Implementation Completion and Results Report (ICR) Document...• The birth registration offices...

Document of

The World Bank FOR OFFICIAL USE ONLY

Report No: ICR00004570

IMPLEMENTATION COMPLETION AND RESULTS REPORT

(IDA-49380)

ON A

CREDIT

IN THE AMOUNT OF SDR 123 MILLION

(US$ 195 MILLION EQUIVALENT)

TO THE

PEOPLE’S REPUBLIC OF BANGLADESH

FOR THE

BANGLADESH: IDENTIFICATION SYSTEM FOR ENHANCING ACCESS TO SERVICES (IDEA) PROJECT (P121528)

August 24, 2018

Governance Global Practice

South Asia Region

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CURRENCY EQUIVALENTS

(Exchange Rate Effective August 24, 2018)

Currency Unit = Bangladesh Taka (BDT)

BDT 84.75 = US$1

US$ 1 = SDR 0.70

FISCAL YEAR

July 1 - June 30

ABBREVIATIONS AND ACRONYMS

API Application Programming Interface

BDT Bangladesh Taka

BCC Bangladesh Computer Council

BEC Bangladesh Election Commission

CAS Country Assistance Strategy

CPTU Central Procurement Technical Unit

DRS Disaster Recovery Site

e-ID electronic Identity

e-KYC Electronic Know Your Customer

GOB Government of Bangladesh

ICT Information and Communication Technology

IDA International Development Association

IDEA Identification System for Enhancing Access to Services

ISR Implementation Status and Results Report

M&E Monitoring and Evaluation

NBR National Board of Revenue

NEA National Enterprise Architecture

NID National Identification

NIDW National Identity Registration Wing

NIRA National Identity Registration Act, 2010

NPV Net Present Value

PDO Project Development Objective

PERP Preparation of Electoral Roll with Photographs

PMC Project Management Consultancy firm

TA Technical Assistance

TTL Task Team Leader

UNDP United Nations Development Program

VPN Virtual Private Network

Regional Vice President: Hartwig Schafer

Country Director: Qimiao Fan

Senior Global Practice Director: Deborah L. Wetzel

Practice Manager: George Addo Larbi

Task Team Leader(s): Syed Khaled Ahsan

ICR Main Contributor: Sathyanadhan Achath

TABLE OF CONTENTS

DATA SHEET ....................................................................... ERROR! BOOKMARK NOT DEFINED.

ABSTRACT ............................................................................................................................. 5

I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 8

A. CONTEXT AT APPRAISAL .................................................................................................... 8

B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) ................................ 13

II. OUTCOME .................................................................................................................... 18

A. RELEVANCE OF PDOS ....................................................................................................... 18

B. ACHIEVEMENT OF PDOS (EFFICACY) ................................................................................. 18

C. EFFICIENCY ...................................................................................................................... 23

D. JUSTIFICATION OF OVERALL OUTCOME RATING .............................................................. 25

E. OTHER OUTCOMES AND IMPACTS .................................................................................... 26

III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 27

A. KEY FACTORS DURING PREPARATION .............................................................................. 27

B. KEY FACTORS DURING IMPLEMENTATION........................................................................ 29

IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 30

A. QUALITY OF MONITORING AND EVALUATION (M&E) ....................................................... 30

B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE ............................................... 31

C. BANK PERFORMANCE ...................................................................................................... 32

D. RISK TO DEVELOPMENT OUTCOME .................................................................................. 33

V. LESSONS AND RECOMMENDATIONS ............................................................................. 34

ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 36

ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ......................... 48

ANNEX 3. PROJECT COST BY COMPONENT ........................................................................... 50

ANNEX 4. EFFICIENCY ANALYSIS ........................................................................................... 51

ANNEX 5. BORROWER AND CO-FINANCIER COMMENTS ....................................................... 52

ANNEX 6. SUPPORTING DOCUMENTS .................................................................................. 55

ANNEX 7: SPLIT RATING CALCULATION ........................................................................................... 56

ANNEX 8: RISK ASSESSMENT ........................................................................................................... 57

APPENDIX 1: BORROWER’S REPORT ................................................................................................ 60

The World Bank BD Identification System for Enhancing Access to Services (IDEA) Project (P121528)

Page 1 of 125

DATA SHEET

BASIC INFORMATION

Product Information

Project ID Project Name

P121528 BD Identification System for Enhancing Access to Services

(IDEA) Project

Country Financing Instrument

Bangladesh Investment Project Financing

Original EA Category Revised EA Category

Not Required (C) Not Required (C)

Organizations

Borrower Implementing Agency

Economic Relations Division Election Commission Secretariat

Project Development Objective (PDO) Original PDO

Establish a secure, accurate and reliable national ID system that serves as the basis for more efficient and transparent service delivery


Page 2 of 125

FINANCING

Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$)

World Bank Financing IDA-49380

195,000,000 170,042,060 113,738,163

Total 195,000,000 170,042,060 113,738,163

Non-World Bank Financing

Borrower 24,000,000 0 0

Total 24,000,000 0 0

Total Project Cost 219,000,000 170,042,060 113,738,163

KEY DATES

Approval Effectiveness MTR Review Original Closing Actual Closing

10-May-2011 28-Aug-2011 18-Jan-2015 30-Jun-2016 28-Feb-2018

RESTRUCTURING AND/OR ADDITIONAL FINANCING

Date(s) Amount Disbursed (US$M) Key Revisions

12-Aug-2013 3.36 Reallocation between Disbursement Categories

28-Jun-2015 65.63 Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Change in Financing Plan Reallocation between Disbursement Categories Change in Implementation Schedule

29-Dec-2017 113.19 Change in Loan Closing Date(s) Cancellation of Financing Reallocation between Disbursement Categories

KEY RATINGS

Outcome Bank Performance M&E Quality

Moderately Unsatisfactory Moderately Satisfactory Substantial


Page 3 of 125

RATINGS OF PROJECT PERFORMANCE IN ISRs

No. Date ISR Archived DO Rating IP Rating Actual

Disbursements (US$M)

01 27-Sep-2011 Satisfactory Satisfactory 0

02 24-May-2012 Satisfactory Moderately Satisfactory .41

03 23-Dec-2012 Satisfactory Moderately Unsatisfactory .41

04 16-May-2013 Satisfactory Moderately Satisfactory 3.36

05 25-Nov-2013 Moderately

Unsatisfactory Unsatisfactory 3.36

06 21-Jun-2014 Moderately

Unsatisfactory Moderately Unsatisfactory 11.64

07 30-Dec-2014 Moderately


08 04-May-2015 Moderately

Unsatisfactory Moderately Satisfactory 59.08

09 09-Jul-2015 Moderately Satisfactory Moderately Satisfactory 65.63

10 20-Dec-2015 Moderately Satisfactory Moderately Satisfactory 79.45









SECTORS AND THEMES

Sectors

Major Sector/Sector (%)

Public Administration 63

Other Public Administration 63


Page 4 of 125

Information and Communications Technologies 37

Public Administration - Information and Communications Technologies

5

ICT Infrastructure 18

ICT Services 9

Other Information and Communications Technologies 5

Themes

Major Theme/ Theme (Level 2)/ Theme (Level 3) (%) Private Sector Development 0

Business Enabling Environment 33

Innovation and Technology Policy 33

Public Sector Management 0

Public Administration 67

Transparency, Accountability and Good Governance

67

ADM STAFF

Role At Approval At ICR

Regional Vice President: Isabel M. Guerrero Hartwig Schafer

Country Director: Ellen A. Goldstein Qimiao Fan

Senior Global Practice Director: Ernesto May Deborah L. Wetzel

Practice Manager: Joel Hellman George Addo Larbi

Task Team Leader(s): Junghun Cho Syed Khaled Ahsan

ICR Contributing Author: Sathyanadhan Achath


Page 5 of 125

ABSTRACT

The Identification System for Enhancing Access to Services (IDEA) Project (2011-2018) aimed at

establishing a secure, accurate and reliable national identification system in Bangladesh that would

serve as the basis for more efficient and transparent service delivery. The IDEA Project was

completed in about 6.5 years at the total cost of $113.19 million. This included 1.8-year extension.

Access to secure and reliable National Identification (NID) system and e-governance in the

government bodies were considered critical to combating corruption and providing more efficient

services. To achieve this objective, the Project supported the second phase of Bangladesh’s effort

to build a NID scheme which was based on the existing voter registration lists. Specifically, the

Project supported the Government of Bangladesh (GOB) in integrating the new identification

system into a range of public and private services and issuing NID cards for the eligible citizens

with robust security features.

Four years into the implementation, the overall pace of the Project’s key activities was considerably

lagging behind with limited progress achieved in its Project Development Objective. This was

primarily due to project readiness issues, in particular regarding rules and regulations of the

National Identity Registration Act, 2010. There was a withdrawal condition on effectiveness of the

rules and regulations for the implementation of the NIRA 2010, resulting in the delayed

commencement of procurement process in the Project. The Project finally turned around in early

2015 with noticeable progress.

The Project has several achievements which left a huge impact on the following institutions:

• Ministry of Finance is using the identity authentication services for over five million

government employees and pensioners for the payment of their salaries and pensions

respectively. The authentication service has enabled them to identify over 800,0001 ghost

employees and pensioners. A survey would be planned to calculate the actual savings after the

authentication process.

• An Electronic Tax Identification Number system used by the National Board of Revenue

has led to the removal of about 1.2 million false or duplicate taxpayer accounts which further

created the scope for clamping down on tax evasion and providing additional tax revenue to the

exchequer.

• The National Identity Registration Wing is collecting BDT 1.15 per hit from public

agencies and BDT 2.30 from private sector agencies for providing NID services. It is also

collecting fees for various services such as for corrections and replacement of lost NID cards.

As of June 30, 2018, a total of USD 17.10 million has been collected and deposited to the

exchequer.

1 Bangladesh: Improving the Administration of Civil Service Pensions, the World Bank.


Page 6 of 125

• Prior to the introduction of the identity authentication services by the Project, the

Department of Immigration and Passports was going through a lengthy verification process for

issuing passports due to multiple unreliable sources of identity proof. The applicant would also

need to submit several documents to provide evidence of identity. By using NID services, the

passports authority has been able to verify the identity of any applicant using his/her NID number

which has improved the timeliness of issuing of passports.

• The commercial banks and non-banking financial institutions are now using identity

authentication services as part of their electronic Know Your Customer process. This has

significantly reduced time for client verification and has enabled them to eliminate fake and

duplicate accounts reducing money laundering activities and reducing default rate. Earlier, it

would take at least three working days to conduct the Customer Due Diligence. At present, a

bank can instantly verify the identity of a client using the NID database.

• The mobile operators are now registering new SIM cards and replacing old SIM cards using

a biometric identity authentication system, which has enabled them to contribute to the

exchequer in collecting increased amount of revenue.

• The NID system has significantly increased the capabilities of law enforcing agencies for

better tracking of all types of criminal activities. As of June 2018, more than 66 million citizens

have successfully re-registered nearly 121 million mobile SIM cards using biometric

authentication from NID database, which helped track crime, reduce extortion using mobile

phones, and money laundering activities.

• The birth registration offices across the country are using NID numbers of the parents to

issue a birth certificate to a child. This process will, in turn, augment the NID system in

Bangladesh in the long run.

The Project is rated ‘Moderately Unsatisfactory’ as it had shortcomings in fully meeting its

development objective targets. The Project provided effective lessons that may be applicable for

similar operations in the sector or in other countries. Some of the lessons are as follows:

• Legal framework: Amendments to any Act to complete the legal framework is the

responsibility of the parliament. Complying with a suitable legal framework is not a suitable

condition for disbursement because the executive and the project do not have control over the

actions of the parliament. As such, an investment project like this would benefit from not

including a politically-linked condition outside the control of the project and its implementing

agency.

• Smart NID cards contract management: A comprehensive procurement strategy and risk

identification during project preparation is important, especially when the implementing

agency is new to the Bank. While Bangladesh Election Commission (BEC) had extensive

experience establishing a national ID system, it did not have prior experience in handling large

value IT contracts. BEC is yet to settle the outstanding payments for 77.3 million blank NID


Page 7 of 125

smart cards with its international vendor. As the IDA financing is no longer available, the BEC

has to mobilize resources for the GOB to pay outstanding fees due to the vendor.

• Political environment: The success of a project depends a great deal on its leadership capacity

and empowerment. Contrary to the expectation, the Project turned out to be politically

sensitive. Project management as well as its steering committee were often constrained in

making decisions based on available technical advice. In hindsight, the design for the

implementation arrangements could have considered more robust mitigating measures for

likely political interference in the implementation of the Project.

• Communications strategy: The Project recruited a professional communications firm to

implement strategic communication programs which was effective in the promotion of NID

authentication services. It has also collected feedback from the citizens and users of NID

services about their experience. There is continuing high demand for NID services by the

citizens as well as different agencies, and it would be important for NIDW to further strengthen

its communication strategy after closing of the Project.


Page 8 of 125

I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES

A. Context at Appraisal

Context

1. At appraisal, while Bangladesh had achieved sustained economic growth and progress

towards the Millennium Development Goals, it continued to face challenges in providing services

to its large population. The quality and quantity of services remained weak for many citizens,

particularly, the poor. One contributing factor to this weakness was the inability of service providers

to identify reliably and consistently the users or beneficiaries of their services in order to process

transactions efficiently and, in the case of public sector benefits, determine and target beneficiaries.

Procedures for compiling lists of beneficiaries was left to the discretion of the agency. Hence, the

delivery of services to the intended persons was always difficult. Many citizens who qualified for

benefits were excluded owing to this shortcoming.

2. The Government of Bangladesh (GOB) had made improvement in service delivery through

the expanded use of information and communication technologies (ICT). The GOB adopted a vision

for a “Digital Bangladesh by 2021” which involved transformation of the public sector through e-

governance measures and more generally Bangladeshi society through improved connectivity.

Digital Bangladesh envisaged mainstreaming ICT as a pro-poor tool to improve access to services,

reduce poverty, establish good governance, ensure social equity, and prepare the country for climate

change. When combined with other reforms to re-engineer business processes, ICT was expected

to lay a foundation for greater efficiency and transparency as well as reduce opportunities for

corruption.

3. A key element of the Digital Bangladesh agenda was to promote effective and efficient

eservices through the development of a National Identification (NID) system as a foundational

system. The NID system had improved the GOB’s capacity to identify citizens accurately, which

in turn had assisted in compiling data to make better planning decisions and promote inclusion. The

core information available through the system was to help track a wide range of transactions

undertaken by the public sector, from the collection of tax revenue to delivery of social benefits, as

well as systematize a wide range of record-keeping, from land cadasters to utility connections.

4. The NID system also provided a means for citizens to claim their benefits and combined

access to information in line with the country’s Right to Information Act, 2009. With the reforms

in the service sectors, the NID system had transformed the way in which citizens interact with the

service providers in the public sector to receive services. At the same time, the NID system

facilitates private sector development through lowering costs in the management of data as well as

simplifying procedures for individuals applying for services.

5. Bangladesh’s system for citizens’ identification has emanated from the process of

preparation of electoral roll with photographs for the national elections in 2008. The preparatory

efforts, and subsequent maintenance of data, brought about greater transparency and reliability in


Page 9 of 125

the identification of voters. With the support from a project titled, Preparation of Electoral Roll with

Photographs (PERP), implemented by United Nations Development Programme (UNDP), a

number of important building blocks for NID system were put in place. These included:

development of a database comprising 87 million citizens above 18 years of age; introduction of

biometric based de-duplication system for data entry; construction of basic IT infrastructure in

nearly 500 upazilla2/-level offices; and associated management experience. The biometric based

electoral roll was the key factor in ensuring the credibility of the elections in 2009 in Bangladesh.

6. The GOB was keen to develop a trusted system for identification of citizens using the

electoral roll database. It continued to further develop the database of citizens through additions and

multiple checking against possible duplications. A National Identity Registration Act (NIRA) was

adopted in early 2010 which provided the legal basis for the NID System. Bangladesh Election

Commission (BEC) was vested the responsibility of implementing the NID system through a

dedicated office, i.e., National Identity Registration Wing (NIDW).

Theory of Change (Results Chain)

7. Various aspects of the project design were considered, including similar program

documents, talking to stakeholders, and analyzing data to understand what had worked before.

During project design, the team described critical activities that would lead to long-term goal of

establishing a secure, accurate and reliable NID system in Bangladesh that serves as the basis for

more efficient and transparent service delivery. Consequently, a Results Framework was prepared

which articulated the Project’s pathway from planned interventions to the intended outcomes. See

diagram below (Diagram 1):

2 Sub-district


Page 10 of 125

Results Chain

1.

Component 1

- NID regulation for

operation and

verification of the

NID system drafted

Component 1

- Legal &

regulatory

framework

established for

the management

of NID system

- Citizens

access to

secure and

reliable ID

system is

enhanced

- Coverage

of national

ID system

for identity

verification

service has

improved

Activities Intermediate Outcomes Outcomes

Component 2

- National ID

Database,

Datacenter and

Disaster Recovery

Center established

- Private ID card

production vendor

hired

- VPN linked

established with

Datacenter

Component 3

- Staff recruited and

trained to improve

technical capacity

- Necessary

information system is

built for the design

and implementation

of cost recovery

mechanism

- Comprehensive

communication

strategy prepared.

Component 2

- IT infrastructure

developed and

made operational

- Reliable data

communication

network through

virtual private

network created

- Cost recovery

mechanism

implemented for

the NID system

- Usage of NID

card by social

services for

authentication

improved

Long term Outcomes

Component 3

- Technical and

management

capacity of the

NIDW

strengthened

- Citizen awareness

is generated

through effective

communication

mechanism

Reso

urc

es:

US

$ 1

94

milli

on

- Secure,

Accurate,

and

Reliable

National

ID System

- Efficient &

Transparen

t Service

Delivery

Underlying Assumption: A reliable national ID system will serve as the basis for efficient and transparent service

➢ NID regulation for operation and verification of the NID system drafted


Page 11 of 125

Project Development Objective (PDO)

8. The PDO was to establish a secure, accurate and reliable NID system in Bangladesh that

would serve as the basis for more efficient and transparent service delivery. The objective was

designed to be measured through two indicators as given below:

Key Expected Outcomes and Outcome Indicators

Indicator Name Baseline End Target Outcome

Number of citizens having access to

secure, reliable means of

identification to conduct private

transactions and access public

services (of which % of women)

National ID card is used as

means of identification but

does not have reliable

verification system and

low level of ID card

security

At least 80 million citizens

are issued secure NID cards

and a reliable verification

system is in place.

Number of public/private

institutions using electronic identity

verification for their service

delivery.

No electronic identity

verification services

available in the country

At least 2 public and 2

private agencies use NID

system to verify

client/beneficiary identity

Components

Component 1: Regulatory Framework for the National ID System and Integration into

Service Delivery (Estimated cost: USD 9.06 million).

9. This component supported the development of regulatory framework of the NID system,

including the issuance of NID numbers and the gathering, updating, and usage of NID data.

10. Sub-component 1.1 - Regulatory Framework for National ID System: Technical assistance

(TA) would be provided to: (i) draft rules and regulations to address NID issues; (ii) reflect

approved rules and regulations in the Operations Manual (OM); (iii) develop software to automate

NIDW’s work processes; (iv) develop mechanisms to monitor NIDW’s compliance with

established regulations; and (v) coordinate with entities on Information Policy.

11. Sub-component 1.2 - Integration of the National ID system into management of service

delivery in selected agencies: The subcomponent would provide TA, capacity building and

equipment to agencies outside the BEC to adjust their business processes and to support software

systems to utilize e-ID verification services from the NID system.

12. Sub-component 1.3 - Provision of Electronic Identity Verification Services (E-ID) to public

and private entities: The sub-component would finance software development and maintenance

costs necessary to provide electronic identity verification services to service agencies.


Page 12 of 125

Component 2: Operations and Management of the NID System (Estimated cost: USD 145.97

million).

13. The component financed the design and deployment of technology infrastructure and

facilities for the NID system.

14. Sub-component 2.1: - Datacenter & Disaster Recovery Site: The NID database is housed in

the National Data Center of the Bangladesh Computer Council. The Disaster Recovery Site is

temporarily housed in the NIDW as the GOB is yet to complete development of the National

Disaster Recovery Site.

15. Sub-component 2.2 - Data Communications Network: The sub-component supported the

preparation of a detailed network design based on the standard operating procedures of the NIDW.

16. Sub-component 2.3 - Decentralized Technology Infrastructure: BEC’s district, regional and

upazilla offices were equipped with workstations and peripherals. The workstations were provided

with a full complement of peripherals, including camera, fingerprint scanner, page scanner,

signature pad, printer, and smart card reader. Client software licenses, email, and standard

complement of browser, utilities and office suite software were also provided.

17. Sub-component 2.4 - Enhancement of Database Contents: The Project was built upon the

existing electoral roll database of 87 million records which went through a rigorous process to

detect duplicate records. The sub-component enhanced the contents of this database with better

quality photographs, and birth registration numbers to enable future linkages with the Birth

Registration system. Since 2011, enrolment in NID database requires the birth certificate, thereby

ensuring some integration and prompting birth registration and/or correction of birth registration

records.

18. Sub-component 2.5 - NID Card Production and Delivery to Citizens: The Project financed

replacement of existing paper-laminated NID cards with digitized cards with more robust security

features. This replacement was required to augment features of services of the NID system in

Bangladesh.

Component 3: Capacity Building, Communication, and Overall Project Management

(Estimated cost: USD 39.96 million)

19. This component aimed at developing the capacity of the newly established NIDW of the

BEC to serve as a high-performing, service-oriented, self-dependent public organization. The

component financed TA, training and technology to achieve these objectives.

20. Sub-component 3.1 - Comprehensive Capacity Building Program for NIDW: The

component financed a Project Management Consultancy (PMC) firm, which brought key experts

on various aspects of the project management on long-term advisory basis.


Page 13 of 125

21. Sub-component 3.2 - Communications: The Project financed a professional communication

firm to conduct far-reaching communication program. It has also collected feedback from the

citizens and users of NID services about their experience of the NID system in Bangladesh.

22. Sub-component 3.3 - Business Process Management Systems: Under this subcomponent,

the NID operating procedures were compiled into an Operations Manual. A business process

management system was developed to automate the flow and documentation of work in NIDW.

Additionally, necessary software was deployed in support of each of the functional areas of the

organization, using specific-purpose and open-source software modules.

B. Significant Changes during Implementation

Revised PDOs and Outcome Targets

23. No changes were introduced in the PDO.

24. Revision of Results Framework: As recommended during the Mid Term Review3/, the

Results Framework was revised to: (i) make monitoring indicators more measurable; (ii) strengthen

link between project activities and progress towards achievement of the PDO; and (iii) reflect the

revised target date.

Revised PDO Indicators

Original

Indicator

Revised

Indicator

Baseline

Value

End Target

Value

1. Number of citizens having access

to secure, reliable means of

identification (% of women).

