37. Memorandum submitted by
the Police Federation of England and Wales
IDENTITY CARDS:
A POLICING
PERSPECTIVE
Background
1. The Police Federation of England and
Wales is the representative body for over 133,000 members of the
police service below the rank of superintendent.
2. For reasons of brevity, we have chosen
to comment only upon those aspects of the Home Affairs Committee
inquiry with which the Police Federation has both expertise and
experience. In addition to rationalising the justifications to
introduce identity cards, this paper highlights those areas we
believe require further consideration.
Introduction
3. The Police Federation has supported the
introduction of a national identity card scheme for over a decade,
not as a reaction to any one event, but following objective appraisal.
We have taken cognisance of the views from both sides of what
has become an acutely polarised debate, but believe now is the
time for the debate to move on to discuss specifics and the practicalities
of the various possible forms of identification.
4. Identity cards should be kept in perspective.
They are not a panacea. Nonetheless they could be part of a broader
solution and would make a police officer's job on the street easier.
5. We support the government's decision
to introduce a draft bill. Less evasive but secure systems are
likely to be accepted quickly. Unless, however, the public are
made aware of the positive value of identity cards it is entirely
understandable that a degree of reluctance will persist. As awareness
of the benefits of identity cards increases, so too will the level
of public support.
Practical issues involved in the ID database and
biometric identifiers
6. Technological developments provide the
opportunity to explore in greater detail the introduction of a
system that incorporates biometric data unique to the individual.
7. It would be wrong to depict ID cards
as `Orwellian' merely because they utilise biometric identifiers.
It should be borne in mind that biometric identifiers would prevent
forgeries, thereby protecting one's identify. The UK could potentially
enjoy the most advanced identity card system in the world.
8. The use of biometric identifiers is likely
to increase throughout society, an example of which is North Somerset
Police's "thumbprint ID program" with local retailers,
whereby on purchase with a credit card shoppers may be asked to
submit a thumbprint in addition to a signature. Shoppers and retailers
alike therefore benefit from identity protection.
9. We fully support examinations into the
security of the proposed identity card and integrity of the accompanying
database. The Police Federation will therefore pay close attention
to the UK Passport Agency pilot scheme eg assessing the popularity
and effectiveness of the different forms of biometric identifiers.
It is appropriate for this to precede decisions concerning which
data could and should be held on any future card.
The security and integrity of the proposed system
10. The security and integrity of the proposed
system is clearly an issue of paramount importance. Whilst we
can understand concerns some individuals may harbour, we are confident
that lessons learnt from systems abroad, coupled with technological
advances, should ensure any UK-wide identity card system is both
reliable and robust.
The operational use of ID cards in establishing
identity, accessing public services, and tackling illegal migration,
crime, and terrorism
11. This submission primarily concerns operational
issues with which our policing experience affords a unique insight.
Although we support those arguments in favour of introducing identity
cards with regard to benefit fraud etc., we do not feel sufficiently
qualified to comment on such matters within this submission.
Amelioration of working practices
12. Identity cards could bring a wide range
of benefits to the police in terms of working practices, for instance
expediting the criminal justice system.[66]
(a) Driver Identification: despite the new form
of driving licenses, the police currently have no reliable means
to identify drivers. Whilst the Police National Computer (PNC)
enables us to identify the vehicle, together with the criminal
and motoring history of an individual, the driver remains anonymous
unless a time-consuming driver interrogation is undertaken. Positive
identification would allow the police to fully utilise their resources,
for instance the information held upon the PNC. In addition, driver
identification would prove beneficial following non-criminal incidents,
such as road traffic accidents.
An issue stemming from driver identification
is one of liberty, and is an example of a fundamental flaw at
the very core of the argument that identity cards abridge freedoms.
If requested by the police, the driver, on request from the officer,
must report to a police station within seven days. This is as
onerous as it is irksome and amounts to a far greater `infringement'
of liberty than simply producing a card to confirm their identity.
(b) Stop and Search is a vital tool in our armoury,
without which a minority of individuals would have the confidence
to carry whatever they liked upon their person.
Stop and Search procedures would be greatly improved
following the introduction of identity cards. Firstly, police
officers would be able to identify individuals beyond doubt. Secondly,
curtailing the time taken to conduct stop and searches would enhance
an individual's liberty. Thirdly, this time saving would also
greatly benefit the police, allowing officers to spend more time
policing the streets.
If identity cards were compatible with a system
of police smart card readers, officers would simply be able to
check if and when they or their colleagues had stopped an individual
before. This would ensure that the same individuals are not repeatedly
searched within a given time-period.
(c) Football grounds/hooligans—proper implementation
of banning orders would be far easier if a quick and easy identification
assessment could be made.
