completion) serves as a structured guide for evaluating a country’s legal identity framework. It offers a comprehensive outline to help assess key components of the legal identity system, such as civil registration, national identification, interoperability and inclusivity. The template provides step-by-step instructions for collecting, analysing, and summarizing both quantitative and qualitative data, emphasizing the importance of highlighting strengths and identifying areas needing further improvement. Ultimately, it aims to produce a clear, evidence-based document that outlines the maturity level of the legal identity system and provides actionable recommendations for enhancing its efficiency, inclusiveness and alignment with international standards. Instructions for compiling of the report: • For each indicator in the report, the provided list of questions should be used to: • Gain a deeper understanding of the indicator. • Obtain key quantitative data. • Gather information to inform the qualitative analysis of the indicator. • The analysis text should remain within the size indicated in the title of the indicator.

• For each indicator in the report, the provided list of questions should be used to: • Gain a deeper understanding of the indicator. • Obtain key quantitative data. • Gather information to inform the qualitative analysis of the indicator. • The analysis text should remain within the size indicated in the title of the indicator. • Information linked to the listed questions should be gathered through: • Desk review of publicly available documents. • Interviews with key informants who have relevant knowledge and experience. • For each indicator, guidance is provided on: • T ypes of public documents that could yield relevant information. • Suitable key informants who could offer detailed perspectives, along with information on to whom questions should be directed.

LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogy ix• After conducting both the quantitative and qualitative analyses and drafting the narrative (excluding the conclusions), a detailed narrative synthesis text should be provided for each indicator. • Once the analysis is completed: • The maturity level matrix should be consulted to determine which maturity level corresponds to your findings. • The identified characteristics should be compared with those described in the maturity matrix. • The maturity level selected should reflect the documented evidence. • The appropriate maturity level should be recorded in the corresponding box within the report. LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogyxOVERVIEW OF LEGAL IDENTITY SYSTEM CATEGORIES, THEIR MATURITY INDICATORS, SCORES AND WEIGHTS Step-by-Step Guide to Filling in the Legal Identity System Assessment Matrix (Excel) Step 1: Open the Excel File • Open the provided Excel file.

• Navigate to the relevant sheet, such as:

• “1. Civil Registration”
• “2. National ID Card” • “3. Digital Public Infrastructure” • “4. Management of Foreigners Identity” • “5. Human Rights” • “TOTAL Maturity Level” Step 2: Understand the Structure of Each Sheet Each row represents an indicator assessing a specific aspect of the legal identity system.

Key columns in each sheet: • Indicator Name – The topic being measured. • Description – Explanation of what the indicator evaluates. • Score – A drop-down menu where you select a value based on the columns provided in this guide (10, 30, 60, or 100). • Maturity Level – Updates automatically based on the score. • Weight – A fixed value indicating the indicator’s importance. • Weighted Points (Column H) – Score×Weight Step 3: Assign a Score for Each Indicator • Click on the Score cell for the first indicator. • Select a value from the drop-down menu based on the current system status: • 10 = Emerging (Basic or no implementation) • 30 = Developing (Partial implementation) • 60 = Established (Mostly functional system) • 100 = Advanced (Fully mature and integrated system) Step 4: Verify Maturity Level (Automatic Update) • The Maturity Level (Column F) will update automatically based on your selected score. • 10 → Emerging • 30 → Developing • 60 → Established • 100 → Advanced Step 5: Complete All Indicators • Repeat Step 3 for all indicators in the sheet. • Ensure all relevant indicators have a score.

Step 6: T otal Maturity Level Score The “TOTAL Maturity Level” sheet provides the final country-wide score based on data from all other sheets.

How It Works: • Aggregates scores from all categories. • Computes an overall country maturity score by multiplying total weighted points by assigned weights. • Automatically assigns a final maturity level

(Emerging, Developing, Established or Advanced). • Generates an automatic graph showing the maturity levels across different pillars.

What you Should Do:

• Aggregates scores from all categories. • Computes an overall country maturity score by multiplying total weighted points by assigned weights. • Automatically assigns a final maturity level

(Emerging, Developing, Established or Advanced). • Generates an automatic graph showing the maturity levels across different pillars.

What you Should Do:

1. Review the Maturity Level Pillars Score for each pillar.

2. Check the assigned Maturity Level Score per pillar.

3. Look at the overall system maturity score (final country-wide level).

4. Copy the automatically generated graph for reports or presentations for a breakdown per pillar.

LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogy xiTable 1. Civil Registration

INDICATOR

NAME DESCRIPTION SCORE EMERGING DEVELOPING ESTABLISHED ADVANCED WEIGHT WEIGHTED POINTS Birth r egistration Completeness Measures the proportion of births registered within a specified period. 10 30 60 100 0.4 death registration Completeness Measures the extent to which deaths are officially recorded. 10 30 60 100 0.05 marriage registration Completeness Assesses the completeness of marriage and divorce registrations. 10 30 60 100 0.05 accessibility of r egistration Services Reflects the extent to which individuals can access registration services. 10 30 60 100 0.05 decentralization of notifiers Measures the distribution of responsibilities for notifying vital events. 10 30 60 100 0.05 unique Identifier Indicates whether unique IDs are assigned at birth. 10 30 60 100 0.05 digitalized records Processing Evaluates the extent to which records are processed digitally. 10 30 60 100 0.1 digitalized Legacy r ecords management Measures the effectiveness of converting historical records into digital formats. 10 30 60 100 0.2 registration of vital

Evaluates the extent to which records are processed digitally. 10 30 60 100 0.1 digitalized Legacy r ecords management Measures the effectiveness of converting historical records into digital formats. 10 30 60 100 0.2 registration of vital events of citizens residing abroad Registration of vital events at diplomatic offices abroad. 10 30 60 100 0.05 TOTAL MATURITY LEVEL SCORE Table 2. National ID Card INDICATOR NAME DESCRIPTION SCORE EMERGING DEVELOPING ESTABLISHED ADVANCED WEIGHT WEIGHTED POINTS Id Coverage r ate Proportion of the population possessing national ID cards. 10 30 60 100 0.5 accessibility of Id application Services Reflects the ease of obtaining or renewing ID cards. 10 30 60 100 0.05 type of Id t oken T ype and security level of ID tokens. 10 30 60 100 0.2 technology and Infrastructure Evaluates the technological and infrastructural support for the ID system. 10 30 60 100 0.1 operational efficiency Assesses the effectiveness and speed of ID processing and issuance. 10 30 60 100 0.05 accessibility of passport services for citizens residing abroad Integration and use of ID systems across various platforms and services. 10 30 60 100 0.05 Passport security Measures the sophistication of physical and electronic security features in passports. 10 30 60 100 0.05 TOTAL MATURITY LEVEL SCORE LegaL IdentIty Sy Stem maturIty aSSeSSment: methodoL ogyxiiTable 3. Digital Public Infrastructure INDICATOR NAME DESCRIPTION SCORE EMERGING DEVELOPING ESTABLISHED ADVANCED WEIGHT WEIGHTED POINTS Civil r egistration and Id Integration Integration of civil registration and ID records. 10 30 60 100 0.2 Population register Unified personal record

INDICATOR NAME DESCRIPTION SCORE EMERGING DEVELOPING ESTABLISHED ADVANCED WEIGHT WEIGHTED POINTS Civil r egistration and Id Integration Integration of civil registration and ID records. 10 30 60 100 0.2 Population register Unified personal record based identity database. 10 30 60 100 0.2 national data Interoperability Layer Facilitates data exchange and integration across government systems. 10 30 60 100 0.2 digital Id accessibility Ease with which citizens can obtain, use, and man