Number of citizens having access to

secure, reliable means of

identification

0.00 80,000,000

2. Number of public/private

institutions regularly using

electronic identity verification

for their service delivery

Number of public/private institutions

using the ID verification service

0.00 4

3. None existed Number of women among number of

citizens having access to secure

reliable means of identification

(target value separated from

Indicator 1)

0.00 40,000,000

4. None existed. Number of public/private institutions

using off-line identity verification for

their service delivery using smart

NID cards (New)

0 4

5. None existed Number of citizens identity

electronically verified (New)

0.00 7,000,000

3 January 18 - February 16, 2015


Page 14 of 125

Revised Intermediate Indicators

Original

Indicator

Revised

Indicator

Baseline

Value

End Target

Value

1. Operational procedures for NIDW

introduced

No Change No Yes

2. Regulatory and operational

guidelines for NIDW

No Change Not Issued In Place

3. Data center and disaster recovery

center of NIDW established

No Change Not

Established

Center

Established

4. Personalization Center for Smart

NID cards established

An addition 0.00 1

5. Number of upazilla server stations

capable of NID registration and

update

Number of upazilla server

stations connected through

VPN and capable of NID

registration and updating of

information

0.00 Revised from

230 to 516

6. Percent of social protection

program utilizes NID to verify the

correct beneficiaries

Number of social protection

program utilizes NID to verify

the correct beneficiaries

0.00 5

7. Staff trained in operation and

management of NIDW

Staff trained in operation and

management of NIDW

0.00 Revised

from 875 to

2240

8. Staff recruited for NID Wing No Change 0.00 71

9. Citizens' awareness about use of

NID System

Deleted Yes Yes

10. Orientation sessions organized for

upazilla level staff of the Election

Commission for community

mobilization on NID system

An addition 0.00 60

11. A comprehensive nationwide

communication strategy

implemented

Deleted No Yes

12. Agencies satisfied using the NID


An addition 0.00 70%

13. Information system in place to

design and implement a cost

recovery mechanism

Deleted In Place Cost

Recovery

Mechanism

Developed

14. Citizens satisfied smart cards An addition 0.00 70%

Other Changes

25. Extension of Project Closing Date: The first extension was for 18 months from June 30,

2016 to December 31, 2017 to enable full achievement of the PDO. The second extension was for


Page 15 of 125

two months, from December 31, 2017 to February 28, 2018, to allow completion of key activities

related to the production and distribution of smart NID cards package.

26. Change of Financing Plan: At Board approval, the International Development Association

(IDA) Credit was valued at USD 195 million. During the restructuring, dated June 28, 2015, this

had declined to USD 171 million due to fluctuation in the SDR-USD exchange rate (loss in value

of USD 24 million (12%)). The financing plan was accordingly updated to reflect the revised value

in dollar terms of the International Development Association (IDA) Credit. On December 29, 2017,

the IDA concurred with the request of the Project to cancel SDR 17.64 million (equivalent to USD

24.73 million). The cancellation became effective from December 14, 2017.

Source

At Appraisal

(Million)

As of June 28, 2015

(Million)4/

Revised

(Million)

GOB 24.00 24.00 2.01

IDA 195.00 195.00 171.00

219.00 219.00 173.01

27. Modification of Expenditure Categories and Withdrawal Condition5: The change included

modification of expenditures categories and a withdrawal condition which prevented expenditures

against all project categories until rules and regulations acceptable to the Association to implement

the NIRA 2010 were in effect. The modification allowed for all expenditures, including consultants

to help with the rules and regulations, except for the production and distribution of smart NID cards.

This was achieved through dividing the expenditure category 1 into two sub-categories: 1 (a) & 1

(b) and shifting the withdrawal condition from entire expenditure categories (1 & 2) to sub-category

1 (b) only, which represents the production and distribution of smart NID cards described under

component part 2 (e). The following tables describe the aforesaid restructuring exercise:

Expenditure Category Description

Category 1 Goods, works, non-consulting services, consultant’s services and Training:

1 (a) Parts 1, 2(a), 2 (b), 2(c), 2 (d) and 3 of the Project

1 (b) Part 2 (e) of the Project

Category 2 Operating Costs

Component Part Description

Part 1 Regulatory Framework for the NID System and Integration into Service

delivery

Part 2 Operation and Management of the NID System

Part 2(a) Data center and disaster recovery site

Part 2(b) Data communication network

Part 2(c) Workstations and peripherals

Part 2(d) Electoral voter database

Part 2(e) Production and distribution of smart NID cards

Part 3 Capacity Building, Communications and Overall Project Management

4 June 2015 restructuring 5 April 2012 restructuring


Page 16 of 125

Expenditure Category Allocation (SDR) Disbursement %

Original Revised Original Revised

Category-1: Goods; Works; Non-

consulting services; Consultant’s

services and Training under:

106,550,000 -- 100 --

1(a): Parts 1, 2(a), 2(b), 2(c), 2(d) and 3 -- 34,755,000 -- 100

1(b): Part 2(e) -- 71,795,000 -- 100

Category-2: Operating Costs 16,450,000 16,450,000 93 93

Total: 123,000,000 123,000,000 - -

28. Reallocation of Funds6: In order to increase the operating cost allocation under Category

2, the amounts allocated to Category 1(a) were reduced by SDR 1.25 million. This was done to

streamline administration of payments by avoiding the need to process two bank checks - 93% from

the IDA and 7% from the GOB. This change was made to increase the disbursement percentage for

Category 2 and to reallocate funds among disbursement categories 1(a) and 2 as follows:

Expenditure Category

Allocation (SDR) Disbursement %


Category-1: Goods; Works; Non-

consulting services; Consultant’s

services and Training under:

1(a): Parts 1, 2(a), 2(b), 2(c), 2(d) and 3 34.755,000 33,505,000 100 100

1(b): Part 2(e) 71,795,000 71,795,000 100 100

Category-2: Operating Costs 16,450,000 17,700,000 93 100

Total: 123,000,000 123,000,000 - -

29. Reallocation of Funds7: The maximum amount of taxes, including customs duties and

value added taxes, to be considered as an eligible expenditure for IDA financing was USD 23.29

million according to the Country Financing Parameter of the Bank. Revisions to the disbursement

categories and reallocations between them were introduced to reflect this condition in the revised

schedule. This was achieved through dividing the sub-category 1(b) into two sub-categories 1(b) &

1(c), dedicate 1(c) with the aforesaid capped tax amount adjusting from category 1(a) & 2. All taxes

related to component 2(e) were charged under category 1(c) and not to exceed USD14.7 million

equivalent. The following table describes the aforesaid restructuring exercise:

6 August 2013 restructuring 7 June 2015 restructuring


Page 17 of 125

Expenditure Category Allocation (SDR) Disbursement %


Category-1(a):

Goods; Works; Non-consulting service;

Consultant’s Services and Training

under Parts 1, 2(a), 2(b), 2(c), 2(d) and

3 of the Project

33,505,000 27,385,000 100 100

Category-1(b):

Goods; Works; Non-consulting service;

Consultant’s Services; and Training

other than taxes under Part 2(e) of the

Project

71,795,000 71,795,000 100 100

Category-1(c):

Taxes relating to Part 2(e) of the

Project

-- 10,450,000 -- 100

Category-2:

Operating Costs

17,700,000 13,370,000 100 100

Total: 123,000,000 123,000,000 - -

30. The purchasing power of the IDA Credit expressed in US dollar terms, the cost of

implementation was reviewed for realism. The Project had already awarded contracts for major

procurement packages under Components 2 and 3, and it was expected that it would not be

completed and results achieved within the revised financial envelope. Therefore, the IDA

contribution at the component level was recalculated and revised as follows:

Component Name Original Cost

(In USD Million)

Revised Cost

(In USD Million)

1. Regulatory Framework for the National ID System 9.06 7.95

2. Operations and Management of the NID System 145.97 128.02

3. Capacity Building, Communication, and Project

Mgmt.

39.96 35.03

Total: 194.99 171.00

31. Cancellation of Funds: The unutilized amount of USD 24.73 million8/ was cancelled

effective December 14, 2017.

8 Equivalent to SDR 17,641,362


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Implication on the Original Theory of Change

32. The above restructurings did not have any major implications on the theory of change; rather

it provided more clarity in measuring the PDO because of the new and modified indicators and

additional time to more effective linkage in the results chain.

II. OUTCOME

A. Relevance of PDOs

Relevance of PDO is rated as High.

33. The Project was the second phase of GOB’s NID system initiative following the PERP

project. The IDEA Project represents support from the Bank in the Public Administration sector.

The successful creation of a biometric based electoral roll database of 87-million citizens and

distribution of paper-laminated NID cards had provided a strong foundation and reference point for

the Project’s design and implementation arrangements.

34. The PDO was relevant and reflected key priorities of the GOB as well as the Bank’s Country

Assistance Strategy (CAS FY11-14) which aimed at strengthening governance and transparency of

public systems. The PDO was also relevant to the Sixth Five Year Plan (FY 2011-15) which

highlighted goal of improving participation, inclusion, and empowerment of the excluded,

disempowered, and vulnerable members of the society.

35. The objective, vis-à-vis the project design, was realistic as it focused on the functionality of

ID verification systems, which translates into more thorough tax collection and improved taxpayer

information to banks.

B. Achievement of PDOs (Efficacy)

Assessment of Achievement of Each Objective/Outcome

Overall Achievements before Restructuring:

36. From August 2011 (effectiveness) till June 2015 (restructuring), the implementation of the

Project was limited due to its readiness issues that included a delayed finalization of the rules and

regulations to implement the NIRA 2010. This contributed to delayed commencement of the

procurement processes in the Project. The withdrawal condition as set forth in the Financing

Agreement restricted the financing of all expenditures until the rules and regulations for

implementation of the NIRA 2010 were approved. Consequently, only one PDO indicator had some

progress as shown in the Table 1 and the Project achievements were limited as shown below.


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PDO Indicators and Achievements Before Restructuring

PDO Indicators Achievements

End

Target

Actual %

1 Number of public/private institutions using electronic

identity verification for their service delivery. 4 3 75%

2

Number of citizens having access to secure, reliable

means of identification to conduct private transactions

and access public services (of which % of women)

80 million 09/ 0%

• The Regulatory Framework was largely put in place with rules and regulations. The NIRA

2010 was amended in the Parliament in October 2013 to ensure that citizens’ data, preserved with

the BEC, would remain confidential.

• The management of the verification system progressed well. Several agencies were using

NID database for verification purposes. The National Board of Revenue (NBR) started using the

NID data to verify the identity of applicants registering for electronic income tax identification

numbers. The Bangladesh Bank began using the NID database to verify data provided to the Credit

Information Bureau, the Bangladesh Financial Intelligence Unit and for other purposes. The

Department of Immigration and Passports was verifying the identity of applicants for national

passports using the NID verification. The Project also issued Application Programming Interfaces

(API) to Bangladesh Bureau of Statistics (for the poverty database), the Ministry of Social Welfare

(for safety net schemes) and the Access to Information program of the Prime Minister's Office (for

accessing the database for piloting innovations in electronic service delivery).

• In 2014, a Project Management Consultancy (PMC) firm was appointed which assisted

NIDW in processing the IT based procurement packages, including the smart NID cards package.

Project Achievements after Restructuring:

PDO Indicators and Achievements After Restructuring

PDO Indicators Target Achievements

1 Citizens are issued secure NID cards and a reliable

verification system is in place. 80 million 40.39 50.5%

2 At least two public and two private agencies use NID

system to verify client beneficiary identity. 4 agencies 85 agencies 2,125%

3 Number of women securing reliable identification. 40 million 19.15 47.9%

4 Number of public/private institutions using off-line ID

verification for service delivery using smart NID cards. 5 agencies No progress10 0%

5 Number of citizens’ identity electronically verified. 7 million 70 million 1,000%

9 The citizens who were registered in the system received the paper-laminated NID cards as an identity token. 10 This is likely that a good number of agencies are doing offline identity verification using the paper laminated or smart NID

cards. However, the Project could not gather data on the number of agencies who are doing offline identity verification.


Page 20 of 125

Out of the five PDO indicators, two indicators (Indicators 2 and 5) exceeded the target by 2,125%

and 1,000% respectively. The 1st and 3rd indicators achieved 50.5% and 47.9% of the target

respectively. No progress could be tracked for the 4th indicator. An incomplete production of smart

NID cards has affected the achievements for Indicators 1, 3 and 4. The reasons are as follows:

37. Indicator 1: Procurement process for the smart NID cards contract was much delayed due

to the withdrawal condition of the Project and the contract was signed on January 14, 2015. There

were several challenges between the Project and its supplier of smart NID cards contract package

which affected the implementation of smart NID cards contract. The Project denied contract

extension after June 30, 2017 and started personalization of cards with the support of the Project’s

own technical staff. The Supplier has provided a total of 77.3 million blank NID cards to the Project,

38.81 million blank NID cards are now in the process of personalization.

38. As of June 30, 2018, 40.39 million cards have been personalized and 29.79 million were

distributed to the citizens. Meanwhile, the Project has distributed 87 million paper-laminated NID

cards to citizens in FY14, which increased to 91 million by FY15. While these cards are accepted

by service providers as valid identity tokens, they do not have adequate security features. Therefore,

they meet the “reliable” criterion, but not the “secure” criterion.

39. The GOB has taken over the responsibility of financing the Project until December 31, 2018.

It is likely that the Project would be able to complete personalization of the remaining blank NID

cards by the new Closing date of the Project under the GOB’s financing. The Project has mobilized

equipment to collect additional biometrics from the citizens while distributing the smart NID cards.

Hence, the majority of 80 million citizens are also likely to receive secure NID cards by December

31, 2018.

40. A reliable identity verification system is in place. It is being effectively used by the agencies

in both public and private sectors. This system has proven its capability in providing online and

biometric identity verification services to 85 agencies till date.

41. Indicator 2: The delayed production and personalization of smart NID cards have also

affected the women in securing reliable identification. The number of women who received paper-

laminated NID cards during the same timeframe went from 41 million in FY14 to 45 million in

FY15. It is likely that majority of women who are registered in the NID database would receive

secure NID cards by December 31, 2018.

42. Indicator 4: The Project has been waiting for the completion of the distribution of smart

NID cards to collect data on this indicator. Currently, several citizens have smart NID cards under

their possession. Furthermore, citizens have received paper-laminated cards which are accepted by

service providers as valid identity tokens. Therefore, it is likely that a good number of agencies are

verifying identities offline using the paper laminated or smart NID cards. The data on the number

of agencies using offline identity verification is not available. This is a shortcoming in the

monitoring system rather than meeting the objective of the indicator.


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43. The long-term impact of the Project is expected to be transformational beyond the

Project lifecycle resulting in improved service delivery as envisioned in the PDO. This is

demonstrated by the following key achievements realized under the Project:

IT infrastructure

44. The Project built an IT infrastructure facility for the NIDW to provide NID services. This

facility includes a Central Data Center that contains a biographic and biometric data of

approximately 104 million citizens; a Disaster Recovery Site; and a Data Communication Network.

Over 98% of the population of 18 years of age and above has already been covered under the

biometric database. In addition, the NIDW has started registering individuals of the 15-18 years

age group since July 2015.

45. Further, a decentralized technological infrastructure has been established at the field level

offices of the BEC. The Project has also ensured dedicated data connectivity in the NIDW and 516

field offices of the BEC through a Virtual Private Network (VPN). A Call Center for the NID related

services has also been established.

Identity verification services

46. The NIDW is currently providing identity verification services to public and private entities.

While the target for providing identity verification services was four agencies (two public and two

private), by the end of the Project, the number of agencies availing the services increased to 85 (17

public and 68 private) on a 24/7 basis. So far, over 325 million successful hits for identity

authentication have been made by the user agencies.

The Project’s impact

47. The following organizations/entities are benefiting from using NID services:

(i) Ministry of Finance: The Finance Division of the Ministry of Finance used the identity

authentication services to verify the payment of salaries and pensions of over five million

government employees and pensioners. As a result, over 800,00011 ghost employees and

pensioners were found. The savings resulting from identifying ghost employees and pensioners is

substantial according to concerned officials. The GOB has yet to conduct a survey to calculate its

savings after the authentication process.

(ii) National Board of Revenue (NBR): The NBR has been a major user of the NID

authentication services. An Electronic Tax Identification Number (e-TIN) system for the citizens

was introduced with the help of the NIDW in 2015. This has led to the removal of about 1.2 million

false or duplicate taxpayer accounts. The NBR has also linked the e-TIN database with the Income

Tax, VAT and Customs systems. The NID service has created a scope for the NBR in clamping

11 Bangladesh: Improving the Administration of Civil Service Pensions, the World Bank.


Page 22 of 125

down on tax evasion and providing additional tax revenue to the exchequer. To quantify the impact

of the NID authentication service, a study needs to be initiated.

(iii) Government exchequer: The NIDW is collecting BDT 1.15 per hit from public agencies

and BDT 2.3 per hit from agencies in the private sector for providing NID services. In addition,

the NIDW is also collecting fees from the citizens for various services such as for corrections and

replacement of lost NID cards. As of June 30, 2018, a total of USD 17.10 million has been

collected from these services and deposited to the exchequer. The details are in the table below:

No. Name of the Services Total Revenue Deposited

1 Agreement Charges/Fees for user registration 1.28

2 Fees for Verification Services 11.20

3 NID Correction, Lost fees 4.62

Total 17.10

(iv) The Department of Immigration and Passports: Prior to the introduction of the identity

authentication services by the Project, the Department of Immigration and Passports was going

through a lengthy verification process for issuing passports, due to multiple unreliable sources of

identity proof. The applicant would also need to submit several documents to provide evidence of

identity. By using NID services, the passports authority has been able to verify the identity of an

applicant using his/her NID number which has improved the timeliness of issuing of passport. The

applicant does not need to submit other proofs of his /her identity.

(v) Commercial Banks and Non-Banking Financial Institutions: The commercial banks

and non-banking financial institutions have started using the identity authentication services as

part of their electronic Know Your Customer (e-KYC) process. Further, with a reliable NID

service, the time spent by commercial banks for client identity verification has been reduced

significantly. Earlier it would take at least three working days to conduct the Customer Due

Diligence. Now a bank can instantly verify the identity of a client using the NID database. Better

identification process through the NID system has also enabled the financial institutions to

eliminate fake and duplicate accounts and reduce money laundering activities. In the past, default

rate was significantly high as these institutions were using multiple, unreliable sources of identity

proof for lending.

(vi) Mobile operators: The mobile operators are now registering new SIM cards and replacing

old SIM cards using a biometric identity authentication system, which has enabled them to

contribute to the exchequer in collecting increased amount of revenue.

(vii) Law enforcing agencies: The NID system has significantly increased the capabilities of

law enforcing agencies for better tracking of all types of criminal activities. As of June 2018, more

than 66 million citizens have successfully re-registered nearly 121 million mobile SIM cards using

biometric authentication from NID database, which helped track crime, reduce extortion using

mobile phones, and money laundering etc. The law enforcing agencies are also using the NID

verification service for proper authentication of unidentified dead bodies and accident victims. To


Page 23 of 125

date, the law enforcing agencies have authenticated more than 70 beheaded bodies using biometric

identification system of the NIDW.

(viii) Office of the Registrar General: The birth registration offices across the country are using

NID numbers of the parents to issue a birth certificate to a child. This process will augment the

NID system in Bangladesh in the long run.

Other benefits

48. Savings: The NID service has resulted in generating an increased amount of revenue for

various entities. In the public sector, an accurate database of beneficiaries was developed through

the identity authentication system for an agency to streamline services to the citizens. This has

emerged as an effective system to operate social protection programs. In the private sector, the NID

services has benefitted by reducing the incidence of identity fraud. The expanding mobile financial

services in Bangladesh have also become a beneficiary of the NID system where the transactions

have become more efficient and reliable. All the users could offset fees for verification services.

Efficacy Rating Before Restructuring (August 28, 2011 – June 25, 2015):

49. Considering that only limited progress was achieved on two PDO indicators, efficacy before

restructuring is rated Modest.

Efficacy Rating After Restructuring (June 26, 2015 – February 28, 2018):

50. The efficacy after restructuring is substantial. While the Project did not meet three of the

five indicators, as explained above, it has made significant achievements after restructuring.

C. Efficiency

Assessment of Efficiency and Rating

Economic and Financial Analyses

51. The IDEA Project contributed to generating higher revenues by providing the NID services.

One important revenue source has been the minimum charge of agencies using the NID services.

For instance, public sector agencies are charged BDT 1.15 per hit from government agencies and

BTD 2.30 per hit from private entities. There are also fees collected from citizens for correction

and replacement of lost NID cards. As of June 30, 2018, a total of USD 17.10 million has been

collected and deposited.

52. Given the immense potential of the NID system, it is expected that the number of users and

hits are expected to grow significantly over the years. For the purpose of the analysis, the following

assumptions are made: there will be a minimum of 10% increase of revenue every year, 10%

increase of operating cost with a discount rate of 10% (based on the new discount rate in project


Page 24 of 125

evaluation by the Government of Bangladesh12). Inflation rate is 6% (based on historical inflation

rate trend) with initial investment of USD 113.19 million and timeframe of 2027 (10 years). The

NPV will be USD 36.12 million.

NPV= ∑ {C/ (1+r) ^t} - Initial Investment

C=Cash Flow

t= time

r= Discount rate

53. The revenue generated to the government exchequer is only one of the many economic

benefits. For the commercial banks, an area of significant savings has been on transaction costs

associated with client information verification process. Before NID services, they would send a

form to each customer via mail for verification which cost BDT 10 for postage, wait for at least 2

weeks to receive response, and at times send a bank staff to the location of the address to make sure

the address was authentic. At present, the cost would be BDT 2.30 (user fee for the NID service)

and receives real time authentication. Actual economic and financial benefits would be greater with

gains from other agencies including the mobile industry, law enforcing agencies, department of

immigration and passport, and birth and death registration authority. In light of data limitations, it

was not possible to quantify these benefits.

Efficiency Analysis

54. The efficiency of achieving the Project’s objectives is deemed to be Modest. On the one

hand, there were positive efficiency gains through higher revenue for the exchequer, cost savings

and risk mitigation especially for the commercial banks and telecom operators, and overall

institutional strengthening in managing the NID system. On the other hand, efficiency was

substantially reduced because of three years lost for implementation resulting from the delay in the

finalization of the rules and regulations for the NIRA 2010 as mentioned below:

• The Project was instrumental to the GOB in generating higher revenue because of NID

services. For example, the NIDW is collecting BDT 1.15 per hit from public sector agencies

and BDT 2.3 per hit from agencies in the private sector for providing NID services. In addition,

the NIDW is also collecting fees from citizens for various services such as for corrections and

replacement of lost NID cards. As of Jun 30, 2018, a total of USD 17.10 million has been

collected and deposited.

• The Ministry of Finance has identified 800,000 ghost government employees and pensioners.

The savings resulting from identifying ghost employees and pensioners is certainly quite big

according to the concerned officials. The GOB has not yet conducted a survey to calculate the

its savings after the authentication process.