(d) Proof of age identification causes great
problems for both retailers (licensing, gambling etc.) and the
authorities alike, especially in the `night-time' economy. Some
eighteen year olds look thirteen and vice versa. Identity cards
would remove this ambiguity, allowing for a more stringent application
of the law. At present many different voluntary identity systems
are in place and are demanded in some premises.
(e) Street bail—if it were possible to
ascertain a bona fide name and address to forward charges
by post, the timely necessity of arresting individuals until the
correct details are established (or detention in the case of Community
Support Officers) would become redundant. This would therefore
save later enquiries when name and addresses are proved to be
false.
(f) Anti-Social Behaviour Orders (ASBOs)—identity
cards would make it far easier to determine whether or not individuals
were breaking an ASBO. This would greatly strengthen the existing
legislation.
(g) Background checks—processes for vetting
individuals (be it for jobs working with children or as door security
in pubs and clubs) are not watertight. Until positive identification
can be fully guaranteed holes in the integrity of the system such
as the use of dual identities will persist.
(h) Identity protection—the fight against
identity theft would be revolutionised if an identity card system
were to be introduced.
The security dimension
13. National security is likely to be an
issue at the top of the policing agenda for the foreseeable future.
All possible steps should therefore be sought to ensure security
is maximised and we wholeheartedly support the introduction of
identity cards within this context.
14. We have never argued identity cards
would have a panacean effect with regard to terrorism. No one
factor could ever have such an impact. They would, however, be
part of a broader solution, helping to safeguard security by placing
an additional hurdle in the path of terrorists. Clearly not all
terrorists would be caught as a result of identity cards, but
this in no way obviates the need for them in the first place.
15. Identity cards would facilitate the
build up of essential intelligence information on terrorist suspects
in much the same way as with any individuals with criminal intent.
Developing patterns of movement based upon where suspects have
been recorded etc. could be invaluable for anti-terrorist operations.
Issues to be addressed in the longer-term, including
compulsion
16. Our views vis-a"-vis compulsion
are clear and unambiguous. We support the implementation of a
universal and compulsory system. This is not to say that we would
be opposed to a lesser implementation of identity cards—a
form of limited identification is better than none whatsoever—rather
our preference is based upon elemental logic. As the level of
compulsion and universality increases so too does the effectiveness.
Under a non-compulsory and non-universal identity card system
not all potential cost-savings and benefits could be fully realised,
thereby maintaining existing inefficiencies in the criminal justice
system.
17. We believe the policing `need' for identity
cards should be married with public support. A compulsory system
should therefore be preceded by a `phased-in' voluntary system.
Such a transition would enable the public to become accustomed
to using their cards, in addition to smoothing out any initial
logistical challenges.
18. In the long-term, two key issues will
need to be addressed. Firstly, under what circumstances would
police officers or other authorities be able to ask to see the
identity card. Secondly, if a compulsory system were to be adopted
in the future, what sanctions would exist for the non-carrying
or non-display on request of an identity card.
19. We are confident that neither of these
riders would be a cause of concern for law-abiding citizens, especially
because a voluntary identity card period would promote both their
use and an understanding of their importance.
The estimated cost of the system
20. Clearly whatever the specifics of the
chosen scheme, it will require substantial initial investment.
These start-up costs should, however, be viewed over the lifetime
of the system. It is therefore the cost per annum that is of greatest
significance.
21. Significantly, transitional costs are
the most frequent figure quoted by those opposed to identity cards.
No mention is made of the benefits in monetary terms that the
cards would secure. To say that the costs exceed the benefits
is therefore an inherently facile analysis. Whilst it is complicated
to quantify many of the benefits accrued, it is not impossible.
In policing terms (paragraphs 11 to 15) benefits are both direct
eg streamlining the criminal justice process, and indirect eg
substantial timesavings. It is these opportunity costs that are
vital but are too often hidden behind smoke and mirror figures.
22. We firmly believe the merits outweigh
transitional and running costs. Until the debate moves forward
however the public will continue to be informed of the cost of
everything, but the value of nothing. Recognition must therefore
be made of these intangibles, the most significant and controversial
of course being the impact upon security. It should be recognised
that every major policing organisation fully supports a system
of identity cards.
Conclusion
23. With such a wide range of advantages,
we believe introducing identity cards is in the best public interest
and should therefore be embraced, not feared. A draft identity
card bill is therefore an important stepping stone in a process
that we hope, in time, will culminate in the phased introduction
of a universal and compulsory identity card scheme.
22. Debates regarding the merits of specific
aspects of any future identity card bill will no doubt be marked
by the same strength of feeling as those which have taken place
to date. The discussions should not distract however from the
substantial arguments in favour of progression. At present, the
police and the majority of the public support identity cards.
Criminals and terrorists do not. In the fullness of time we believe
people will question why it took so long for them to be introduced
in the first place.
January 2004
66 It should be noted that the examples enumerated
represent only a snapshot of the advantages of identity cards. Back
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