12 “Deciding Discount Rate for Bangladesh in Project Evaluation Implementing Five Year Plans” Government of

Bangladesh Planning Commission General Economic Division


Page 25 of 125

• Furthermore, with the reliable ID verification system in place, commercial banks are saving

time and transaction costs in checking the authenticity of clients’ information and reducing

fraudulent financial activities.

• The number of citizens using mobile financial services has increased as citizens trust the

system, bringing more revenue to the banks. The mobile operators have drastically reduced the

number of fake mobile SIM cards.

55. There were four Task Team Leaders (TTLs) who managed the Project, the first three TTLs

led the Project from identification to early years of implementation. The fourth TTL remained in

this position for four years from July 15, 2013 until the close of the Project. The TTLs were based

in Dhaka that enabled them to maintain regular contacts with the GOB and other stakeholders. This

facilitated implementation of the Project effectively and contributed in enhancing efficiency.

56. For more than three years, implementation of the Project was limited. This was due to the

delay in project readiness including finalization of the rules and regulations for the implementation

NIRA 2010. The finalization of the rules and regulations required amendment of the NIRA to install

data privacy and security clauses there. The NIRA was amended in the Parliament in October 2013.

The rules and regulations were finalized immediately after the amendment of the NIRA and the

implementation of the Project was in full swing and the overall disbursement rate started improving.

Justification of Overall Outcome Rating

57. The overall outcome rating is considered Moderately Unsatisfactory. This is mainly

because the progress towards achieving the PDO indicators was behind the schedule. While there

was noticeable progress in advancing the identity authentication services to a large number of

citizens’ service agencies, the implementation of the contract for the production and distribution of

smart NID cards to 90 million citizens remained a key challenge for the Project and contributed to

the Project’s overall outcome rating.

58. 85 service agencies in public and private sectors are now using online or biometric identity

authentication services. There has been significant progress in expanding the internet connectivity

across Bangladesh during the implementation of the Project. It has reduced the dependence on the

physical NID cards for the service delivery. In particular, the biometric authentication is now being

considered as the most secure, accurate and reliable system. Consequently, the NID system has

proved its potential as the basis for efficient and transparent service delivery.

Split Ratings

Relevance

of PDO

Efficacy

Assessment

Efficiency

Assessment Outcome

Before Restructuring High Modest Modest Moderately Unsatisfactory

After Restructuring High Modest Modest Moderately Unsatisfactory

Overall Outcome Rating Moderately Unsatisfactory


Page 26 of 125

E. Other Outcomes and Impacts

Gender

59. The Project complied with the GOB’s policy of reducing gender gap and supported women

by ensuring that they have equal access to reliable means of identification. The number of women

who received an identity token increased from 41 million in FY14 to 45 million in FY15 to over 45

million by the time the project closed in February 2018. The women equally benefitted from the

NID verification services and possess reliable means of identification. More specifically, the Project

successfully trained a large number or female workers as enumerators, supervisors, data entry

operators, and proofreaders throughout the country. They are now well acquainted with the different

ICT equipment including finger printing scanners, web cameras and the use of lap tops etc. They

are also trained in the collection and processing of data and using application software. This has

changed their views; promoted innovative ideas and created opportunity for further employment.

60. Furthermore, as NID is required for registering marriages, the Project was instrumental in

preventing early marriages and female child labor. Prevention of early marriage would also

contribute to the reduction of maternal mortality in Bangladesh, which is one of the highest in the

South Asia region (196 maternal deaths per 100,000 live births)13.

Institutional Strengthening

61. The Project contained a robust capacity-building component which contributed

substantially to the institutional strengthening of various agencies in the public sector. The Project

developed capacity for the identification verification services and for the integration of the new

NID system into a wide range of public and private services.

62. Improved capacity of NIDW: The administrative and technical capacity of the NIDW was

improved as a decision-making authority. There is a large pool of technical experts made available

under the Project, which satisfactorily managed the identity authentication services for the users.

Due to improved technical capacity, the Ministry of Finance is using NID number as the primary

means of identification of over five million government employees and the pensioners. In addition,

the NBR, Bangladesh Bank and almost all commercial banks and non-banking financial institutions

are also seamlessly using the identity authentication services.

63. Unique Identification Number: The 10-digit ID number has been introduced by the Cabinet

Division of the Government as the unique identification number of a citizen which also complies

with data privacy issues. There are 9 random numbers and a check sum number. The enrollment of

new registrants to the database have 10-digit numbers. The replacement NID cards contains the 10-

digit numbers. It augments implementation of the data privacy and security clauses of the amended

Act. The earlier NID number had 13 (for the majority) or 17 (for some, with the year of birth) digits.

The user/ functional databases have been advised to use this new number in their databases.

13 Bangladesh Maternal Mortality and Health Care Survey 2016, National Institute of Population Research and Training


Page 27 of 125

64. Orientation/Training Sessions: The Project organized 60 orientation sessions for the

upazilla level officers of the BEC for community mobilization on NID system. The training for the

newly recruited Data Entry Operators was also completed. A total of about 1,800 officials were

trained, including officers, staff and operators of the BEC.

Mobilizing Private Sector Financing (Not applicable)

Poverty Reduction and Shared Prosperity

(i) The poor people in Bangladesh remain largely outside the formal banking system and they

constitute the largest user group of mobile financial service which is a growing market in the

country. The NID authentication system has enabled them to access both the mobile and the

traditional banking systems.

(ii) The Project directly contributed in introducing e-governance in government bodies to

combat corruption and provide more efficient services. Enhanced transparency and accessibility

of public services through verification of NID of potential service users can significantly

strengthen service delivery mechanisms and improve the overall trust of society for better

governance.

(iii) The introduction of a reliable NID system has allowed accurate and efficient identification

of beneficiaries and give them easier access to services they are entitled to. Higher access to

information has been facilitated through increased penetration of mobile phone and internet

services with valid identity proofs.

Other Unintended Outcomes and Impacts

(iv) It was not expected that 85 agencies will be using NID system, while the original target

was only four when the Project was formulated. A great number of agencies are now eager to use

this system because of the opportunity for cost saving and time efficiency. This was not anticipated

initially.

(v) The NIDW has gained command over the personalization of smart NID cards. The

Personalization Center is now up and running, and has engaged the technical staff of the Project.

(vi) The potential of an effective NID services for generating revenue for the government,

especially from user fees and others as mentioned in the above sections, was not anticipated.

III KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME

A. Key Factors during Preparation

65. In the context of weak public sector governance, the project preparation team recognized

the implementation challenges and prepared the design with necessary background analysis and

comprehensive assessment of the GOB’s commitment. As the Project was the second phase of


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Bangladesh’s NID initiative following support from the PERP, the lessons from the first phase were

carefully reviewed and internalized.

66. The outcome indicators, however, were not clearly formulated and were revised during

implementation. The legal infrastructure related to the national identification system was not

adequately considered which caused delays in the implementation. Gender issues were not clearly

addressed and the Project was designed without inclusion of baseline information, milestones and

performance indicators. Hence, it was difficult to adequately monitor the performance. While there

was limited technical capacity in the BEC, capacity building of the wing/section was not included

in the original design.

Positive Factors:

67. The successful creation of a 87-million electoral database and commencement of

distribution of paper-laminated NID cards provided a strong foundation and reference point for the

Project’s design and implementation arrangements. The design greatly benefited from an approved

Master Plan14/ and the technical assistance provided by the UNDP under the PERP, including from

IDA’s own embedded technical assistance during project preparation. The NID Master Plan

provided a robust technical and procedural basis for the project design and implementation,

including details of hardware, data center, decentralized server station arrangement, network

requirements, NID card design and security features, staffing needs, and capacity building and

training needs assessments.

68. The project design also benefited from the lessons from regional identification system

projects, particularly in India and Pakistan. The highly successful Pakistan experience showed the

importance of retaining competent staff, especially for IT functions. This led to a pairing

arrangement of then newly appointed NIDW staff with a PMC firm during the entire duration of

the Project and a delegation of functions such as data center management and NID card production

to specialized agencies rather than in-house management.

69. The Project was structured to be fully consistent with the GOB’s vision to implement the

NID system, and was designed to ensure maximum ownership by the GOB. The Project provided

a broad vision, a sequenced strategy, and details of each department’s responsibility. The Project

thus was rested on a solid foundation.

70. The Project design reflected the experience with e-governance reforms in various countries

and Bank support for e-governance reforms. The project team, in particular reviewed the ongoing

civil identification or NID system development in India and Pakistan as well as other countries in

Southeast Asia. The key lessons included:

• Institutional arrangements and foundation for the NID system are critical. The foundation of

the NID system in Bangladesh is an electronic electoral roll database prepared by the BEC in

14 Approved Master Plan for the Decentralization of the Electronic Voter Identification System (UNDP), 2010


Page 29 of 125

2006-2007. At its inception, the BEC was a more suitable institutional home for the NID system

compared to other agencies. It had offices and staff across the country to support the NIDW in

the process of registration of citizens and management of other NID services. Later the NIRA

2010 vested the responsibility of the NID system to the BEC.

• Lack of system coordination can lead to duplication of efforts, incompatibility of technical

solutions and compromise sustainability. Countries often develop NID systems parallel to

other databases such as passport and tax identification, severely limiting NID system’s utility

in providing an authentic verification service. While each service-provider will be responsible

for data usage for their own services, the Project sought to ensure that these systems will be

linked to the NID database, a foundational database with the intention of ensuring that a unique

ID number is utilized for identification in all user or functional databases.

Risks and Risk Mitigation Measures:

71. During project preparation, the Bank task team carried out extensive risk analysis and

identified critical risks and risk mitigation measures. One of the risks identified was the weak

implementation capacity of the main beneficiary, the BEC, and its unfamiliarity with the IDA

operation. Given the large value and complicated IT contracts involved, and to reduce the risk of

misprocurement and delays, the BEC was provided technical support through a PMC firm. In

addition, technical and implementation arrangements complexity and sustainability risk after the

project completion were other risks associated with the Project. The Project team adequately

highlighted these and other risks along with mitigation measures. Annex 8 shows major risks and

mitigation measures identified in the PAD along with an assessment of risks by the ICR team.

Adequacy of GOB commitment:

72. The GOB demonstrated ownership and strong commitment in developing a more robust

NID System among a broad range of counterparts. The Prime Minister had stressed the importance

of developing the system and welcomed the Bank’s engagement. The BEC exercised strong

stewardship of the system and demonstrated serious intent to carry out the improvements

envisioned in this Project. Other public agencies involved with Digital Bangladesh and collection

of biographic data also committed to work with the NID system. An Inter-ministerial committee on

e-governance had already been established including a task team set up at the Prime Minister’s

Office to coordinate and facilitate the overall implementation of e-governance across the public

sector. During the mid-term review exercise, the BEC and Economic Relations Division, Ministry

of Finance reaffirmed their commitment to the Project and fully appreciated the benefit of the NID

system and its verification services.

B. Key Factors during Implementation

(i) After project effectiveness in August 2011, the Project implementation started only after

30 months because of the inordinate delay in the finalization of the rules and regulations for the


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implementation of the NIRA 2010, and the consequent delay in the commencement of

procurement processes.

(ii) Frequent transfers of Project Director affected the implementation progress. There were

four Project Directors during the project period.

(iii) The BEC entered into a contract of approximately US$100 million equivalent with an

international vendor for the provision of 90 million smart NID cards. The vendor supplied 77.3

million blank custom-made NID cards to BEC before the contract ending date of June 30, 2017.

The vendor was not able to supply blank NID cards for personalization until it set up a second

factory site in Shenzhen in China and delayed the personalization and distribution of cards.

Furthermore, the implementation of smart NID cards contract was delayed due to a change of the

hologram supplier for the cards.

(iv) An extension of the smart cards contract with the condition to increase number of card

personalization machines to enhance rate of progress was in discussion. The vendor imported eight

additional personalization machines and ancillary between June 30 and Jul 8, 2017. However, the

contract was not extended.

(v) As of June 30, 2018, 40.39 million cards have been personalized and 29.79 million smart

NID cards was distributed to the citizens out of targeted 80 million cards. The delayed mobilization

of equipment for capturing enhanced biometrics affected the distribution of cards at the initial

phase. Procurement of these equipment was successful only by the third attempt.

IV BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME

A. Quality of Monitoring and Evaluation (M&E)

73. M&E Design: The Project’s Results Framework was prepared as per the Bank’s guidelines.

The NIDW bore primary responsibility for project monitoring and evaluation. The monitoring

system was based on key performance indicators and intermediate outcome indicators as included

in Annex 1 of the PAD. Additional changes in the Results Framework were later introduced through

project restructurings to augment results monitoring.

74. M&E Implementation: The Project was subject to eleven implementation

support/supervision missions/ that monitored progress and provided extensive support. The

progress and guidance was recorded in the Implementation Status and Results Reports (ISRs) and

Aide-Memoires. The NIDW established standard formats, guidelines for data collection as well as

preparation and submission of monitoring reports to the Project Implementation Committee and

Project Steering Committee. The task team regularly collected data, updated current progress

against the baseline, and highlighted issues for the Bank management’s attention. In addition, the

PMC firm was recruited to support NIDW’s efforts on results monitoring and evaluation. Several

reports, including quarterly and monthly fiscal reports were used to monitor the Project’s outcome


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and results indicators. M&E training was provided by the Bank’s experts for various responsible

agencies where the PMC covered the basics of: (i) monitoring and evaluation frameworks; (ii)

different types of indicators, including impact and outcome indicators; (iii) collection efforts and;

(iv) reporting requirements for the IDA.

75. M&E Utilization: Appropriate data collected from the progress reports, including the mid-

term review report, was evaluated and used to inform decision-makers on certain activities. For

example, all restructurings, reallocations, and closing date extensions were based on inputs from

M&E and mission findings.

Justification of Overall Rating of Quality of M&E

76. The overall quality of M&E is considered Substantial. The M&E design was flexible,

which allowed the project team to restructure the Project and adjust indicators, including target

values, during implementation. Timely M&E reports were prepared which kept track of

implementation status at any given time.

B. Environmental, Social, and Fiduciary Compliance

77. Environmental and Social Safeguards Compliance: The Project was classified under

category C, as it did not involve any activities that impacted environmental or social safeguards.

78. Fiduciary Compliance: The Project complied with all fiduciary requirements during

implementation. Internal control arrangements were in place and adequate financial management,

procurement, and disbursement systems were maintained.

79. Financial Management (FM): The Project’s performance rating for the FM has been

‘Moderately Satisfactory’ throughout the whole implementation phase of the Project. The time

bound FM action plan was followed up during regular supervision missions and there were no

pending issues from the agreed FM action plan. The interim unaudited financial reports were

submitted to the Bank on a timely manner and the Bank found them acceptable based on its desk

reviews. The annual project financial statements were audited by the Foreign Aided Project Audit

Directorate and the auditors expressed unqualified audit opinion in all the cases, though there were

a number of audit observations reported in each year’s audit report. However, there are no pending

material audit observations on any of the previous audit reports. Despite several attempts, the

Project could not prepare a complete inventory registrar to record and physically verify all of its

assets. The Customs Duty (CD) and Value Added Tax (VAT) issues on import (para 29 above) was

resolved through restructuring of the Project in June 2015, where the IDA funds were allowed to

be used for a maximum of USD 23.29 million for CD and VAT purposes.

80. Procurement: The procurement performance is rated ‘Moderately Satisfactory’. All

procurement packages were completed as per the approved procurement plan and all prerequisites

were put in place to help ensure successful procurement and implementation. The BEC had neither


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experience with large value ICT procurement nor the IDA procurement guidelines. It was provided

dedicated procurement personnel to handle procurement activities.

C. Bank Performance

Quality at Entry

81. The overall quality of the Bank’s performance in ensuring quality at entry was Moderately

Satisfactory. During preparation, the Bank adequately considered the project design and relevant

aspects including technical, financial, economic, institutional, and procurement. Major risk factors

and lessons learned from earlier projects were incorporated into the design. The Project was well

grounded on the realities of Bangladesh and its problems in the public sector. However, the

finalization of the rules and regulations to implement the NIRA 2010 took almost four years. The

preparation team could have identified this task as a readiness condition for the Project. Finalization

of the rules and regulations needed amendments in the NIRA 2010, which was not under control of

the BEC.

82. An experienced and committed task team was constituted to provide technical support to

the Project. This was critically important, given that distribution of 80 million NID cards was

complex and challenging.

Quality of Supervision

83. The quality of supervision was Moderately Satisfactory. There were four TTLs who

managed the Project at different times. From identification to early years of implementation, three

TTLs were changed, which may have affected the Bank’s engagements with the client to an extent.

Otherwise, the Bank’s full team included the TTL, technical experts, financial management and

procurement specialists, and consultants who consistently engaged closely with the counterparts,

particularly with the BEC Secretariat and the Project Steering Committee. The task team responded

appropriately and timely to all reasonable requests of the GOB. The Bank’s technical and fiduciary

teams provided regular support to focus on maximizing the Project's development impact, which

resulted in adjustments, including project restructurings and extending the closing dates. With the

inclusion of revised indicators, the project team utilized adequate resources, including technical

experts with sectoral expertise. The task team conducted regular supervision missions, on average

twice a year, to take stock of progress. The ISRs were candid, detailed, and well targeted to outline

important events, and formulating clear and complete picture. The supervision team also produced

clear and detailed aide-memoires.

Justification of Overall Rating of Bank Performance

Rating: Moderately Satisfactory

84. Based on the Moderately Satisfactory ratings for both the Quality at Entry and

Quality of Supervision the overall rating of the Bank’s Performance is considered Moderately


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Satisfactory. Four years into the implementation, the overall pace of the Project’s key activities

remained behind schedule with partial progress achieved in its PDO, though there were several

achievements in terms usage of the NID as outlined earlier in this report. There was a withdrawal

condition on effectiveness of the rules and regulations for the implementation of the NIRA 2010.

The delayed finalization of necessary legal framework, amendment of NIRA 2010 and finalization

of rules and regulations, which was outside the control of the project, affected the implementation

of the Project.

D. Risk to Development Outcome

85. Potential risks after the project closure are the following:

• Institutional: The risk is limited. NIDW, headed by a Director General, has always been in

place. Skilled work force is available at NIDW to operate information technology and manage

trouble shooting. The BEC has plans for further expansion of NIDW if needed, and in that

case, more staff will be recruited.

• Political: All major political groups in Bangladesh recognize the authenticity of the NID

database, which emanates from the electoral database. As a result, the concern for lack of

political commitment due to the change in administration in the future is minimal.

• Financial: The GOB is committed and has taken over the ownership of the Project. It is

providing financial resources to BEC from its own source for sustaining the NID services after

closing of the IDA financing. Besides, the NIDW generates revenue through various NID

services. This revenue base is becoming stronger as the number of users of the NID services is

increasing.

• There is an ongoing dispute over the supply and payment for the NID cards between the BEC

and its Supplier. As the IDA financing is not available anymore, the GOB will have to pay all

outstanding fees due to the Supplier from its own resources. Hence, the cost of settling

contractual disputes and any likely litigation over the supply and payment for the cards would

potentially affect the revenue earned by the Project.

• Technical. This risk is limited. The BEC is expected to increase the current storage capacity of

the Data Center and the Disaster Recovery Site and ensure maintenance and support services of

the IT systems by retaining skilled personnel of the Project. A new 5-year project is also being

developed that would address the institutional capacity of NIDW to mitigate technical risks and

sustain the outcomes of the Project.

• The NIDW provides an Application Programming Interface (API) to its users to authenticate

data of an individual. However, the system is yet to become interoperable in Bangladesh. It

was beyond the scope of the Project. The National Enterprise Architecture (NEA) bus was

launched by the Bangladesh Computer Council (BCC), but has not been implemented as the

precondition for a functioning NEA bus is for all users beyond the BCC and NIDW to be


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prepared and committed. Lack of an interoperable system would pose a risk to sustaining the

development outcome of the NID system.

V LESSONS AND RECOMMENDATIONS

The Project offers several important lessons, some specific to Bangladesh and others that are

broader and generally applicable. These are summarized as below:

• Preparation of the Project: During the project preparation the Bank task team should engage

a technical/sector lawyer. This is required to look into the technical aspects of a project which

involves heavy investment in IT infrastructure and deals with citizens’ data.

• Legal framework: Amendments to any Act to complete the legal framework is the

responsibility of the parliament. Complying with a suitable legal framework is not a suitable

condition for disbursement because the executive and the project do not have control over the

actions of the parliament. An amendment to NIRA 2010 was needed to include data privacy

and security clauses in the rules and regulations and this was delayed and outside the control

of the project. As such, an investment project like this would benefit from not including a

politically-linked condition outside the control of the project and its implementing agency.

• IT procurement: At the beginning, NIDW did not have in-house capacity to prepare bidding

documents for the procurement of IT equipment. This capacity issue was addressed when the

withdrawal condition was lifted. The PMC came on board and prepared the technical

documents of the bidding documents. This delayed the implementation of procurement

packages. Procurement bidding documents should have been prepared ahead of effectiveness

and prior to Board approval and then contract awarded and signed immediately after

effectiveness.

• Smart NID cards contract management: A comprehensive procurement strategy and risk

identification during project preparation is important, especially when the implementing

agency is new to the Bank. While Bangladesh Election Commission (BEC) had extensive

experience establishing a national ID system, it did not have prior experience in handling large

value IT contracts. BEC is yet to settle the outstanding payments for 77.3 million blank NID

smart cards with its international vendor. As the IDA financing is no longer available, the BEC

has to mobilize resources for the GOB to pay outstanding fees due to the vendor.

• Political environment: The success of a project depends a great deal on its leadership capacity

and empowerment. Contrary to the expectation, the Project turned out to be politically

sensitive. Project management as well as its steering committee were often constrained in

making decisions based on available technical advice. In hindsight, the design for the

implementation arrangements could have considered more robust mitigating measures for

likely political interference in the implementation of the Project.

• Adequate skill sets: For an IT investment project, it is important to ensure adequate skill sets

in project team throughout project cycle. Because of rapid technological changes, it is

important to have the guidance and services of technical experts for a longer term.

• Interoperability among databases: In Bangladesh, the National Enterprise Architecture

(NEA) bus was launched by the Bangladesh Computer Council (BCC), but has not been

implemented. Preparedness and commitment of all users beyond the BCC and NIDW is a


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precondition for a functioning NEA bus. All would have to agree to share their databases with

the NEA. An interoperable system would greatly benefit the institutional coordination among

the users of NID services in Bangladesh.

• Effectiveness of the communications strategy: The Project recruited a professional

communications firm to implement strategic communication programs which was effective in

the promotion of NID authentication services. It has also collected feedback from the citizens

and users of NID services about their experience. There is continuing high demand for NID

services by the citizens as well as different agencies, and it would be important for NIDW to

further strengthen its communication strategy after closing of the Project.

• Civil Registration and NID: The civil registration and NID systems do not yet constitute an

integrated national identity management system. The civil registration system is based on self-

reporting of an individual and can result in duplicate entries in the civil registration database.

Data duplication technology of the NID system can benefit the civil registration system to

develop a credible civil registration system. In the long run, it will also benefit the NID system

itself.

• Benefits of NID services: To take advantage of cost savings and time efficiency, a great

number of agencies are now using the NID services. Necessary studies would help properly

document and further analyze financial and economic impacts of various NID services to the

users of the NID database.

• Business model for the NID system: Significant investment is required to update and maintain

a database for over 103 million registrants. The NID system has many busy users to conduct

their essential Customer Due Diligence. The NIDW would need to further collect revenues to

run the system on its own and be economically viable. Therefore, an effective business model

would be important to diversify NID services. The private sector, in particular, would be

willing to pay for the value-added services of the NID system.

• Cyber security: Cyber security is a constant concern for the systems that heavily rely on the

ICT infrastructure. The growing network of the NIDW may pose an even greater risk to the

system. It would be critical for the Government to ensure that data of over 100 million citizens

remains secure in the server. .


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ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS

A. RESULTS INDICATORS A.1 PDO Indicators

Objective/Outcome: Citizens having access to secure, reliable means of identification to conduct private transactions and access public services (of which % of women).

Indicator Name Unit of Measure Baseline Original Target Formally Revised

Target

Actual Achieved at Completion

Number of citizens having access to secure, reliable means of identification

Number 0.00 80000000.00 80000000.00 40390000.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 29-Jun-2018

Number of women among number of citizens having access to secure reliable means of identification

Number 0.00 0.00 40000000.00 19150000.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 29-Jun-2018

Comments (achievements against targets): Procurement process for the smart NID cards contract was much delayed due to the withdrawal condition of the Project and the contract was signed only on January 14, 2015. Later the contract management with the supplier of smart NID cards has affected achieving the result.

Objective/Outcome: Public/ private institutions using electronic identity verification for their service delivery.


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Target


Number of public/private institutions regularly using electronic identity verification for their service delivery

Number 0.00 0.00 4.00 85.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): The indicator far exceeded its original target. Implementation of the Project's communication strategy and government's commitment to use the NID system to authenticate identity of the citizens for delivery the major services have contributed to this achievement.

Unlinked Indicators


Target


Number of public/private institutions using off-line identity verification for their service delivery using smart NID cards

Number 0.00 0.00 5.00 0.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 29-Dec-2017

Comments (achievements against targets): Data on the number of agencies using offline identity verification is not available. This is a shortcoming in the monitoring system rather than meeting the objective of the indicator.


Target



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Number of citizens' identity electronically verified

Number 0.00 0.00 7000000.00 70000000.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets):

A.2 Intermediate Results Indicators

Component: 1. Regulatory Framework for the National Identification System and Integration into Service Delivery


Target


Operational procedures for the management of NID Wing introduced

Yes/No N N Y Y

30-Jun-2011 30-Jun-2011 30-Jun-2016 15-May-2018



Target


Regulatory and operational guidelines for NID Wing and verification service issued

Text Not issued Fully completed. Fully completed. Fully completed

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018



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Component: 2. Operations and Management of the National Identification System


Target


Data center and disaster recovery center of NID Wing of Bangladesh Election Commission established

Text Not established Established. Established Established

30-Jun-2011 30-Jun-2011 30-Jun-2016 15-May-2018



Target


Personalization Center for smart NID cards established

Number 0.00 1.00 1.00 1.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018



Target


Number of upazila server stations connected through VPN and capable of NID registration and updating of information

Number 0.00 230.00 230.00 516.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018


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Comments (achievements against targets): The Project has established the VPN to all upazilla offices of the BEC. It was necessary to have this to meet the growing demand of NID services by the citizens as well as the service providers.


Target


Number of social protection programs utilizing NID to verify the correct beneficiaries

Number 0.00 5.00 5.00 3.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): Currently three social protection programs have started utilizing the NID authentication service. It is believed that some more agencies who are formally networked with the NIDW would use the NID system for delivering their social protection programs.


Target


Staff recruited for NID Wing Number 0.00 71.00 71.00 43.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): The staff recruitment is centrally managed by the Public Service Commission (PSC). The PSC could not complete recruit staff against all 71 sanctioned positions yet.

Component: 3. Capacity Building, Communication, and Overall project Management


Target


Staff trained in operation and Number 0.00 700.00 2240.00 4261.00


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management of NIDW 30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018



Target


Orientation sessions organized for Upazila level staff of the Election Commission for community mobilization on NID system

Number 0.00 60.00 60.00 0.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): The Strategic Communication Approach consultancy firm couldn't commence this orientation sessions. The NIDW argued that the sessions would not be needed as the citizens' service providers are already making citizens to use the NID system to access various services.


Target


Agencies satisfied using the NID verification services

Percentage 0.00 70.00 70.00 71.00

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): A survey was conducted in November-December 2017. The final report is available.


Target



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Citizens satisfied using the smart NID cards

Percentage 0.00 70.00 70.00 93.20

30-Jun-2011 30-Jun-2011 31-Dec-2017 15-May-2018

Comments (achievements against targets): A survey was conducted in November-December 2017. The final report is available.


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KEY OUTPUTS BY COMPONENT

Component 1: Regulatory Framework for the National ID System & Integration into Service Delivery:

1. The regulatory framework was achieved in September 2014 when the rules and regulations

under the NIRA 2010 were finalized. Prior to that, the Act was amended in October 2013 by the Parliament

to declare that information and data preserved with the BEC will be confidential, and unauthorized

disclosure will be a punishable offence.

Component 2: Operations and Management of the NID System:

2. The outcomes of the identity authentication services for public and private sector agencies

significantly exceeded the targets. As of close of the Project, 85 agencies are using the ID authentication

services against the target of four agencies, of which 17 are public and 68 are private agencies. Among

the private sector agencies 45 are private banks and 6 are mobile phone operators while 17 are non-

banking financial institutions. The Finance Division, National Board of Revenue, Bangladesh Bank

(central bank), Ministry of Social Welfare, Bangladesh Bureau of Statistics, mobile telephone operators

and commercial banks are using the identity authentication services for their beneficiaries. The project

responded to over 325 million ID authentication requests from the users of the NID database as of project

closing. The table shows the details of the agencies and the services they provide:

Name of Agency Purposes of ID Verification Services

Government Agencies (17)

1 National Board of Revenue Registration in Taxpayers’ Identification No. (TIN)

database; issuance of e-TIN.

2 Bangladesh Bank Authentication of ID for Credit Information Bureau

and Financial Mgmt. Intelligence Unit.

3 Passport and Immigration

Authority Authentication of ID for issuance of passport

4 Finance Division, Ministry of

Finance

Development of database for pensioners in civil

service, Salary/Pay fixation for civil service.

5 Ministry of Religious Affairs

Online registration of hajj pilgrims at Union

Information Service Centers/ hajj agencies/ Islamic

Foundation offices/ deputy commissioners’ offices/

hajj offices.

6 Electronic Signature Certificate

Authority Controller Office

Authentication of the identity for electronic

signature.

7 Macro-economic wing, Finance

Division, Ministry of Finance

Authentication of the personnel.

Receiving data set for capacity development training

of the personnel.

8 Ministry of Social Welfare Receiving data set to list beneficiaries under social

welfare program.

9 Special Branch, Bangladesh Police Detecting criminals, investigation, prevent forgery,


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terrorism etc.

10 Prime Minister Office Authentication of identity for govt. services.

11 Police Bureau of Investigation Authentication of the victim, criminal etc.

12 Bangladesh Bureau of Statistics

(BBS)

Authentication Services for Household surveys and

other surveys of BBS

13 Rapid Action Battalion Detecting criminals, investigation, prevent forgery,

terrorism

14 Janata Bank Ltd. e-KYC15/ opening of account/ mobile banking.

15 Signal Intelligence Bureau Authentication of the victim, criminal etc.

16 National Telecommunication

Monitoring Cell n/a

17 MIS Department of Health Authentication for providing health service

Mobile operators (6)

18 Airtel Bangladesh Limited (Airtel)

SIM/ RIM registration/re-registration

19 Bangla Link

20 Pacific Telecom Limited (City

Cell)

21 Grameen Phone Limited

22 Robi Axiata Limited (Robi)

23 Teletalk Bangladesh Limited

Private commercial banks (45)

24 BRAC Bank Limited

e-KYC/ opening of account/ mobile banking.

25 Dutch Bangla Bank Limited

26 Bangladesh Commerce Bank

Limited

27 United Commercial Bank Limited

28 Southeast Bank Limited

29 Eastern Bank Limited

30 Export Import Bank Limited

31 AB Bank Limited

32 NRB Global Bank Limited

33 NRB Commercial Bank Limited

34 Standard Chartered Bank Limited

35 IFIC Bank Limited

36 Al-Arafah Islami Bank

37 Mutual Trust Bank Ltd.

38 Prime Bank Ltd.

39 Sahajalal Islami Bank

40 Trust Bank Ltd

41 Jamuna Bank Ltd.

42 Islami Bank Bangladesh Ltd.

15 Know Your Customer


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43 NRB Bank Ltd.

44 BASIC Bank Ltd.

45 Bank Al Falah

46 Uttara Bank Limited

47 Dhaka Bank Limited

48 First Security Islami Bank Limited

49 One Bank Limited

50 Midland Bank Limited

51 Mercantile Bank Limited

52 The City Bank Limited

53 Bank Asia Limited

54 National Credit Commerce Bank

55 Pubali Bank Limited

56 Union Bank Limited

57 Social Islami Bank Limited

58 HSBC limited

59 Habib Bank Limited

60 Standard Bank Limited

61 The Premier Bank Limited

62 The Farmers Bank Ltd.

63 National Bank Ltd.

64 Madhumati Bank Ltd.

65 Rupali Bank Limited

66 Agrani Bank Limited

67 Shimanto Bank limited

68 Meghna Bank Limited

Non-banking financial institutions (17)

69 IDLC Finance limited

e-KYC

70

Industrial Promotion &

Development Company (IPDC) of

Bangladesh Limited

71 MIDAS Financing Limited

72 Phoenix Finance & Investment

Limited

73 Prime Finance & Investment

Limited

74 United Finance Ltd.

75 Lanka-Bangla Finance Ltd.

76 Infrastructure Development Ltd.

77 Fareast Finance and Investment

Ltd.

78 Premier Leasing and Finance Ltd.

79 First Finance Limited

80 Meridian Finance and Investment


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Company Limited

81 Bangladesh Finance and

Investment Company Limited

82 International Leasing Co. Limited

83 Union Capital Limited

84 B-kash Limited

85 National Finance Limited

3. The biometric data of over 100 million citizens has been added to the database. The NIDW has

started registering individuals of 15-18 years of age since July 2015.

4. The 17-digit NID number containing year of birth and geographical information of a citizen has

been replaced by a 10-digit unique identification number (UID).

5. Around 40.39 million cards have been personalized and 29.79 million cards have been distributed

to the citizens.

6. Status of production, personalization and distribution of smart NID cards at a glance:

No Activity Number of cards

(Million) %

1 Total Number of Card 90.0016 100.00

2 Card Supplied 77.30 85.89

3 Card not supplied 12.70 14.11

4 Personalization Completed 40.39 44.88

5 Yet to personalize 49.61 55.12

6 Delivered to Thana/upazilla 36.67 44.08

7 Yet to deliver to upazilla 50.33 55.93

8 Distributed to citizens 29.79 33.10

9 Yet to distribute to citizens 60.21 66.90

Component 3: Capacity Building, Communication and Overall Project Management:

The Project financed the following capacity building activities:

Local Training # of Persons

1 Capacity Building Training for NIDW and Project Staff 4,261

2 Capacity Building Training for Enumerator/ Smart NID Distributor 1,000

Foreign Training

1 Study tour on smart card and service delivery (Malaysia, Singapore, 6

16 The target set at the design stage was 80 million, another 10 million was added (based on availability of resources in the

Project) while issuing the contract to the supplier of the smart NID cards contract. There were more than 100 million registrants

in the database at that time.


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Thailand)

2 10th Government Discussion Forum on Electronic Identity 1

3 Visit to Oracle Headquarters in California, USA 3

4 Study Tour to Australia and Singapore 3

5 Study Tour to Germany and Switzerland 4

6 Study Tour to UK and France 4

7 Training on Procurement Management 1

8 Workshop on Result Monitoring and Evaluation 1

10 Training in Procurement Management 7

11 Conference on High-Security Printing –Asia 1

12 Impact Evaluation Workshop 1

13 Training on Foreign Aid Management System 4

15 Two visits to France 2

16 Visit China 1

Subtotal foreign tour/training/workshop 39


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ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION

A. TASK TEAM MEMBERS

Name Role

Preparation

Supervision/ICR

Syed Khaled Ahsan Task Team Leader(s)

Richard Olowo Procurement Specialist(s)

Mohammad Reaz Uddin Chowdhury Financial Management Specialist

Sabah Moyeen Social Safeguards Specialist

Immanuel Frank Steinhilper Team Member

Saw Young Min Team Member

Iqbal Ahmed Environmental Safeguards Specialist

Nusrat Mehzabeen Team Member

Mir Mehbubur Rahman Team Member

B. STAFF TIME AND COST

Stage of Project Cycle Staff Time and Cost

No. of staff weeks US$ (including travel and consultant costs)

Preparation

FY10 3.992 64,699.71

FY11 29.077 260,439.27

FY12 .190 - 55.82

Total 33.26 325,083.16


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Supervision/ICR

FY11 3.200 29,206.18

FY12 17.269 96,974.03

FY13 44.476 157,484.53

FY14 45.471 104,847.00

FY15 44.655 107,956.43

FY16 25.286 101,597.02

FY17 25.729 70,765.00

FY18 18.630 101,438.20

FY19 0 13,626.71

Total 224.72 783,895.10


Page 50 of 125

ANNEX 3. PROJECT COST BY COMPONENT

Components Amount at Approval

(US$M) Actual at Project

Closing (US$M) Percentage of Approval

(US$M)

1. Regulatory Framework for the National Identification System and Integration into Service Delivery

9.06 7.95 87.77

2. Operation and Management of the National Identification System

145.97 128.02 87.70

3. Capacity Building, Communication, and Overall Project Management

39.96 35.03 87.66

Total 194.99 171.00 87.70


Page 51 of 125

ANNEX 4. EFFICIENCY ANALYSIS

The IDEA Project contributed to generating higher revenues by providing the NID services. One

important revenue source has been the minimum charge from agencies using the NID services. For

instance, government agencies are charged BDT 1.00 per hit from government agencies and BDT

2.3 per hit from private entities. There are also fees collected from citizens for correction and

replacement of lost NID cards. As of June 30, 2018, a total of USD 17.10 million has been collected

and deposited.

Given the immense potential of the NID system, it is expected that the number of users and hits are

expected to grow significantly over the years. For the purpose of the analysis, the following

assumptions are made: there will be a minimum of 10% increase of revenue every year, 10%

increase of operating cost with a discount rate of 10% (based on the new discount rate in project

evaluation by the Government of Bangladesh17). Inflation rate is 6% (based on historical inflation

rate trend) with initial investment of USD 113.19 million and timeframe of 2027 (10 years). The

NPV will be USD 36.12 million.

NPV= ∑ {C/ (1+r)^t} - Initial Investment

C=Cash Flow

t= time

r= Discount rate

The revenue generated to the government exchequer is only one of the many economic benefits.

For banks, an area of significant savings has been on transaction costs associated with client

information verification process. Before NID services, the banks would send a form to each

customer via mail for verification which cost BDT 10 for postage, wait for at least two weeks to

receive response, and at times send Bank staff to the location of the address to make sure the address

was authentic. At present, it only takes BDT 2.3 and receives instant verification. Actual economic

and financial benefits would be greater with gains from other agencies including the mobile

industry, law enforcing agencies, department of immigration and passport, and birth and death

registration authority. In light of data limitations, it was not possible to quantify these important

benefits.

17 “Deciding Discount Rate for Bangladesh in Project Evaluation Implementing Five Year Plans” Government of Bangladesh Planning

Commission General Economic Division


Page 52 of 125

ANNEX 5. BORROWER AND CO-FINANCIER COMMENTS

Election Commission Bangladesh

Election Commission Secretariat

Identification System for Enhancing Access to Services (IDEA) Project

Agargaon, Dhaka-1207

Tel: 55007571, Fax: 55007594, Website: www.ecs.gov.bd; www.nidw.gov.bd

No. IDEA/OPS/M&E/009/2013/1618 Date: 16 August 2018

Subject: Comments on Implementation Completion and Result Report (ICR): Identification

System for Enhancing Access to Services (IDEA) Project (P121528) [IDA Credit No. 4938-

BD]

The undersigned is informed you that the draft ICR on IDEA project has been reviewed by the

Project Authority. The Project Authority has agreed almost on all assessment on implementation.

However, the followings are the observations on the ICR:

(1) In page 7, paragraph 7 “The National Identity Registration Wing is collecting BDT

1.00 per hit from public agencies and BDT 2.30 from private sector agencies for

providing NID services” will be replaced by

“The National Identity Registration Wing is collecting BDT 1.15 per hit from public agencies

and BDT 2.30 including VAT from private sector agencies for providing NID services”

(2) In page 8, paragraph 5, The Project is rated “Moderately Unsatisfactory” and page

27, serial 53; The overall outcome rating is considered “Moderately Unsatisfactory”

must be replaced by “Satisfactory”. We strongly disagree with the rating of the project

recorded in the ICR. The project has two development objective indicators, one is citizens

having access to reliable means of identification and secure NID card are distributed to

80 million citizens; and the other is Number of public and private institutions using

electronic identity verification for their service delivery and the target was 2 public and

2 private agencies.

Regarding the 1st PDO indicator, the project received 77.3 million cards from the supplier and

personalized 40.39 million cards up to June 2018 which are now reaching to the citizens. To

ensure the distribution of 77.3 million cards by December 2018 the project requested the World

Bank to extend the project period but WB refused. However, the project has been extended from

the Government cost up to December 2018. The project will ensure distribution of 77.3 million

smart NID cards to the citizen by December 18, which will achieve almost 97% of the target.

Besides, there is now a fully reliable ID verification system in place. Even if for the argument

sake the current achievement is more than 50%.

Regarding the 2nd PDO indicator, number of public and private institutions using electronic

identity verification for their service delivery. It is needless to say that there is already a reliable

http://www.ecs.gov.bd/

http://www.nidw.gov.bd/


Page 53 of 125

verification system is in place and the proof of this reliable system is ongoing verification service

to more than 85 public and private agencies. We appreciated that that you have recorded it

properly.

Given the above we are confident that the project should be rated satisfactory.

(3) In page 21, Table 2 indicator 4 “Number of public and private institutions using off-

line identity verification for service delivery using smart NID cards, target 5;

achievement- “No progress” The achievement no progress will be replaced by “5

institutions” So far a total of 5 institutions doing offline identity verification using

laminated ID cards i.e. Anti-Corruption Commission, A2I Project of PM office, Dhaka

Metro Politian Police (DMP), Police Bureau of Investigation (PBI), Dutch Bangla

Bank. So far almost one million identities verified through offline. The project could not

include this data in the completion report because the target was for smart NID cards.

(4) In page 21, paragraph 37, Indicator 1: line 2 “The project and its supplier of smart

cards contract package had never a good working relationship” will be replaced by –

The project and its supplier of smart NID cards contract package had a very good working

relationship and due to this relationship Project allowed one year extension of the contract

period. The supplier significantly failed to complete their assigned tasks. Even then, Project

authority wanted to extend the contract for the second time but due to repeated shifting of their

position and violation of their own commitments the PSC and BEC decided not to extend the

contract and the contract with the supplier was ended with the passes of time. It is to be noted

that the supplier failed to submit the project plan; deploy a project manager to implement the

project and carry out the planned training for the staff of NID Wing of BEC.

(5) In page 22, after the end of paragraph 40, a line could be added as – So far 96

organizations is verifying identity using the database.

(6) In page 25, part C Economic and Financial Analysis line 3 “For instance, public sector

agencies are charged BDT 1.00 per hit from government agencies and BDT 2.30 from

private entities” will be replaced by “For instance, public sector agencies are charged

BDT 1.15 per hit from government agencies and BDT 2.30 from private entities that

included VAT.

(7) In page 33, line 7 & 8 “Despite several attempts, the Project could not prepare a

complete inventory register to record and physically verify all of its asset” will be

replaced by-“To track and identify all the assets the Project prepared a complete

inventory register both in electronic form and hard form (manual registers).All the assets

procured for project purpose were properly marked with identification number as per

advice of WB task team. Also several committees were formed to carry out physical

verification of the assets both in project office and field offices. The committees carried

out the physical verification and submitted reports to the Project authority. The compiled

reports were duly shared with the WB’s task team members and the report was


Page 54 of 125

appreciated by the respective task team members through email. Besides, Asset Branch

is maintaining Goods and Service Receive Note (GSRN) to ensure that all the assets

procured are recorded properly.

(8) In page 36, Overall comments in between line 1 and 2 a new line could be added

mentioning that “currently smart NID cards are being personalized and distributed to

all 64 district headquarters and 42 upazila/thanas by the Project under direct supervision

of BEC.”

Over all comments of the project: Across the documents as we have reviewed the ICR, we have

a strong impression that the ICR have a bias on supplier perspectives regarding the contract

management. We tried all out to settle all issues with the supplier bur they did not cooperate

properly. The project has consistently kept the WB informed about the issues created by the

supplier. The project have done everything to solve the issues with the supplier but they did not

cooperate the project. The project position has not been reflected properly in the ICR.

Hence, we do not agree with the conclusion with the ICR about the smart NID cards.

You are kindly requested to forward these comments to ERD requesting to forward the World

Bank for incorporating into the ICR for finalizing the same.

(MOHAMMED SAIDUL ISLAM)

Brigadier General

Project Director

IDEA PROJECT

Telephone: 55007571

E-mail: [email protected]

Secretary

Election Commission Secretariat

Nirbachan Bhaban

Agargaon

Dhaka-1207

Copy to:

1. Ms. Mahamuda Begum, Additional Secretary, ERD

2. Syed Khaled Ahsan, Senior Public Sector Specialist and Task Team Leader, IDEA

3. PS to CEC (for Hon’ble CEC), Bangladesh Election Commission


Page 55 of 125

ANNEX 6. SUPPORTING DOCUMENTS

1. Project Appraisal Document, Report No.: 60607-BD, dated April 14, 2011

2. Project Paper, Report No. RES31045

3. Project Paper, Report No. 67650

4. Project Paper, Report No. RES11540, dated August 3, 2013

5. Project Paper, Report No.:RES18271, dated June 25, 2015

6. Implementation Status and Results Back to Office Reports/Aide-Memoires/Mission

Notes –September 2011 through December 2017

7. Mid Term Review Reports, dated February 2015

8. Quarterly Progress Reports: January 2013 through December 2017

9. Report: Survey on Citizens’ Satisfaction about NID Services, November 2017

10. Report: Survey on Opinion of Service Providers about NID Authentication Services,

November 2017

11. Memos regarding amendments to the Grant Agreements, and Restructuring Papers

12. Borrower’s Implementation Completion Report, dated May 15, 2018


Page 56 of 125

ANNEX 7. SPLIT RATING CALCULATION

Before

Restructuring

After

Restructuring

Relevance of Objective High

Efficacy (PDO) Modest Modest

Efficiency Modest Modest

1 Outcome Ratings Moderately

Unsatisfactory

Moderately

Unsatisfactory

2 Numerical Value of the outcome ratings 1/ 3 3

3 Disbursement $45.94 Million $67.25 Million

4 Share of Disbursement 40.6 59.4

5 Weighted value of outcome rating (Row 2 x Row

4)

1.22 1.78

6 Final Outcome Rating Moderately Unsatisfactory

(1.22+1.78 = 3)

Highly Unsatisfactory (1); Unsatisfactory (2); Moderately Unsatisfactory (3);

Moderately Satisfactory (4); Satisfactory (5); Highly Satisfactory (6)


Page 57 of 125

ANNEX 8. RISK ASSESSMENT

Risks and Risk Mitigation Measures: The overall risk of the project was rated as Substantial in the Project Appraisal Document

(PAD). The ICR team agrees with this assessment. The PAD had identified several potential risks and mitigation measures as deemed

appropriate at the time. At project completion, some of these risks had materialized. The table below shows some of the major risks

and mitigation measures identified in the PAD along with an assessment of the risks by the ICR team.

Risks Risk

Ratings 1

Mitigation Measure

Planned at Appraisal

ICR Assessment of the Risks

Project Stakeholder Risks

Borrower Relations: The IA (Bangladesh

Election Commission) has been engaged

with a similar donor funded project and

even a leadership change is not likely to

affect Government’s desire to implement

national ID system

Medium Continuous dialogue with the IA is

taking place, informing them of each

step of project preparation and advance

procurement.

This risk did not surface;

leadership of the Government was

evidently visible in establishing

NID registration wing, relevant

Acts on data privacy & data

security, bringing citizens of age 0

under the registration system

instead of 18 etc.

Donor Relations Risk: The ongoing

UNDP Project to build overall ICT and

communication capacity of BEC and to

construct election offices at upazilla level

will impact on the IDEA project

implementation schedule.

A National ID Master Plan by UNDP

was prepared with participation of the

Bank team and client’s input and

technical specification of tendering

documents have been agreed with the

Bank

This did not pose any risk; rather

project implementation delay

mainly occurred due to

establishment of a legal

framework (i.e. related acts and

rules on data privacy, data

security) that was revealed after

the kick-off of the project.

Public Perception/Political Risk:

Updating of fields and utilization of the

NID database for ID verification may

reveal minor inaccuracies/ inconsistencies

A sizeable contingency fund was

included to address any potential

shortfalls;

This risk was rather converted to

an opportunity for correcting the

large scale database containing


Page 58 of 125

(e.g. spelling errors). Communications program notes

updating fields for purposes of new

NID system including new cards; ID

verification service protocols

various citizen-information.

Project Risk

Technical complexity: The project has

several components which will be highly

complicated from a logistical and

technical standpoint: updating

information and adding new entries for

millions of individuals to the ID database;

entering into a large IT related contract to

handle new card production; and ensuring

distribution to approximately 80 million

persons in all regions of Bangladesh.

Legal and IT arrangements for data

utilization by other agencies will be

complicated.

High The project will develop a detailed

operation manual and will pilot test key

implementation aspects such as mass

distribution of new cards and providing

e-ID services to agencies.

This risk remained high until the

end of the project.

Implementation/institutional arrangement

complexity: there is one implementing

agency, but support will be needed for

other agencies to use the ID database, as

well as ensure logical linkage of the birth

registration system and the national

population registry.

High An implementation support consultancy

will assist the NIDW to carry out all

functions and build capacity.

A large communication strategy will be

carried out to facilitate the data updating

and distribution processes.

A Strategic Communication

Approach (SCA) firm was hired

and this risk was minimized

Program and Donor Risk: The

NIDW/BEC will have software,

equipment and upazilla offices provided

earlier by the UNDP project. In the event

Low The Project includes a sizeable

contingency fund to address any

potential shortcoming of UNDP projects

This did not pose any risk.


Page 59 of 125

of shortcomings in this infrastructure, the

project would need to adjust

implementation to overcome such

problems.

BEC and the Bank agreed on the issues

that are not captured in the Master Plan

Sustainability: The success and

sustainability of the project critically

depends on the human capacity of the IA

(specifically National ID Department of

BEC). The IT skills required to manage

the tasks would require salaries matching

market rate. If the initial skill set is

supported by Bank finance, appropriate

business model needs to be in place to

ensure sustainability of the resources.

Medium BEC would hire ICT officials to

complement external consultants hired

under the Project. Intensive on-the-job

training will be provided during the

project.

Dependency on the hired

external consultants remained

until the end of the project.

Contract management: Given the large IT

contracts involved, the IA would require

significant support to handle the

procurement and manage the contracts

during implementation

The project management firm would

help IA to manage all contracts

throughout the implementation of the

project

A Project Management

Consultancy (PMC) firm was

hired and the risk of handling

large IT procurements and

contract management was

minimized to a large extent

Overall Risk (including Reputational

Risks)

Substantial Technical and implementation

arrangements complexity and

sustainability risk after the project

completion are main risks associated

with the Project. The mitigation

measures proposed are considered

effective and realistic. Overall, the

project risk is rated low likelihood and

high impact at both preparation and

implementation stage.

After project completion, the

residual risks remain in the form

of dependency on external hired

consultants, lack of trained in-

house staffs, adequacy of

technical and financial resources

for operation and maintenance

of the procured equipment,

software, license etc.

1 Rating of risks on a four-point scale: High, Substantial, Moderate, Low - according to the likelihood of occurrence and magnitude of potential impact


Page 60 of 125

APPENDIX 1: BORROWER’S REPORT

Government of the People’s Republic of Bangladesh

Ministry of Planning

Implementation Monitoring and Evaluation Division

PROJECT COMPLETION REPORT (Partial Report): IMED 04/2003 (Revised)

A. PROJECT DESCRIPTION:

01. Name of the Project : Identification System for Enhancing Access to Services (IDEA)

Project

02. Administrative Ministry/Division : Bangladesh Election Commission

03. Executing Agency : Election Commission Secretariat

04. Location of the Project : All over Bangladesh

05. The objective of the Project:

The overall objectives are to establish a secured, accurate and reliable national ID system in Bangladesh that serves

as the basis for more efficient and transparent service delivery to the citizen.

Specific objectives: Specific objectives of the project are:

▪ Supporting the BEC in issuing NID cards with robust security features.

▪ Developing the capacity to provide identity verification services, and

▪ Developing capacity over the longer term to begin to integrate the new NID system into a wide range of both

public and private services.

06. Estimated Cost :

(In lakh Taka)

Original Latest Revised

(a) Total 137919.00 188330.00

(b) Taka 1419.00 67837.50

(c) Foreign Currency 123 million SDR

(195 million US$)

105.36 million SDR

(153 million US$)

(d) Project Aid

(e) RPA 136500.00 120492.50

07. Date of Approval : PCP DPP

(a) Original : 04/10/2011

(b) 1st Revised 29/06/2016

(c) 2nd Revised : On process


Page 61 of 125

08. Implementation Period :

Date of Commencement Date of Completion

(a) Original 01 July 2011 30 June 2016

(b) 1st Revised 01 July 2011 31 December 2017

(c) 2nd Revised 01 July 2011 31 December 2018

(d) Actual 01 July 2011 31 December 2018

09. Financing Arrangement (Source-wise): Financing Agreement signed on July 21, 2011, IDA Credit No.

4938-BD.

9.1 Status of Loan/Grant

a) Foreign Financing :

Source (s) Currency

as per

Agreement

Amount

in US $

(Million)

Nature

(Loan/Grant/

supplier's/

Date of

Agreement

Date of

Effective-

ness

Date of Closing

credit) Original Revised

1 2 3 4 5 6 7 8

IDA Credit

(WB)

SDR (123

million) 195 Loan

21 July

2011

28 August

2011

30 June

2016

28

February

2018

b) GOB:

(In lakh Taka)

Total amount Loan Grant Cash Foreign Exchange

1 2 3 4

Original 1419.00 1419.00

1st Revised 27199.00 27199.00

2nd Revised 67927.50 67837.50

9.2 Utilization of Project Aid: (Source wise) (As of February 28, 2018)

(In million)

Source (s) Total Amount Actual Expenditure Unutilized Amount

In US $ In Local

Currency

In US $ In Local

Currency

In US $ In Local

Currency

1 2 3 4 5 6 7

IDA Credit (WB) 153.56 12049.25 106.64 8530.78 46.36 3518.47

9.3 Reimbursable Project Aid (RPA) :

(In lakh Taka)

R P A Amount Amount Amount Amount Remarks

As per DPP As per Agreement Spent Claimed Re-imbursed

1 2 3 4 5 6

136500.00 123 million SDR 85307.71 89249.50 89249.50


Page 62 of 125

IMPLEMENTATION POSITION

01. Implementation Period:

Implementation Period

as per PP

Actual

Implementation

Time Over-run

(% of the original

Remarks

Original Latest

Revised

period implementation

period)

1 2 3 4 5

30 June

2016

31 December

2018

31 December

2018 50 %

Implementation time overrun 50%

due to the delay starting of the project

as per the provisions of the Financing

Agreement and the World Bank's

observation on Rules and

Regulations.

The project needed almost 30 months

to enact the NID rules and regulations

and made satisfactory to the IDA, thus

the project needed additional 30

months to implement the project's

overall activities and achieved the

objectives.

02. Cost of the Project:

(In lakh Taka)

Description Estimated Cost

Actual

Expenditure

up to February

28, 2018

Cost over-run

(% of original cost)

Remarks

Original Latest revised

1 2 3 4 5 6

TOTAL 137919.00 188330.00 103128.35 (+) 36.56 %

TAKA 1419.00 67837.50 19620.64 (+) 4781 %

RPA 136500.00 120492.50 83507.71 (-) 11.73 %

03. Project Personnel:

Sanctioned

strength as per DPP

Manpower

employed

during

execution

Status of the existing manpower Manpower

Employed

Manpower

requirement for

O&M as per DPP

Existing

manpower

for O & M

Others Male Female

1 2 3 4 5 6 7

Officer (s) 11 (GoB) 10 11 06 07 03

Staff (s) 11 (GoB) 10 11 09 09 01

Technical Expert 64

(RPA) 58 64 51 56 02

Technical Support 32

(RPA) 31 32 24 30 01

Associate 14 (RPA) 11 14 9 10 1

Data Entry Operator

1130 (RPA) for field 1130 1130 1130 1012 118


Page 63 of 125

Offices

Total : 1250 1262 1229 1124 126

04. Training of Project Personnel (Foreign/Local):

Field of

Training /Study

tour/workshop/Seminar etc.

Provision as per PP Actual

Remarks Number of

person

Man -

months

Number of

person

Man -

months

1 2 3 4 5 6

Local Training

Capacity Building Training for

NIDW and Project Staff 1240 N/A 4261 N/A

The project provide

capacity building training more than

the provisioned

number with less cost.

Capacity Building Training for

Enumerator/ Smart NID

Distributor

1000 N/A 1000 N/A

Subtotal local training 2240 5261

Foreign Training

Study tour on Smart Card and

service delivery

(June 2013)

LS LS 6 2.22 Malaysia,

Singapore,

Thailand

10th Government Discussion

Forum on Electronic Identity

(December 2013)

LS LS 1 0.14 Cambodia

Visit Oracle Headquarters in

California, USA

(March 2014)

LS LS 3 1.2

Study Tour to Australia,

Singapore

(April 2014)

LS LS 3 1.2

Study Tour to Germany,

Switzerland

(May 2014)

LS LS 4 1.3

Study Tour to UK, France

(May 2014)

LS LS 4 1.3

Training on Procurement

Management under CPTU

(March-April 2014)

LS LS 1 0.70

Workshop on Result Monitoring

and Evaluation

(October 2015)

LS LS 1 0.20 Beijing, China


Management in the Public

Sector

(October 2015)

LS LS 3 2.30 ITCILO, Turin,

Italy

Training in Procurement

Management

(January-February 2016)

LS LS 1 0.70 CPTU,

Bangladesh


Management in the Public

LS LS 3 1.90 ITCILO, Turin,

Italy


Page 64 of 125

Field of

Training /Study

tour/workshop/Seminar etc.

Provision as per PP Actual

Remarks Number of

person

Man -

months

Number of

person

Man -

months

Sector

(October 2016)

Conference on High-Security

Printing –Asia

(December 2016)

LS LS 1 0.17 Singapore

ID4D Impact Evaluation

Workshop

LS LS 1 0.34 USA

Training on Foreign Aid

Management System

(November 2017)

LS LS 2 0.14 ERD,

Bangladesh

Training on Foreign Aid

Management System

(March 2018)

LS LS 2 0.07 ERD,

Bangladesh

Visit France

(January 2015)

LS LS 1 0.17

Visit France

(April)

LS LS 1 0.27

Visit China

(May)

LS LS 1 0.27

Sub total foreign

tour/training/workshop 39

a. Foreign: A total of 18 training, workshop and study tour program arranged by the IDEA project on

February 28, 2018, and 39 participants attended those program.

b. Local: Various Capacity Building Training has been provided to the NIDW and project staffs. List of

the training courses with a number of participants is attached as annex- C

05. Component-wise Progress (As per latest approved DPP):

(In lakh Taka)

Items of work (as per DPP) Unit

Target (as per 2nd

Revised DPP)

Actual Progress up to

February 2018 Reasons

for

deviation

(±) ** Financial

Physical

(Quantity) Financial

Physical

(Quantity)

Revenue Cost - A

Officer Salary

Salary of Officers

(PD-1, DPD-2, AD-6,

Asst. Prog.-2) = Total-

11 LS

LS

159.89 11 officers

121.89 11 officers

(38.00)

Staff Salary

Salary of Staff (Office

Asstt. cum Data Entry

Operator-5

LS

22.22 5 staffs

15.22 5 staffs

(7.00)

Allowances

(Officer's & Staff)

Officer and Staff

Allowances, LS LS

146.45 -

93.45 -

(53.00)

Travel Cost Travel & other

allowances, LS LS

76.02 -

31.02 -

(45.00)

Overtime

Allowances

Overtime/other

allowances, LS LS

30.87 -

25.88 -

(4.99)

Office Rent Project Office Lease

(GoB + RPA), LS LS 1,734.13 90 months 1,062.02 90 months

(672.11)

Postage & related

expenditures Postage, LS LS

24.13 -

11.63 -

(12.50)


Page 65 of 125


Target (as per 2nd

Revised DPP)



for

deviation

(±) ** Financial

Physical


Physical

(Quantity)

Telephone

expenses

Telephone expenses,

LS LS

8.50 -

6.51 -

(1.99)

Telex/ Fax/

Internet

Telex/ Fax/ Internet,

LS LS

22.97 -

10.26 -

(12.71)

Registration/Tax

Token & Fitness

etc.

Registration/Tax

Token & Fitness etc.

LS

LS

45.96 -

39.96 -

(6.00)

Water & related

utility charges

Water & related utility

charges, LS LS

1.99 -

0.93 -

(1.06)

Electricity &

related utility

charges

Electricity & related

utility charges, LS LS

555.44 -

405.44 -

(150.00)

Fuel/ Petrol/ Gas/

CNG

Fuel/ Petrol/ Gas/

CNG, LS LS

303.66 -

223.75 -

(79.91)

Insurance /Bank

Charge

Insurance /Bank

Charge LS

117.44 -

116.96 -

(0.48)

Printing &

Distribution of ID

cards

Production,

personalization &

distribution (upazilla)

of 90 million smart

NID Cards

number

85,593.30 90 million

47,199.01 90 million

(38,394.29)

Printing &

Distribution of

NID cards

Printing &

Distribution of Paper

laminated NID cards

number

760.00 10 million - 10 million

(760.00)

Stationery/Seal/St

amp

Stationary/ Seal/

Stamp/ (Computer

consumables, - HQ,

NID registration &

others, LS

Year

215.19 -

155.19 -

(60.00)

Advertising &

publicity

Communication

campaign management

firm

LS

979.87 -

634.87 -

(345.00)

Training Training - as and

when necessary, LS LS

652.48 -

462.48 -

(190.00)

Meeting/

Seminar/

Conference

Meeting/Workshop/Se

minar, LS LS

78.01 104 batch

64.31 104 batch

(13.70)

Entertainment

Cost

Entertainment Cost for

officers and staffs

19.00 - - -

(19.00)

VPN management

service fee

Internet Charge and

VPN for upazillas,

BCC, BEC, Printing

Facility, LS

number

2,686.84

536

upazila/tha

na

1,884.34

536

upazila/th

ana

(802.50)

Consultancy

Service

Individual

Consultants/Firms LS

2,633.19 -

2,404.51 -

(228.68)

Honorarium/

Remuneration/ fee

for services

Distribution of NID

cards to citizens = 90

million

@15BDT/cards

number

11,543.48

90 million

cards

961.01

90

million

cards

(10,582.47)


Page 66 of 125


Target (as per 2nd

Revised DPP)



for

deviation

(±) ** Financial

Physical


Physical

(Quantity)

Honorarium/

Remuneration/ fee

for services

Honorarium for

Technical Expert,

Associate and

Technical Support for

Data Center

person

1,751.15 110 person

1,384.07

110

person

(367.08)

Honorarium/

Fees/

Remuneration

HR Firm - to deliver

data entry operators

for Upazilas (please

see footnote for

explanation) 1130

persons,

(18500/month/operato

r)

person

6,855.57

1130

Operators

4,649.79

1130

Operators

(2,205.78)

Audit fee Internal Audit by the

Private firm, LS LS

23.21 -

23.21 - -

Supplies &

services

Other Operational

Cost (salary of the

driver, MLSS and

cleaning services etc.)

LS

935.33 -

525.77 -

(409.56)

Vehicle

maintenance

Vehicle maintenance,

LS LS

87.17 -

62.67 -

(24.50)

Repair &

maintenance of

computer & office

equipment

Repair & maintenance

of computer & office

equipment, LS

LS

56.68 -

41.68 -

(15.00)

Repair,

maintenance &

refurbishment

Card production

facility-SPP (includes

all facility) 9000 sqf.

LS

210.88 -

10.88 -

(200.00)

Subtotal A Revenue Cost>>>>>> 118,331.03 62,628.71

Capital Component - B

Vehicle Vehicle - for Project

Office 12

800.40 12

800.40 12

-

Computer &

Accessories

IT Equipment,

Accessories and

Maintenance

LS

25,847.00

1 DC, 1

DRS, 1

call center,

2000 iris

scanner,

2000 finger

print

scanner,

816

barcode

reader

15,746.17

1 DC, 1

DRS, 1

call

center,

2000 iris

scanner,

2000

finger

print

scanner,

816

barcode

reader

(10,100.83)

Software

Various Productivity

Software and

maintenance

LS

12,623.41

AFIS,

ORACLE,

BVRS,

Windows

etc.

123.41

AFIS,

ORACLE,

BVRS,

Windows

etc.

(12,500.00)


Page 67 of 125


Target (as per 2nd

Revised DPP)



for

deviation

(±) ** Financial

Physical


Physical

(Quantity)

Various

machinery &

office

equipment’s

Various machinery &

office equipment’s LS

214.30 -

68.78 -

(205.67)

Various furniture

& accessories

Various office

furniture & related

items, Installation and

Commissioning of

Workstation NIDW

office setup at ETI

Bhaban, etc. LS

LS

164.21 -

93.25 -

(100.96)

Block Allocation Allocation for NID

Service fund, LS LS - - - - -

CD-VAT 29,849.07 23,586.07 (6,262.85)

Subtotal B Capital>>>>>> 69,498.39 40,418.08 (29,170.31)

C. Contingency Cost 500.51 81.55 (419.03)

Total Cost (A+B+C) in Lakh Taka >> 188,330.00 103,128.34 (85,291.66)

** IDEA project will continue until December 2018 thus the item wise cost is yet to expenses. After completing

the project the hopefully the item wise cost and expenditure will be the same line/level with few exceptions.

06. Information regarding Project Director (s):

Name &

Designation with pay Scale.

Full

time

Part

time

Responsible

for more than

one project

Date of Remarks

Joining Transfer

1 2 3 4 5 6 7

Akhtaruzzaman Siddique

Brigadier General

Pay Scale- 38565/- No 03.07.2011 14.03.2013

As per the

Govt. pay

Scale 2009 Saleem Ahmad Khan

Brigadier General

Pay Scale-38565/- No 14.03.2013 30.07.2013

Sultanuzzaman Md Saleh Uddin

Brigadier General

Pay Scale- 76100/- No 30.07.2013 22.01.2017

As per the

Govt. pay

Scale 2015 Mohammed Saidul Islam

Brigadier General

Pay Scale-76100/- No 22.01.2017 28.02.2018

07. Procurement of Transport (in Nos.):

Type of

transport

Number

as per

P.P.

Procured

with date

Transferred to

Transport

Pool with date

Transferred

to

O & M with

date

Condemned/

damaged

with date

Remarks

1 2 3 4 5 6 7

Car N/A - - - -

Jeep 11 11 Jeep on

22.02.2015

After completion

of the project

vehicles will

N/A N/A BEC will

transfer to

Govt. Microbus 1 1 Microbus N/A N/A


Page 68 of 125

on

15.04.2015

transfer to BEC Transport

Pool

Minibus N/A - - - -

Bus N/A - - - -

Pick-up N/A - - - -

Truck N/A - - - -

Motor Cycle N/A - - - -

By-cycle N/A - - - -

Speed Boat N/A - - - -

Launch N/A - - - -

Others

with name

N/A - - - -

08. Procurement of Goods, Works and Consultancy Services:

08.1 Goods & Works of the Project costing above Tk. 200.00 lakh. and Consultancy above Tk. 100.00 lakh:

Description of

procurement

(goods/works

/consultancy)

as per bid document

Tender/Bid/Proposal Cost

(in crore Taka) Tender/Bid/Proposal

Date of completion of

works/services and

supply of goods

As per

PP Contracted value

Invitation

date

Contract

signing/

L.C

opening

date

As per

contract Actual

1 2 3 4 5 6 7

G2: Supply, Installation,

and Maintenance of

Disaster Recovery

System for Bangladesh

Election Commission

59.16

USD 7324628 +

BDT 5680000

(Eqv BDT-57.51)

20-Nov-13

07-Jul-14

30-Jun-15

30-Jun-15

G4: Production and

Distribution of Smart

NID cards for Citizens of

Bangladesh

796.76

USD

20442603.09 +

Euro 53043098.81

+ BDT

763657945.37

(Eqv BDT-

796.27)

28-Apr-14

14-Jan-15

30-Jun-16 30-Jun-17


and Maintenance of

Decentralized

Technology

Infrastructure

38.76

USD 4232400 +

BDT 13543680

(Eqv BDT-34.25)

26-Dec-13

09-Jul-14

30-Jun-16

30-Sep-15


and Maintenance of VC

System and Call Center

for Bangladesh Election

Commission

7.54

BDT 2.16 19-Mar-14

30-Dec-14

30-Jun-15

25-Jun-15

G8: Utility vehicles for

project & regional

offices

6.909 BDT 7.62 09-Dec-14

22-Feb-15

30-Jun-16

20-May-

15

G11: Supply,

installation, and

maintenance of AFIS

System for Disaster

42.43

USD 3893149.84

+

BDT

38431935.40

17-Dec-13

11-Dec-14

30-Jun-16 30-Jun-16


Page 69 of 125

Description of

procurement

(goods/works

/consultancy)

as per bid document




works/services and

supply of goods

As per

PP Contracted value

Invitation

date

Contract

signing/

L.C

opening

date

As per

contract Actual

Recovery System (Eqv BDT-34.11)

G12: Oracle Support

Service for Data Center

29.56

BDT 28.12 19-Mar-14

30-Jun-16 30-Jun-16

G13: AFIS Support

Service for Data Center

7.161

BDT 3.28 25-Aug-14 30-Jun-16 30-Jun-16

G21: Supply of 10-Print

Fingerprint Scanners and

IRIS Scanners

38.67 BDT 10.10 21-Sep-17 28-Nov-17 20-12-17 28-Feb-18

15-Mar-

18

G28: Procurement of

Barcode Reader

2.24 BDT 2.19 11-Oct-17 06-Dec-17 20-Dec-

17

20-Dec-17

NCS1: Establishment of

VPN and Maintenance

of VPN Service for BEC

25.83 USD

3,071,311.05 +

BDT

5,660,000.40

(Eqv BDT-24.67)

18-Nov-15 29-May-16 31-Dec-

16

30-Nov-

17

NCS3: HR Firm- to

deliver Data-entry

Operators for Upazillas

(under Dhaka and

Faridpur Regions)

9.12 BDT 3.92 +

BDT 3.04 +

BDT 0.61

Total: 7.56

30-Jul-15 21-Dec-15 28.02.17

31.12.17

28.02.18

28.02.17

31.12.17

28.02.18

NCS4: HR Firm- to

deliver Data-entry


(under Barisal and

Khulna Regions)

9.42

BDT 4.19 +

BDT 3.38 +

BDT 0.67

Total: 8.24

30-Jul-15 21-Dec-15 28.02.17

31.12.17

28.02.18

28.02.17

31.12.17

28.02.18

NCS5: HR Firm- to

deliver Data-entry

Operators for Upazilas

(under Sylhet and

Mymensingh Regions)

9.80

BDT 4.56 +

BDT 3.54 +

BDT 0.70

Total: 8.79

30-Jul-15 21-Dec-15 28.02.17

31.12.17

28.02.18

28.02.17

31.12.17

28.02.18

NCS6: HR Firm- to

deliver Data-entry

Operators for Upazilas

(under Comilla and

Chittagong Regions)

9.22

BDT 4.08 +

BDT 3.29 +

BDT 0.56

Total: 8.02

30-Jul-15 21-Dec-15 28.02.17

31.12.17

28.02.18

28.02.17

31.12.17

28.02.18

NCS7: HR Firm- to

deliver Data-entry


(under Rajshahi and

Rangpur Regions)

10.70

BDT 4.83 +

BDT 3.78 +

BDT 0.75

Total: 9.35

30-Jul-15 21-Dec-15 28.02.17

31.12.17

28.02.18

28.02.17

31.12.17

28.02.18

S1: Project Management

Support Consultancy

(PMC) Firm

21.872 USD 1377579 +

BDT111791148

28-Jan-11

28-Jan-14

11-Sep-

16

11-Sep-16

S2: Strategic

Communication

Approach (SCA) Firm

21.872

BDT 143750000 28-Jan-11

26-Nov-13

30-Sep-

16

30-Nov-

17

S8: Procurement

Consultant (national)

2.934 02-Jun-11

01-Jan-12

31-Dec-

18

31-Oct-17


Page 70 of 125

Description of

procurement

(goods/works

/consultancy)

as per bid document




works/services and

supply of goods

As per

PP Contracted value

Invitation

date

Contract

signing/

L.C

opening

date

As per

contract Actual

S11: Financial

Management Specialist

1.288 02-Jun-11

01-Feb-13

31-Dec-

18

30-Apr-17

S12: IT System

Consultant

1.529 28-Jun-11

16-Nov-12

31-Dec-

18

28-Feb-18

8.2 Use of Project Consultant (s) (Foreign/Local):

Name of the Field Approved man month Actual man

month utilized

Remarks

As per PP As per contract

1 2 3 4 5

Legal Consultant - Sr. 60 days 60 days 60 days

Legal Consultant - Jr. 60 days 60 days 60 days

Software development,

maintenance & operations

LS - - Has not been procured

Cost Recovery Consultant

- national

60 pm - - Has not been procured

Consultancy Services for

Db enhancement,

LS Has not been procured

Procurement Specialist

(national)

85 pm 63 pm 60 pm

Procurement Specialist

(international)

10 pm 10 pm 10 pm Service received 40 days

spread over 10 months

M&E Specialist 2 pm - - Has not been procured

FM Specialist 85 pm 71 pm 63 pm

IT System Consultant 85 pm 69 pm 69 pm

Database Expert 75 pm 48 pm 37 pm

Hardware Engineer 85 pm 62 pm 62 pm

Networking Expert 60 pm Procurement process has

been frustrated three times

Asset Management

Cosultant/ Jr. Consultant

(national)

85 pm 64 pm 64 pm

HR Consultant/ Jr.

Consutant (national)

85 pm 68 pm 68 pm

M&E Consultant - Jr.

Local

85 pm 68 pm 68 pm

Communication

Consultant - Jr. Local

85 pm 68 pm 68 pm

Legal Consultnat

(international)

30 Days 2 pm 2 pm Service received 15 days

spread over 2 months

a) Foreign: 2 Consultants


Page 71 of 125

1. Legal Consultant (International)

2. Procurement Consultant (International)

b) Local : 11 Consultants in different periods

1. Legal Consultant - Sr.

2. Legal Consultant - Jr.

3. Procurement Specialist

4. FM Specialist

5. IT System Consultant

6. Database Expert

7. Hardware Engineer

8. Asset Management Cosultant/ Jr. Consultant

9. HR Consultant/ Jr. Consutant

10. M&E Consultant - Jr. Local

11. Communication Consultant - Jr. Local

08. Construction/Erection/Installation Tools & Equipment:

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

1 2 3 4 5 6 7

Workstation 1200 1200 1200

25.08.2015

1187

10/09/15-19/03/18

13

UPS 1200 1200 1200

25.08.2015

1160

10/09/15-19/03/18

40

Document

Scanner

1200 1200 1200

25.08.2015

1109

10/09/15-19/03/18

91

Digital Camera 1200 1200 1200

25.08.2015

1041

10/09/15-06/12/17

159

Finger print

Scanner

1200 1200 1200

25.08.2015

1038

10/09/15-06/12/17

162

Signature Pad 1200 1200 1200

25.08.2015

1040

10/09/15-06/12/17

160

Receipt Printer 1200 1200 1200

25.08.2015

1037

10/09/15-06/12/17

163

Mitsubishi Pajero

Sports Jeep

11 11 11

27/04/2015

&13/05/2015

11

27/04/2015

&13/05/2015

0

Microbus 1 1 1

26/04/2015

1

26/04/2015

0

10-Print Finger

Print Scanners

2000 2000 2000

15/03/2018

1626

16/04/2018-

19/04/2018

374

IRIS Scanners 2000 2000 2000

15/03/2018

1626

16/04/2018-

19/04/2018

374

Barcode Reader 816 816 816

20/12/2017

710

16/04/2018-

19/04/2018

106

Rack (PDU, Key,

Royal Bolt, Fan)

590 590 590

07/03/2017

590

07/03/2017

0


Page 72 of 125

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

Router 590 590 590

07/03/2017

590

07/03/2017

0

SIM & SIM KIT 590 590 590

07/03/2017

590

07/03/2017

0

UPS Converter 590 590 590

07/03/2017

590

07/03/2017

0

Console Cable 590 590 590

07/03/2017

590

07/03/2017

0

UTP Patch Cord 590 590 590

07/03/2017

590

07/03/2017

0

Firewall

2 2 2

10/08/2015

2

10/08/2015

0

Call Center

System

1 1 1

27/05/2015

1

27/05/2015

0

Enterprise

Communication

System

1 1 1

27/05/2015

1

27/05/2015

0

Soft IP Phone

10 10 10

27/05/2015

10

27/05/2015

0

Short Message

Service gateway

Software

1 1 1

27/05/2015

1

27/05/2015

0

Video

Conferencing

Solution Software

1 1 1

27/05/2015

1

27/05/2015

0

Call center

Application

Server

1 1 1

27/05/2015

1

27/05/2015

0

Enterprise

Communication

Server

2 2 2

27/05/2015

2

27/05/2015

0

SMS Application

Server

2 2 2

27/05/2015

2

27/05/2015

0

Video

Conferencing

Application server

1 1 1

27/05/2015

1

27/05/2015

0

Head

Phones/Head Set

20 20 20

27/05/2015

20

27/05/2015

0

Web Camera 20 20 20

27/05/2015

20

27/05/2015

0

Television

2 2 2

27/05/2015

2

27/05/2015

0

Enterprise AFIS

Solution

1 1 1

22/07/2015

1

22/07/2015

0

Blade

Chassis/Enclosure

System

3 3 3

22/07/2015

3

22/07/2015

0

Blade Server

48 48 48

22/07/2015

48

22/07/2015

0


Page 73 of 125

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

Server Rack

1 1 1

22/07/2015

1

22/07/2015

0

Database &

Storage Solution

1 1 1

22/07/2015

1

22/07/2015

0

Smart Card

Printer (Software

Datacard Mx6100

System

10 10 10

31/03/15

10

31/03/15

0

Card Mgt. System

1 1 1

20/04/2015

1

20/04/2015

0

Packaging &

Transportation

Module

1 1 1

20/04/2015

1

20/04/2015

0

Inventory

Management

Module

1 1 1

20/04/2015

1

20/04/2015

0

Key Mgt. System

1 1 1

20/04/2015

1

20/04/2015

0

Nid Citizens

Portal

1 1 1

20/04/2015

1

20/04/2015

0

Card

Personalization

System

1 1 1

20/04/2015

1

20/04/2015

0

Desktop

Workstation

14 14 14

03/08/2015

14

03/08/2015

0

Workstation LCD

Display

4 4 4

03/08/2015

4

03/08/2015

0

Multi-Monitor

Desktop

2 2 2

03/08/2015

2

03/08/2015

0

Monitor for

Desktop

18 18 18

03/08/2015

18

03/08/2015

0

Bar Code Scanner 50 50 50

03/08/2015

1

03/08/2015

49

Bar Code Reader 2 2 2

03/08/2015

2

03/08/2015

0

Wireless 1D Bar

Code Scanner

20 20 20

03/08/2015

13

03/08/2015

7

Label Printer-

Zebra

50 50 50

03/08/2015

26

03/08/2015

24

Document

Printer-Epson

12 12 12

03/08/2015

7

03/08/2015

5

LCD Display

Unit-Samsung48"

4 4 4

03/08/2015

4

03/08/2015

0

Smartcard Reader 50 50 50

03/08/2015

20

03/08/2015

30

Load Balancer-HP 3 3 3

03/08/2015

3

03/08/2015

0


Page 74 of 125

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

PKI & LDAP

Server-HP

2 2 2

03/08/2015

2

03/08/2015

0

DMZ Spare-HP 1 1 1

03/08/2015

1

03/08/2015

0

Signing Server-

ProLiant

2 2 2

03/08/2015

2

03/08/2015

0

Application

Server-HP

8 8 8

03/08/2015

8

03/08/2015

0

Mail/NTP Server

(DMZ)-HP

1 1 1

03/08/2015

1

03/08/2015

0

HSM Module for

KMS

2 2 2

03/08/2015

2

03/08/2015

0

Database Server-

HP

2 2 2

03/08/2015

2

03/08/2015

0

Rack Enclosure &

Accessories

2 2 2

03/08/2015

2

03/08/2015

0

Server Farm

Switch- Cisco

2 2 2

03/08/2015

2

03/08/2015

0

Management

Switch-Cisco

1 1 1

03/08/2015

1

03/08/2015

0

Perso Center

Switch-Cisco

2 2 2

03/08/2015

2

03/08/2015

0

DMZ Switch-

Cisco

2 2 2

03/08/2015

2

03/08/2015

0

Antivirus for

Workstations-

MEPS

25 25 25

03/08/2015

25

03/08/2015

0

Inland

Transportation

1 1 1

03/08/2015

1

03/08/2015

0

Storage

VNX5100

1 1 1

06/08/2015

1

06/08/2015

0

Storage Backup

EMC DD160

1 1 1

06/08/2015

1

06/08/2015

0

Shredding System

HSM 450.2

5 5 5

08/12/2015

5

08/12/2015

0

Online UPS Railo

MPS200 200KVA

1 1 1

08/12/2015

1

08/12/2015

0

Power Generator

APD 275

275KVA

1 1 1

08/12/2015

1

08/12/2015

0

AVR Tenzen

Brand 250KVA

SBW-250

1 1 1

08/12/2015

1

08/12/2015

0

Vault for Secure

Storage of Cards

1 1 1

20/11/2016

1

20/11/2016

0

Switch ( Sisco

Catalyst2960)

1 1 1

24/10/16

1

24/10/16

0


Page 75 of 125

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

CCTV System-

Xenar CDI-650M

1 1 1

24/10/16

1

24/10/16

0

Customization of

Personalization

Center

1 1 1

24/10/16

1

24/10/16

0

Cat 6UTP Cable

& Patch Cords,

Modular Jack,

Etc.

1 1 1

24/10/16

1

24/10/16

0

Access Control-

Anviz

8 8 8

24/10/16

8

24/10/16

0

Air Conditioner-

General 5 Ton

9 9 9

24/12/12 &

24/10/16

9

24/12/12 &

24/10/16

0 1 Unusable

Air Conditioner-

General 4 Ton

2 2 2

07/02/2017

2

07/02/2017

0

Air Conditioner-

General 3 Ton

10 10 10

24/10/16

10

24/10/16

0 1 Unusable

Air Conditioner-

General 2.5 Ton

1 1 1

03/09/2012

1

03/09/2012

0

Air Conditioner-

General 2 Ton

17 17 17

24/07/2013-

24/10/2016

17

24/07/2013-

24/10/2016

0

Air Conditioner-

General 1.5 Ton

6 6 6

24/07/2013-

16/05/2014

6

24/07/2013-

16/05/2014

0 1 Unusable

Air Conditioner-

General 1Ton

1 1 1

16/05/14

1

16/02/17

0

Auto Fire

Fighting System

1 1 1

24/10/16

1

24/10/16

0

Grounding 2 2 2

24/10/16

2

24/10/16

0

Dehumidifier-

Whitehouse

Westing

4 4 4

24/10/16

4

24/10/16

0

Disaster Recovery

System (Supply

installation and

maintenance)

01 package 01 package 01 package

20/11/14

01 package

20/11/14

0 Copy Attach

Laptop 35 35 35

23/08/2015,

24/09/2016,

24/12/2017.

13

23/08/2015-

07/02/2017.

22

Photocopier

Machine

4 4 4

02/11/2014 &

24/12/2017

4

02/11/2014 &

24/12/2017

0

Multimedia

Projector

11 11 10

22/05/2016 &

24/12/2017

1

22/05/2016

10

Sound System 10 10 10

24/12/2017

0 10


Page 76 of 125

Description of

items

Quantity (as

per PP)

Quantity

procured

with date

Transferred

to

O & M with

date

Disposed off as

per rule with

date

Balance

Remarks

Laser Printer 14 14 10

11/05/2014-

24/12/2017

6

11/05/2014-

18/03/2018

8

Color Printer 6

6

6

11/05/2014-

20/09/2015

6

11/05/2014-

25/04/18

0

C. FINANCIAL AND PHYSICAL PROGRAMME:

01. (a) Original and revised schedule as per DPP:

(In lakh Taka)

Financial

Year

Financial provision & physical target as

per original DPP

Financial provision & physical target as per

latest revised DPP

Total Taka P.A. Physical

%

Total Taka P.A. Physical

%

1 2 3 4 5 6 7 8 9

Year 1

July 2011-

June 2012

13049.18 624.88 12424.30 9.47% 64.64 0.00 64.64 0.04%

Year 2

July 2012-

June 2013

12254.42 183.71 12070.71 8.89% 714.09 122.48 591.61 0.38%

Year 3

July 2013-

June 2014

38810.38 193.13 36817.25 28.14% 4338.77 156.32 4182.45 2.31%

Year 4

July 2014-

June 2015

36916.09 203.23 36712.86 26.77% 31730.48 153.37 31577.11 16.84%

Year 5

July 2015-

June 2016

36888.39 214.05 36674.88 26.75% 12735.02 175.53 12559.49 6.76%

Year 6

July 2016-

June 2017

0.00 0.00 0.00 33242.81 10997.94 22244.87 17.65%

Year 7

July 2017-

June 2018

0.00 0.00 0.00 64875.73 15603.00 49272.73 34.44%

Year 8

July 2018-

December

2018

0.00 0.00 0.00 40718.86 40718.86 0.00 21.61%

Total 137919.00 1419.00 136500.00 100% 188420.40 67927.50 120492.90 100%


Page 77 of 125

(b) Revised ADP (RADP) allocation and progress:

(In lakh Taka)

Financial Revised Allocation & target Taka Expenditure & physical progress

Year Total Taka P.A. Physic

al %

release Total Taka P.A. Physic

al %

1 2 3 4 5 6 7 8 9 10

Year 1

July 2011-

June 2012

1229.00 15.00 1214.00 0.75 0.00 64.64 0.00 64.64 0.04

Year 2

July 2012-

June 2013

3218.00 184.00 3034.00 1.97 184.00 714.09 122.48 591.61 0.44

Year 3

July 2013-

June 2014

27920.00 328.00 27592.00 17.06 327.50 4338.77 156.32 4182.45 2.55

Year 4

July 2014-

June 2015

50220.00 220.00 50000.00 30.68 220.00 31730.48 153.37 31577.11 19.38

Year 5

July 2015-

June 2016

55157.00 4669.00 50488.00 33.69 4779.00 12735.02 175.53 12559.49 7.78

Year 6

July 2016-

June 2017

39027.00 11392.00 27635.00 23.84 11392.00 33242.81 10997.94 22244.87 20.31

Year 7

July 2017-

June 2018

60509.00 15603.00 44906.00 36.96 8198.67 16449.23 8035.00 8414.23 10.05

Year 8

July 2018-

December

2018


Page 78 of 125

D. ACHIEVEMENT OF OBJECTIVES OF THE PROJECT:

Objectives as per PP Actual achievement Reasons for the

shortfall, if any

The Project Development

Objective is to establish a

secure, accurate and reliable

national ID system in

Bangladesh that serves as the

basis for more efficient and

transparent service delivery.

Specific objectives are:

▪ Supporting the BEC in

issuing ID cards with

robust security features

▪ Developing the capacity to

provide identity


▪ Developing capacity over

the longer term to begin to

integrate the new ID

system into a wide range of

both public and private

services

The project established a secure, accurate and reliable

national ID system in Bangladesh that serves as the basis for

more efficient and transparent service delivery.

Achievement of the Specific objectives are as under:

1. Necessary IT infrastructure has been established for the

NID services, which includes a data center (housed at

the Bangladesh Computer Council), a disaster recovery

site (housed at the BEC).

2. Election Commission provided identity verification

services to 85 agencies (17 public and 68 private

agencies) 24/7 basis where the target was 4 (2public and

2 private). Over 325 million successful hits for identity

authentication have been made by the user agencies.

Detailed at Annex-A

3. Since September 1, 2015, fees for NID correction and

replacement of lost NID cards are being collected from

the citizens through the different banks which are being

deposited to the government exchequer. As of June 30,

2018, a total of TK 136,73,06,802.35 has been collected

and deposited.

4. EC established a decentralized technological

infrastructure in the field level election offices (536

UZ/Th election offices) through IDEA project. IDEA

project also ensures dedicated data connectivity within

EC head Quarter and field offices (516 offices) through

VPN. IDEA also established a call center for the EC and

the call center is functioning regularly.

5. Issuance of 90 million ID cards with robust security

features is going on as on June 30, 2018, a total of 40.39

million cards have been personalized and 39.67 million

have been delivered up to upazila level and 29.79

million smart NID card has been distributed to citizens.

Detailed at Annex-B

6. EC developed the capacity to integrate the new ID

system into public and private services. IDEA project

provided training in different level officers and staffs in

different capacity development courses to ensure the

development of the institutional capacity for service

delivery. As of now, IDEA provided training to 4261

officials of EC, NIDW, and IDEA. Detailed at Annex-

C

7. EC provided guidance and technical assistance to

develop the capacity of the agencies to perform NID

authentication services using EC database. Various

agencies also develop their capacity for biometric

verification ensuring NID authentication services.

8. A biometric dataset of over 104 million citizens has been

developed. Over 98% of the population of 18 years of

age and above have already been covered. Besides, the

NIDW has started registering individuals of 15-18 years

of age from July 2015.

The IDEA project

has not achieved

the production and

distribution of 90

million card by the

initial extended

project period 28

February 2018 due

to the failure of its

supplier Oberthur

Technologies. The

project period has

been extended

further up to

December 2018 to

complete the task.

Hopefully, by the

end of December

2018, the project

will achieve the

target.


Page 79 of 125

9. The legal and regulatory framework for the NID system

has been established.

E. BENEFIT ANALYSIS

01. Project Out-put:

PDO Level Results Indicators

Co

re

Unit of

Measure Baseline

Target & Achievements

Values

Target Achievement

Indicator 1: Number of citizens having access to secure,

reliable means of identification

Number

(Million) 0 80 40.39

Indicator 2: Number of women among number of

citizens having access to secure reliable means of

identification

Number

(Million) 0 40 19.80

Indicator 3: Number of public/private institutions

regularly using electronic identity verification for their

service delivery

Number 0 4 85

Indicator 4: Number of public/private institutions using

off-line identity verification for their service delivery

using smart NID cards

Number - 4 0

Indicator 5: Number of citizens’ identity electronically verified

Number (Million)

- 7 70

Intermediate Results Indicators

Component 1: National Identification System and Services

Intermediate Result (Component 1.1): Legal & regulatory framework established for the management of the NID system

Intermediate Result Indicator 1.1.1: Operational

procedures for the management of NID Wing introduced Yes/No None Yes Yes

Intermediate Result Indicator 1.1.2: Regulatory and

operational guidelines for NID Wing and verification

service issued

Text None Yes Yes

Component 2: IT Operations and Management

Intermediate Result (Component 2.1): IT infrastructure for ID system developed and made operational

Intermediate Result Indicator 2.1.1: Bangladesh

Election Commission (BEC) Data Center (DC) and

Disaster Recovery System established

Yes/No None Yes Yes

Intermediate Result Indicator 2.1.2: Personalization

Center for smart NID cards established. Number - 1 1

Intermediate Result (Component 2.2): Reliable data communication network through created a virtual private network

Intermediate Result Indicator 2.2.1: Number of Upazila

server stations connected through VPN and capable of

NID registration and updating of information

Number 0 516 516

Intermediate Result (Component 2.3): Usage of NID card by social services for authentication improved

Intermediate Result Indicator 2.3.1: Number of social

protection programs utilizing NID to verify the correct

beneficiaries.

Number 0 5 3

Component 3: Capacity Building, Communication and Overall Project Management

Intermediate Result (Component 3.1): Technical and management capacity of the NIDW strengthened

Intermediate Result Indicator 3.1.1: Staff trained in

operation and management of NIDW. Number 0 2240 4261

Intermediate Result Indicator 3.1.2: Staff recruited for

NID Wing Number 0 71 43

Intermediate Result (Component 3.2): Citizen awareness is generated through an effective communication mechanism


Page 80 of 125


Co

re

Unit of

Measure Baseline

Target & Achievements

Values

Target Achievement

Intermediate Result Indicator 3.2.1: Orientation

sessions organized for Upazila level staff of the Election

Commission for community mobilization on NID system

Number - 60 0

Intermediate Result Indicator 3.2.2: Agencies satisfied

using the NID verification services Percent - 70 71

Intermediate Result Indicator 3.2.3: Citizens satisfied

using the smart NID cards Percent - 70 93.2

02. Cost / Benefit:

Item Estimated Actual

(1) Benefit cost ratio of the project

(i) Financial

(ii) Economic

(2) Internal Rate of Return

(i) Financial

(ii) Economic

N/A

N/A

03. Please give reasons for the shortfall, if any, between the estimated and actual benefit: N/A


Page 81 of 125

F. MONITORING AND AUDITING

0.1 Monitoring:

(a) Ministry / Agency: As an executing agency Election Commission directly monitored the project.

Secretary Election Commission Secretariat monitored the progress and activity regularly by reviewing

the fortnightly, monthly, quarterly and annual reports. Secretary Election Commission secretariat also

presided the ADP review meeting to monitor the progress and activity of the project.

Project Steering Committee and Project Implementation Committee monitor and review the activity,

progress of the project and provided various guidance for better implementation and strategic directions.

(b) IMED: IMED reviewed monthly, quarterly and annual reports regularly to monitor the progress and

activity of the project. Besides this IMED visited/monitored the project twice at the time of project

extension.

Name &

designation

of the

inspecting

official

Date of

Inspection

Identified

Problems Recommendations Project Initiatives

1 2 3 4 5

Sufia

Zakaria,

Director,

IMED

16/09/2015

▪ Immediately after approval of the

extension proposal project has to

make an inter-sectoral adjustment

in DPP or amend the project

document/DPP.

▪ To implement all the activities of

the project in the extended period,

the action plan will be amended.

The revised action plan will be sent

to all concerned including IMED.

▪ Without the approval of the

appropriate authorities, the cost of

any DPP cannot be extended

beyond the authorized DPP.

▪ Project completion report will be

submitted to IMED within 03

months of completion of the project.

▪ The Project Amended the

DPP and took approval

from the competent

authority

▪ The project revised the

action plan and shared

with IMED as per RDPP.


Page 82 of 125

Name &

designation

of the

inspecting

official

Date of

Inspection

Identified

Problems Recommendations Project Initiatives

Dr. Md.

Mashiur

Rahman,

Director

General,

IMED

14/12/2017

▪ Immediately after approval of the

extension proposal project has to

make an inter-sectoral adjustment

in DPP or amend the project

document/DPP.

▪ Before the eleventh parliamentary

elections, the production and

distribution of 9 crore smart ID

cards for the citizens will have to be

completed. If the smart ID card is

not delivered within the stipulated

time, the Election Commission will

have to be informed the next action.

▪ The following information

regarding smart cards to be

forwarded to IMED. How many

Smart ID cards found from France

under this project and how many

cards were imported from other

countries as the second source

▪ So far, the detailed information

regarding amount released by the

World Bank and the amount of

money spent from RPA is to be

provided to IMED

▪ When the Personalization Center is

being transferred from the

Honorable Prime Minister's Tran

Vander to the Nirbachon Bhaban is

to be informed.

▪ The maintenance plan after the

warranty period has ended of the

Personal Machin which has been

procured under IDEA project for

the personalization of smart ID

cards is to be informed.

▪ To implement all the activities of

the project in the extended period,

the action plan will be amended.

The revised action plan will be sent

to all concerned including IMED by

one month.

▪ Without the approval of the

appropriate authorities, the cost of

any DPP cannot be extended

beyond the authorized DPP.

▪ Project completion report will be

submitted to IMED within 03

months of completion of the project.

▪ The project took initiative

for the 2nd revision of the

DPP of IDEA project

which is under

consideration of planning

commission.

▪ The project took action to

complete the production

and distribution of 9 crore

smart ID cards for the

citizens before the

eleventh parliamentary

elections.

▪ The number of ID cards

delivered from France

and China has been

informed the IMED

▪ The detailed information

regarding amount

released by the World

Bank and the amount of

money spent from RPA

has been provided to

IMED

▪ Shifting information and

dateline of the

Personalization Center

from the Honorable

Prime Minister's Tran

Vander to the Nirbachon

Bhaban has been

informed the IMED.

▪ The maintenance plan

after the warranty period

has ended of the Personal

Machin was informed to

the IMED.

▪ The action plan has been

amended and the revised

action plan has been

forwarded to all

concerned including

IMED.

▪ Project Completion

Report will be submitted

to IMED after completion

of the project.

(c) Others: (Please specify)

Monitoring and Review of the IDEA project were undertaken by WB through different Implementation


Page 83 of 125

Support Mission. At the time of mission, WB team provided guidance, tracking the progress, monitor

and supervised the activities, procurement process. So far 9 implementation support mission has been

conducted by the WB task team.


Page 84 of 125

0.2. Auditing during and after Implementation:

2.1. Internal Audit:

Period of Audit Date of submission

of Audit Report

Major findings/

objections

Whether objections

Resolved or not.

1 2 3 4

• No Internal Audit has been taken place during FY-2011-2012 to FY-2016-2017

2.2. External Audit:

Audit

period

Date of

submission

of Audit Report

Major findings/

objections

Whether objections

Resolved or not.

1 2 3 4

FY-

2011-2012

26.11.2012

Bank interest not deposited in to govt.

account tk. 3,76,938.00

Bank interest deposited to govt. ex

chequer and the observation resolved

Value of P.O/bank draft/proposal

order from different applicants not yet

deposited in to govt. account tk.

42,100.00

Out of BDT 42,100.00, ECS deposited

BDT 24,200.00 and BDT 17,900.00 sent

to senior Post master for encashment. As

such objection dropped.

Expenditure incurred without

authorization letter tk. 65.44 lakh

The project obtained post-facto

approval and authorization for the

expenditure of FY 2011-2012 and the

observation resolved

FY-

2012-2013

23.12.2013 VAT was less deducted from the

consultant & supplier tk. 1,79,941.00

Project explained the reason including

RADP authorization, procurement plan,

and other activity. As such objection

dropped.

FY-

2013-2014

31.12.2014

Loss of Govt. revenue due to non-

deduction of income tax from

suppliers bill tk 1,22,28,157.00

Project replied with NBR clarification

letter where mentioned that this was tax

exempted supply. But FAPAD did not

agree with NBR. Project requested to

drop this objection. However, this

objection is yet to settle.

Undue privilege gave to the supplier

for 100% contract price paid in

advance violating STD’s order tk

28,12,47,631.00

The project paid 100% contract price as

per the contract agreement and that was

explained to auditor and objection

dropped as well

Expenditure incurred for Air Ticket

without inviting open tender/verifying

competitive market price tk.

39,83,429.00

Project explained the reason and given a

commitment that project will maintain

in the future as per their suggestion.

After giving a reply, No further query

was given and the objection was

resolved

Irregular advance payment of foreign

currency equivalent to the contractor

violating system of LC tk.

126,88,18,857.00

Project replied that advance payment

was made against equivalent advance

payment guarantees as per contract and

project follow the world bank guideline

for making the contract. As such

objection dropped.

Revenue loss due to less/non- Project deposited IT and VAT tk


Page 85 of 125

Audit

period

Date of

submission

of Audit Report

Major findings/

objections

Whether objections

Resolved or not.

FY-

2014-2015

31.12.2015

realization of IT & VAT from the

Consultant tk. 26,46,998.20

26,46,998.20 and sent challan copy to

the auditor.

Govt. revenue loss due to the non-

realization of IT and Vat from C&F

agent Commission tk. 14,14,881.00

Project deposited said VAT and IT

before the objection raised. After

showing the evidence i.e challan, the

objection was dropped

Expenditure incurred over

Development project proposal (DPP)

provision

Project replied that excess expense

incorporated into proposed DPP while

expenditure made. Therefore objection

dropped.

FY-

2015-2016

29.12.2016

VAT & IT not imposed upon the

contractors/suppliers tk. 2,41,066.65

Project deposited VAT & IT Tk

2,41,066.65 and sent challan copy to the

auditor and the objection was dropped.

Excess payment was made for staying

excess time beyond Official order on

account of foreign tour tk.

2,36,724.00

The project made payment as per

official tour order. Project replied that to

auditors with supporting documents.

Nevertheless, this objection yet to be

resolved.

Expenditure incurred in connection to

contract signing ceremony event at

RBDWG Hotel Radisson is not

justified tk 7,47,640.30

In order to engagement of public and

private organization, this was one of the

major milestones of the project. All

pront media and hogh officials were

there. After explaining the reason, no

further query raised.

FY-

2016-2017

19.12.2017

Misuse of project money by using of

(12-02)= 10 vehicles beyond the

direction/provision of DPP and

regional/field offices suffered for

performing their normal activities tk

40,31,642.00

The project got post facto approval of

the incurred expense and broad sheet

reply is being prepared for FAPAD.

Expenditure incurred for repair&

maintenance of 05 no’s vehicle

beyond the delegation of financial

power of development project tk.

3,45,954.00

This is rendered advance in relation to

the distribution of smart NID card which

is being adjusted after the distribution of

the smart cards. However, broad sheet


Advance payment made for training

purpose violation of the financial

power tk. 24,55,200.00

Resolved

Expenditure incurred for procuring

Air ticket without inviting any

Tender/Quotation tk. 10,80,800.00

Project explained the reason and

emergency project also committed that

project will maintain in the future as per

their suggestion. No further query was

given and the objection was resolved

Expenditure incurred for procuring

huge nos. stationary items (with

computer accessories) beyond the

respective Economical Code &

Allocated Budget tk. 21,35,380.00

The project got post facto approval

through the revised RADP. The project

described the fact and the objection was

dropped.

Advance payment made for smart

Card Distribution lying unadjusted till

date of audit tk. 1,26,87,855.00

This is rendered advance payment to OT

for smart NID card and the broad sheet


Excess expenditure incurred for

purchasing fuel (Petrol, Gas/CNG)

Project got post facto approval through

the revised RADP. The project


Page 86 of 125

Audit

period

Date of

submission

of Audit Report

Major findings/

objections

Whether objections

Resolved or not.

over the Budget provision tk.

16,06,194.00

described the fact and the objection was

dropped.


Page 87 of 125

G. DESCRIPTIVE REPORT

1. General Observations/Remarks of the Project on:

1.1 Background

1.1.1 The Government of Bangladesh has made improvement of service delivery, particularly through the

expanded use of information and communication technologies, as a major thrust of its effort to improve

governance and counter corruption. It is implementing a broad Digital Bangladesh agenda which has

translated into a broad array of ICT applications being used in the public sector as well as the

development of core technical capacity to support the utilization of ICT through the increase in

connectivity. In particular, it has set up information centres in all 4501 Unions, the lowest administrative

unit in the country, which has increased use of ICT by citizens in accessing public services. The gains

through utilization of ICT have yielded perhaps the most prominent governance improvements in

Bangladesh in recent years. The Digital Bangladesh agenda has enjoyed the wide public support and

created high expectations for an improvement in the State’s performance, particularly in how it

interfaces with citizens.

1.1.2 Increased use of ICT allows for greater efficiency and transparency as well as reduction of opportunities

for corruption. The combination of these potential gains and the Government’s commitment make it an

area of particular opportunity, particularly in the context of continuing shortcomings in the State’s

overall performance in Bangladesh. Bangladesh’s impressive economic and social progress in the past

decade has been mainly due to the industry of its people rather than the mobilization of the capacity of

the State. Yet, as is noted in the current 2nd National Strategy for the Acceleration of Poverty Reduction,

the State should play a more effective role in the delivery of essential services to sustain and accelerate

these gains. In addition, confidence between Government and citizens in Bangladesh would improve

insofar the former is able to achieve greater transparency and efficiency.

1.1.3 An important foundation for effective service delivery is the State’s capacity to identify citizens

accurately and quickly and the ability of individual citizens to track what services they are entitled to

receive from the State. A comprehensive nation-wide identification (NID) system is a powerful tool in

achieving these goals. A NID system will assist public agencies in identifying and verifying the

identities of citizens as well as compiling data to make better targeting decisions and promote inclusion.

It also facilitates private sector transactions through lowering costs in the management of data and

following know-your-client guidelines as well as simplifying procedures for individuals applying for

services. In recognition of these benefits, particularly in conjunction with ever greater usage of ICT,

many countries are enhancing the NID systems to obtain greater reliability and efficiency.

Enhancements include both greater systematization in the issuance and maintenance of numbers as well

as security improvements for ID cards and verification systems.

1.1.4 Bangladesh’s system for identification of individuals received a major boost as a result of a drive to

improve the voter registry in preparation for the national elections in 2008. These preparatory efforts,

and subsequent maintenance of data brought about greater transparency and reliability in the

identification of voters. With support from several donors in a project implemented by Bangladesh

Election Commission, a number of important building blocks for developing a National ID system were

put in place. These include a database comprising 87 million voting-age citizens, experience with the

issuance and updating of a simple National ID card, construction of nearly 500 Upazila-level offices,

and associated management experience.

1.1.5 The successful development of an accurate and comprehensive voter list was seen as an opportunity by

the new Government to expand the use of a reliable national ID system to improve services more

broadly. This fits well with its overall commitment to the enhanced use of information technology to

improve public services. It was recognized that an accurate, comprehensive and reliable ID system

could support more effective targeting of social programs and other transfers, as well as provide a new

foundation for interactions between citizens and the State. Moreover, such a system could have a range

of private sector applications as well facilitating such services as mobile phones and banking

transactions. Though not initially intended to perform such functions, there is an intense demand to use


Page 88 of 125

the National ID cards which emerged from the sound voter registration procedures, demonstrating the

strong demand for proper identification in many spheres of life.

1.1.6 Building on the success of the Electronic Voter Registration System, the Government decided to entrust

the Bangladesh Election Commission to develop a full-fledged National Identification System on the

foundation of the voter database. This system is to be utilized to provide verification services to core

public and private sector organizations. A National Identity Registration Act was adopted in early 2010

which provided the legal framework for the NIS including the designation of a National Identity

Registration Wing (NIRW) within the BEC with authority to administer the NID System.

1.1.7 A full-fledged NID system is expected to bring several benefits. The verification capacity of a system

will counter leakage in the provision of a wide range of government benefits, particularly in a large

number of social protection programs run in Bangladesh. Unique identification of citizens will allow

all public service entities to build and maintain much more reliable databases regarding recipients which

in turn will provide better grounds for policy making, targeting of benefits, and record-keeping in

general, such as land records. Enhanced ID cards with chips will be able to be utilized directly in the

delivery of benefits further guarding against leakage and improving targeting.

1.1.8 In addition, private sector service providers will have reduced transaction costs due to greater reliability

and efficiency in identifying clients, maintaining their own databases of customers, and fulfilling know-

your-customer legal requirements. Businesses note that the ability to build better databases of customers

using their services has further business applications as well as providing for better internal controls.

Finally, as evidenced by the success of the existing simple national ID cards, the distribution of quality

ID cards and use by entities of a database that reliably identified persons is a tangible measure of

recognition of individuals by the State and contributes to increased confidence among citizens in the

State.

1.2 Justification/Adequacy

1.2.1 The proposed project contributes to the GoB higher-level objectives, envisaged in the National Strategy

for Accelerated Poverty Reduction (NSAPR) II, the home-grown, comprehensive national development

strategy for FY 09-11. In particular, the Project directly contributes to ‘introducing e-governance in

government bodies to combat corruption and provide more efficient services’ Enhanced transparency

and accessibility of public services through verification of National Identity of potential service users

can significantly strengthen service delivery mechanisms and improve the overall trust of society for

better governance.

1.2.2 There is a strong commitment to developing a more robust National ID System among a broad range of

counterparts. The Prime Minister and senior officials from the Prime Minister’s Office have stressed

the importance of developing the system and welcome the Bank’s financing. The Bangladesh Election

Commission (BEC) has exercised strong stewardship of the existing system and has demonstrated

serious intent to carry out the improvements envisaged in this project. Other public agencies involved

with Digital Bangladesh and/or collection of biographic data have committed to work with the National

ID System to be housed in the NIDW. An Inter-ministerial committee on e-governance and information

sharing has been established and the Prime Minister’s Office has set up a task team to coordinate and

facilitate the overall implementation of e-governance.

1.3 Objectives

The Project Development Objective is to establish a secure, accurate and reliable national ID system in

Bangladesh that serves as the basis for more efficient and transparent service delivery.

Specific objectives are:

▪ Supporting the BEC in issuing ID cards with robust security features

▪ Developing the capacity to provide identity verification services


Page 89 of 125

▪ Developing capacity over the longer term to begin to integrate the new ID system into a wide range

of both public and private services

1.3 Project revision with reasons

The main feature of revision with Justification for 1st Revision (April-May 2016):

The project, IDEA, was approved by ECNEC on October 04, 2011 at a total cost of Tk.137919.00 lakh

including a projected aid of Tk.136500.00 lakh for a period of five years starting from July 2011. Due to

conditionality imposed by World Bank to enact law, rules, and regulations [National Identity Registration

(Amendment) Act, 2013, National Identity Registration Rules, 2014 and National Identity registration

(data correction, verification, and supply) Regulations, 2014) project could not commence as scheduled. It

took almost 30 months to enact law, rules, and regulations after which World Bank withdrew

conditionality. Accordingly project lost 30 months’ time. So, to achieve the objectives the project period

has been extended by 18 months without changing the cost of the project. At this stage of implementation,

it needs to rationalize the quantity and price of the component based on the actual cost and the requirement

in the future. Besides, some new subcomponents have also been proposed in this RDPP to achieve the

targeted objectives.

The major item wise justifications of revision of the project are mentioned below:

Electricity and related Utility Charges: (4821)

The initial provision of this item was 60.00 lakh in the original approved DPP. But due to some reasons,

the project needs to be extended to 18 months. So, the estimated cost of this item has been increased from

Tk. 60.00 lakh to Tk.493.65lakh with an increase of Tk. 433.65 lakh considering the expenditure to be born

at the personalization center and the project office for the rest of the project period.

Insurance/ Bank Charges: (4824)

There was no provision for First Party Insurance of the vehicles in the approved DPP. Considering the

safeguard of the vehicles ‘First Party Insurance Premium’ item has been incorporated newly in the revised

DPP with a lump sum (LS) of Tk. 48.30 lakh for the entire project period and legitimate Bank charges&

commissions.

Production, Personalization &Distribution of NID Cards: (4827)

The key component of the project is Production, Personalization & Distribution of 90 million NID Cards

having robust security features to the citizens of the country. In the original approved DPP, the initial

estimate for this item was Tk.78719.90 lakh. But work order has been awarded to the substantially lowest

responsive bidder, through an International Competitive Bidding (ICB), for production, personalization &

distribution of 90 million NID cards at a contract price of Tk.79627.49 lakh which is higher from the

approved DPP provision by Tk.907.59 lakh. But initially, the provision of consumables for 70 million NID

cards was made available in the bidding document and accordingly the contract has been signed without

including the cost of consumables for 20 million NID cards. So an amount of Tk.1350.00 lakh needs to be

added to this component. As a result, a total of Tk.2257.59 lakh (Tk.1350.00 lakh+ Tk.907.59 lakh) has

been increased in this component in order to meet the requirement of the contract price and the target

provision of NID cards, 90 million.

It may be mentioned here that estimated cost of Production, Personalization & Distribution of 90 million

cards was the US $ 112.74million, (in BDT 7891.80 million at a conversion rate of US $1=BDT 70.00).

But the contract price for the same is US $102.00 million (in BDT 79627.49 lakh at a conversion rate of

US $1=BDT 78.07). The total cost of this item including the consumables for 20 million cards is BDT

80977.49 lakh which is less than the estimated cost of US $ 112.74million (in BDT 88016.12 lakh at a

conversion rate of US $1=BDT 78.07).

Advertisement and Publicity:


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This item includes the preparing of a communication strategy that helps ECB achieve the set objectives

(Page 112: Original DPP). In order to accomplish this provision by deploying a Communication Campaign

Management Firm was made in the DPP with an estimated cost of Tk. 2200.00 lakh in favor of the item

‘Advertisement and Publicity’. At this stage of implementation of the project, Communication Campaign

Management Firm has been deployed through an ICB having a contract price of Tk. 1457.22 lakh making

a surplus of Tk. 762.78 lakh in this item. So, the cost of Tk. 742.78 lakh has been reduced in this component.

VPN Management Services fee: (4848)

Dedicated uninterrupted network connectivity between the field offices and the NID & ECS is of prime

concern to decentralize voter registration system across the country. In order to ensure this connectivity, a

provision of setting up of a Virtual Private Network (VPN) with a Primary estimated cost was Tk. 4380.00

lakh was made in the original DPP. But due to technological advancement and creation of countrywide

network connectivity by the INFOSARKER project, it is estimated that Tk. 2535.12lakhwill be required

for establishing VPN Management Services. And for this reason Tk. 1844.88 lakh has been reduced at

this time.

Consultancy Services: (4874)

Individual Consultants/Firms on different aspects were proposed in the approved DPP with an estimated

cost of Tk.4726.65 lakh. In the proposed RDPP this amount has been reduced to Tk. 3300.14 lakh based

on the actual contract price of the existing Individual Consultants/Firms and the estimate for

Consultants/Firms under recruitment process/to be deployed. As a result of a total of Tk. 1426.51 lakh has

been reduced in this item.

Honorarium/Fees/Remuneration for Technical Expert/Technical Support/Associate (PA Funded

Contractual Hire): (4883)

In the original DPP, there was a provision of employing Technical Expert, Technical Support, and

Associate under contractual hire and the estimated cost was Tk.1308.79 lakh. In the original DPP, it was

also noted that starting salary of the Technical Expert (PA Funded Contractual Hire), Technical Support

(PA Funded Contractual Hire) and Associate (PA Funded Contractual Hire) were Tk.20000.00,

Tk.16000.00 and Tk.16000.00 respectively and in each case every two years there will be 10% increment.

But the economic code for this expenditure head used in the original DPP is 4883 which is for

Honorarium/Fees/Remuneration. In the revised DPP, as per the economic code,

Honorarium/Fees/Remuneration for Technical Expert (PA Funded Contractual Hire), Technical

Support (PA Funded Contractual Hire) and Associate (PA Funded Contractual Hire) has been

proposed to Tk.35,000.00, Tk.27,000.00 and Tk.27,000.00 respectively and there will be no increment. As

a result, a total 1304.77 lakh taka has been proposed and 4.02 lakh taka has been reduced in this item. This

rate will be effective at the date of approval of RDPP.

Honorarium/ Fees/ Remuneration for HR Firms: (4883)

In the original approved DPP, there was a provision of Human Resources (HR) Firms to deliver Data Entry

Operators (1130 Data Entry Operators: 2/3 for each Upazila) with an estimated cost of Tk.10129.00 lakh

for five years period of the project up to June 2016. The project is now targeted to complete by December

2017. For this remaining period, it is estimated that an amount of Tk. 4163.04 lakh will be required to

employ 1130 Data Entry Operators through deploying HR Firm. Based on this estimates Tk.5965.96 lakh

has been reduced in this Item.

Other Operational Cost: (4899)

The provision of an estimated cost of Tk.2322.60 lakh was made in the original DPP to execute other

operational activities like Integration of pilot social program, Scheduling charge - SMS/other scheduling

method and other supply and services as and when required etc. This estimated cost has been reduced by

Tk. 1906.73 lakh based on the actual expenditure made so far and the revised cost stands 480.09 lakh taka.


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IT Equipment Accessories and Maintenance: (6815)

In the original approved DPP, this item includes a set of components like DC Management, DRS

management, Computer Accessories etc. with a total estimated cost of Tk. 9374.18 lakh. As per the

requirement, some pertinent subcomponent has been included and the estimated cost of some existing

component has been increased. As a result, a sum of Tk.18089.94 lakh was proposed in the revised DPP.

The total increments for this code stand taka 8715.76 lakh. Subcomponent wise reasons for the increase of

total Tk.8715.76 lakh in this item given below:

Primarily for Datacenter Management, the estimated cost was Tk.1750.00 lakh. But due to the inclusion

of Oracle Support Service and AFIS Support Service, the estimated cost has been increased by Tk.

1391.04lakh. Initially, ECB registers only eligible voters (18 and above years of age) with one biometric

(Four Fingers print) for de-duplication of voters. But after passing the law by the parliament, ECB has been

mandated to register and provide NID cards to all citizens. Now ECB has planned to register citizens having

0-18 years of age for NID cards. And hence ECB is planning to accommodate the need for the enhanced

volume of the data center. Present registration software is used only for voter registration. Requirement

increases every day that needs to be adjusted

Since NID database stores highly sensitive information of the citizens of Bangladesh, IDEA was seeking

to adopt all necessary systems that will ensure the high level of performance, reliability, and security. The

Disaster Recovery Site (DRS) should also be capable of running full operations of NIDW including

Enroll/update or deactivate voter information, Query voter information using National ID Number or other

parameters, Verify voter using national ID and biometric data, NID card customization, Partner service,

voter list generate and other services. Considering the sensitivity and security, it needs to ensure AFIS

for DRS of the large volume of a database of 200million people and for this the cost of DRS management

subcomponent has been increased from Tk.4200.00 lakh to Tk.9270.53 lakh with an increase of Tk.

5070.53 lakh. The ECB has planned to provide identification and verification services to external

stakeholders, the AFIS in the DRS can help in load balancing to meet the increased

identification/verification requests in future with fast response times. The AFIS system is included storage

database and related server.

The estimated cost has been increased from Tk.3424.18 lakh to Tk.7608.25 lakh for procurement of

Computer & Accessories namely Work Stations, Scanner, Digital Camera, Finger Scanner, Signature

Pad, ID Card Reader, Receipt Printer. Each item contains 1200 units for the purpose of Decentralization

Technology and facilities at Upzila Election Offices across the country for voter registration, correction,

migration etc. and Computer & Accessories (including Laptop, Desktop, Printer, UPS, Scanner or other

accessories) for Project Office use. At present ECB registers only eligible voters (18 and above years of

age) with one biometric feature (four fingerprints) for de-duplication of the voters. At this stage of

implementation of the project, the ECB has decided to collect ‘ten fingerprint’ instead of four fingers and

‘Iris’ as a second biometric which is globally recognized verification system. On the other hand, the

equipment’s were purchased during 2007-2008 for the Preparation of Electoral Roll with Photograph and

Facilitating the Issuance of National Identity Card (PERP & FINIDC) Project are being used in the field

for data collection. But these equipment’s are not functioning properly and a huge number of computers

are out of function. So, considering the urgent need two items of Computer & Accessories Supply,

Installation and Maintenance of NID Registration Software Integrated with 10 Finger Prints and Second

Biometric (Iris) System Complete with necessary Equipment’s and Accessories a total Tk. 2500.00 has

been proposed.

Various Productivity Software and Maintenance: (6817)

In the original DPP, this item was proposed with an estimated cost of Tk. 3223.50 lakh. But the cost has

been decreased to Tk.124.41 lakh with a net reduction of Tk. 3099.09 lakh by dropping some office

productivity software in the RDPP. This reduction has been made considering the actual requirement and


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scope of implementation during the rest of the project period.

Allocation for NID Service fund: (6600)

There was a provision of using NID service fund of Tk. 3490.39 lakh in the original DPP by different

agencies selected by the Project Steering Committee (PSC) for the Development of Systems. But after a

wide circulation, no such agencies were found available with the proposal up to the revision of the DPP.

So, at this of implementation of the project, the financial provision of cost in this item has been slashed

down to Tk.2100.00 lakh anticipating the expenditure to be met for the remaining project period that makes

a surplus of TK.1390.39 lakh in this item.

CD VAT: (7901)

The IDEA is an ICT based Project and it requires importing huge volume of machinery and equipment

including computer hardware, software, and vehicle. Such imports are being done through ICB

(International Competitive Bidding) award of contracts to suppliers and contractors.

In the approved DPP, estimated cost provision for CD VAT for procuring goods through ICB has not been

included from GoB fund. According to the financing agreement of SDR 123.00 million, The World Bank

will share a fraction of CD VAT which was not mentioned in the original DPP. Now a total estimated CD

VAT of Tk. 33211.15 lakh (GoB: Tk.25780.00 lakh + RPA: Tk. 7431.15 lakh) has been proposed in the

revised DPP.

Main Features of Revision with Justification for 2nd Revision (March-April 2017):

One of the main objectives of the project is to provide smart national identity card to the citizens and to

ensure ID verification services to the citizens using the database being maintained by the project.

The project distributed only 10.04 million smart NID card to the citizens as of 06 March 2018 out of

targeted 90 million cards due to the failure of its Contractor, a French Company (Oberthur Technologies)

who was supposed to produce, personalize and distribute 90 million cards within the Contract period, 30

June 2017. As of June 30, 2017, OT supplied 77.3 million blank cards, Personalized 12.9 million bank

cards and delivered 10.9 million cards up to Upazila/Thana level for distribution to citizens.

The project is being implemented with financial assistance from the World Bank. The duration of the

current project period will end on 28th February 2018 and, the World Bank has informed that they will not

continue funding support anymore after 28th February 2018 thus it is proposed to extend the project period

for one year up to December 2018 with necessary funding assistance from the GOB. For the extended

period, the GOB budget proposed to increase BDT 40728.50 lac. With this increase, the total budget in

GOB of the project will be BDT 67927.50 lac.

At this stage of the implementation, the project with direct support from the Election Commission has

started producing, personalizing and distributing smart NID cards to citizens at their own management and

existing manpower. The project has also planned to continue implementation of all other project activities

during the extended period.

Nearly all activities of the project-Supply Installation and Maintenance of Datacenter and Disaster

Recovery System for Bangladesh Election Commission, Supply Installation and Maintenance of

Decentralized Technology Infrastructure, Supply Installation and Maintenance of VC Systems and Call

Center, Supply Installation and Maintenance of Oracle and AFIS support service for data center, Human

Resources Firm for Data Entry Operators for Upazila/Thana Election Offices, establishment of

Personalization Center including establishment of management of VPN all other activities are already

almost fully implemented. Presently, NID verification service is being provided to 85 government and non-

governmental organizations by signing a Memorandum of Understanding (MoU), and the government is

collecting a huge amount of revenue from this sector.

In order to personalize and distribute remaining smart NID cards to the citizens, provide all services related

to National Identity Card, NID Verification Services, Maintenance of Data Center and Disaster Recovery

Site, continue the activities of Virtual Private Network (VPN) up to Upazila/Thana election offices,


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continue new Voter Enrollment in the registration system, Biometric Matching, preparation of draft and

final voter list and provide comprehensive support to the Bangladesh Election Commission for preparing

the voter list for the next Parliament Election. It is necessary to increase the duration of the project for

another 12 months (up to 31 December 2018).

Since there will be no RPA fund in the proposed extended period (01 March 2018 to 31 December 2018)

of the project all expenditure will be incurred in GOB head. The major items of cost added in GOB are

Salary for Assistant Programmer, Data Entry Control Supervisor, Deputy Assistant Director, Data Entry

Operators and Honorarium for the consultants, Electricity and related utility charges, Personalization

Center operations with necessary manpower, Distribution of smart NID cards, Fuel/CNG for vehicles and

generator, DC & DRS management and up gradation, Supply and Service, Maintenances etc.

The major item wise justifications of 2nd revision of the project are given below:

Office Rent: (4806)

In the 1st revised DPP, the allocation was BDT 1240.65 lac (Gob- 585.73 lac and RPA- 654.92 lac) jointly

with RPA and GOB head. So far BDT 1062.02 lac spent (GoB-418.87 lac, RPA- 643.15 lac) till December

2018. BDT 521.11 lac will be required for the rest of the project for 12 months up to December 2018. As

there will be no RPA in the extended period March 2018 to December 2018 the whole additional cost will

be incurred from GOB. In the 2nd revised DPP, a total of 1734.13 lac taka proposed to be allocated of which

BDT 936.87 lac from GOB budget and 797.26 lac from RPA budget.

Printing & Distribution of ID Cards: (4827)

In the 1st revised DPP, the allocation was BDT 80977.86 lac. BDT 47199.01 lac spent till February 2018.

In the 2nd RDPP a total of BDT 85593.30 lac is proposed of which BDT 8400.00 in GOB and BDT

77193.30 lac in RPA. In this head, there was no allocation from GOB. Since there will be no RPA from

March - December 2018 BDT 3784.56 has been reduced from RPA and BDT 8400.00 has been proposed

to include in the 2nd RDPP from GOB. The proposed allocation will be utilized for the salary of newly

approved manpower for personalization center, Consumables for personalization machine, Software

Support Service, Data Connectivity of perso, Hardware, Fuel, Rent of vehicle, Labor Cost and other

operational costs.

Advertising & Publicity: (4833)

In the 1st revised DPP, the allocation in PA was BDT 1457.22 lac. BDT 634.87 lac was spent until February

2018 from PA. The amount has reduced by BDT 512.64 lac in RPA due to the closing of RPA from

February 28, 2018. As there will be no RPA in the extended period BDT 330.00 lac proposed to be allocated

in the 2nd revised DPP from GOB budget.

Consultancy: (4874)

In the 1st revised DPP, the allocation was BDT 3300.14 lac in RPA. BDT 2407.51 lac spent until February

2018. BDT 206.50 lac will be required for the extended period of the project for 12 months up to December

2018. As there will be no RPA from March 2018 a total 872.88 proposed to be reduced from RPA and in

the extended period, BDT 2553.76 lac taka has been proposed of which BDT 206.50 lac from GOB and

BDT 2427.26 lac from RPA to be allocated in the 2nd revised DPP.

Distribution of NID cards to Citizens = 90 million: (4883)

In the 1st revised DPP, the allocation was BDT 9000.00 lac in RPA @ 10Tk/Card. BDT 961.01 lac spent

till February 2018 in RPA. In the proposed 2nd revision it is proposed to increase the rate of honorarium

for distribution of smart NID card and fix 15Tk/card instead of 10 Tk/card for the undistributed cards. In

the proposed 2nd revision BDT 7956.52 lac in RPA to be reduced and include BDT 10500.00 lac in GOB

the total allocation stands at 11543.48 lac. As there will be no RPA in the extended period BDT 10500.00

lac proposed to be allocated in the 2nd revised DPP from GOB budget for the distribution of smart NID

cards to citizens.

Honorarium/Fees/Remuneration( HRM Firm- to deliver data Entry Operator 1130 persons): (4883)

In the 1st revised DPP, the allocation was BDT 4163.04 lac in RPA budget. BDT 4649.79 lac spent till

February 2018 in RPA. A total BDT 692.53 lac proposed to increase from RPA and BDT 2000.00 lac from


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GOB will be required for the extended period of the project.

In the Proposed 2nd revision the total allocation required for HR firms is BDT 6855.57 lac of which BDT

2000.00 in GOB and BDT 4855.57 lac in RPA.

Procurement, Maintenance and Operation ICT equipment’s, DC & DRS (6815):

In the 1st revised DPP, the total allocation for Data Center Management and Disaster Recovery System

Management was BDT 18089.94 lac in RPA budget. A total of BDT 15746.17 lac has been spent on this

item as of February 2018. Since there will be no RPA in the proposed extended period a total of BDT

7757.06 lac (GOB-7290.00 and RPA-467.06) required to be included in the 2nd revised DPP. The allocation

increased as per the decision of the meeting held on Budget wing of Ministry of Finance on 07 December

2017 between Ministry of Finance and Election Commission Secretariat for the following components

Upgradation of the database, procurement of Laptop, 10 finger and IRIS scanners for distribution of smart

NID cards etc. In the proposed 2nd revision a total 25847.00 lac is proposed to allocate in this item of which

GOB-7290.00 and RPA 18557.00 lac.

Software and Related Support Services (6817):

In the 1st revised DPP, the total allocation for Software and Related Support Services was BDT 124.41 lac

in RPA budget. BDT 123.41 lac has been spent until February 2018. A meeting was held with Finance

Division on 7 December 2017 in the Secretariat regarding essential Upgradation and Support Services for

ORACLE, AFIS and BVRS of the Data Center (DC) and Disaster Recovery Site (DRS). In the meeting, it

was discussed that there is an urgent need to include a necessary budget for Upgradation and Maintenance

Support Services for DC and DRS which were procured and installed in 2010. The Support Services were

ended in 2015 and by this time Data has been increased to 1040.00 lac from 9000.00 lac. Both the increased

Data and lack of Support Services make the DC and DRS vulnerable. Taking the vulnerable situation of

DC and DRS into account, the meeting suggested making a necessary budgetary allocation for Upgradation

and Support Services for ORACLE, AFIS, and BVRS of the DC and DRS.

As per the recommendation, a total of 11750.00 lac additionally allocated in the proposed 2nd RDPP for

BVRS, ORACLE and AFIS support service. Thus the total allocation in this item stands at 12623.41 lac

of which 12500.00 lac from GoB and 123.41 from RPA.

CD-VAT: (7901)

In the 1st revised DPP, the allocation was BDT 33211.15 lac of which GOB-25780.00 and RPA-7431.15

lac allocated. BDT 23586.07 lac (GOB-18867.92 and RPA 4718.15 lac) spent until February 2018. In the

2nd revision, BDT 29848.92 lac is proposed to be allocated to which BDT 22417.77 lacs from GOB and

BDT 7431.15 lac is from RPA. The surplus amount BDT 3362.23 from GOB has been re-appropriated in

different items. In the extended period an amount of additional GOB fund BDT 40728.41 lac will be

required for the proposed extended period from 1st March – 31st December 2018. Besides, an amount of

BDT 16007.10 will be reduced from RPA. The total cost of the project thus increased by BDT 24721.31

lac. Thus, the total cost of the IDEA project stands at BDT 188420.40 lac of which GOB- 67927.50 and

RPA 120492.90 Lac).

2. The rationale of the project in respect of Concept, Design, Location, and Timing.

2.1 Benefits of a comprehensive and robust NID system clearly go beyond economic and financial boundaries.

The increased capacity of a country in prudently formulating public policies, accurately targeting

beneficiaries of specific programs and objectively verifying actual deliveries of such programs are primary

benefits expected from the Project. In addition, there is the non-tangible benefit of building a sense of

citizenship and national identity and associated rights as well as the positive interaction between State and

citizen through the issuance of an enhanced NID Card; the prior distribution of even easily forged cards

demonstrated this effect. In addition, two aspects of economic and financial analyses are provided below:

financial viability of NID system itself and economic and financial savings of service agencies by NID’s

verification services.


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2.2 On the financial viability of NID system, it is assessed that up-front investment needed to establish a NID

system, i.e. data center, network, ID card personalization, and distribution, would be recovered by the

service fees that NID system would generate through verification services. While inflow of service fees

largely depends on volume of transaction which NID provides for verification services and unit fee for

each service, the feasibility survey conducted as part of project preparation clearly signals that the break-

even of up-front investment and service fees will be reached within the project period of five years and

after the break-even point the NID system would be financially sustainable without government subsidy.

2.3 On economic/financial savings from service agencies, it is assessed that both public and private service

agencies would generate significant savings. On the public sector side, the ability to construct more

accurate listings and databases of recipients of services provides a tool to counter the mismanagement and

inefficiency of social protection programs. This is a potentially substantial gain, insofar as the existing

programs involve expenditures, totaling almost 2.5% of GDP is expected to be improved. On the private

sector side, reducing the possibility of the loan and mobile payment defaulting are said to be significant

enough to offset fees for verification services.

3. A brief description of planning and financing of the project and its applicability.

Project Identification

A key element of the Digital Bangladesh agenda is to promote effective and efficient e-services through

the development of a National ID (NID) system as a foundation. The NID system will improve the

government’s capacity to identify citizens accurately which in turn will assist in compiling data to make

better planning decisions and promote inclusion. The core information available through the system will

help track a wide range of transactions undertaken by the public sector, from the collection of tax revenue

to delivery of social benefits, as well as systematize a wide range of record-keeping, from land cadasters

to utility connection.

The Government is keen to build on the widely trusted system for identification of citizens that resulted

from the elections. It has continued to develop the database of citizens through additions and multiple

checking against possible duplication. A National ID and Registration Act was adopted in early 2010

which provided the legal framework for the NIS including the designation of a National ID and

Registration Wing (NIRW) within the Bangladesh Election Commission (BEC) with authority to

administer the NID System. A project to establish a robust, authoritative National ID system to underpin

increased efficiency, inclusiveness and transparency of services corresponds to this approach to

addressing governance challenges in Bangladesh.

Project Preparation

Bangladesh’s system for identification of individuals received a major boost as a result of a drive to

improve the voter registry in preparation for the national elections in 2008. These preparatory efforts,

and subsequent maintenance of data brought about greater transparency and reliability in the

identification of voters. With support from several donors in a project implemented by UNDP, a number

of important building blocks for developing a NID system were put in place. These include a database

comprising 87 million voting-age citizens, experience with the issuance and updating of a simple voter

ID card, construction of nearly 500 Upazila-level offices, and associated management experience. The

NID system was the key factor in ensuring the credibility of the elections which were subsequently lauded

by many as by far the fairest and democratic in Bangladesh’s history.

The World Bank Country Assistance Strategy (CAS) for FY 11-14 recognizes that weak governance in

Bangladesh continues to pose challenges for the nation’s economic growth and social development. The

CAS emphasizes the need to capitalize on opportunities for governance improvements through strong

support of government-owned initiatives such as Digital Bangladesh and the implementation of a Right

to Information regime. A project to establish a robust, authoritative National ID system to underpin

increased efficiency, inclusiveness and transparency of services corresponds to this approach to

addressing governance challenges in Bangladesh. The National ID system can also contribute to the

enhanced effectiveness of other Bank projects to improve targeting of social services and facilitate private

sector transactions. There is a strong commitment to developing a more robust NID System among a

broad range of counterparts.


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The Prime Minister and senior officials from the Prime Minister’s Office have stressed the importance

of developing the system and welcome the Bank’s financing. The Bangladesh Election Commission

(BEC) has exercised strong stewardship of the existing system and has demonstrated serious intent to

carry out the improvements envisaged in this project. Other public agencies involved with Digital

Bangladesh and/or collection of biographic data have committed to work with the National ID System.

An Inter-ministerial committee on e-governance and Information Sharing has been established and the

Prime Minister’s Office has set up a task team to coordinate and facilitate the overall implementation of

e-governance.

Appraisal

While it has achieved sustained economic growth and progress towards Millennium Development Goals,

Bangladesh continues to face challenges in providing services to its large population. The quality and

quantity of many services remain weak for many citizens, particularly the poor. One contributing factor

to this weakness is the inability of service providers to identify reliably and consistently the users or

beneficiaries of their services in order to process transactions efficiently and, in the case of public sector

benefits, determine and target beneficiaries. Procedures for compiling lists of beneficiaries leave much

to the discretion of a number of agencies which do not coordinate among themselves. Systems for

tracking the delivery of benefits to the intended persons are also weak, relying on statements of multiple

tiers of officials against the various lists. Many citizens who qualify for benefits are excluded owing to

these shortcomings.

The Government of Bangladesh has made improvement of service delivery, particularly through the

expanded use of information and communication technologies (ICT). The Government has adopted a

vision for a “Digital Bangladesh by 2021” which involves the transformation of the public sector through

e-governance measures and more generally Bangladeshi society through improved connectivity. Digital

Bangladesh envisages mainstreaming ICT as a pro-poor tool to reduce poverty, establish good

governance, ensure social equity, and prepare the country for climate change. The gains through greater

utilization of ICT, particularly among often inefficient public service sectors, are potentially substantial.

When combined with other reforms to re-engineer business processes, ICT can lay a foundation for

greater efficiency and transparency as well as reduce opportunities for corruption.

Credit Negotiation

Negotiation for the IDA credit in the amount of SDR 123 million (US$ 195 million equivalent) for the

Identification System for Enhancing Access to Services (IDEA) Project (the Project) were held between

representatives of the People's Republic of Bangladesh (the Bangladesh delegation) and representative

of the International Development Association (the IDA Representatives) at the World Bank’s Country

Office in Dhaka on April 13, 2011. The Bangladesh delegation was led by Mr. Arastoo Khan, Additional

Secretary, Economic Relation Division, Ministry of Finance and the IDA Representatives was led by Mr.

Junghun Cho, Senior Public Sector Specialist, and Task Team Leader, South Asia Region.

The meeting of negotiation summarize the agreements and understandings reached between the

Bangladesh Delegation and IDA Representatives pertaining to the draft Financing Agreement dated

March 22, 2011, the draft Project Appraisal Document (PAD) dated, April 12, 2011, and the draft

Disbursement Letter for the IDEA project.

Credit Agreement

Agreement dated July 21, 2011, entered into between PEOPLE’S REPUBLIC OF BANGLADESH

(“Recipient”) and INTERNATIONAL DEVELOPMENT ASSOCIATION (“Association”). The Recipient and

the Association hereby agree as follows

Article I- General Conditions; Definitions

• The General Conditions constitute an integral part of this Agreement.

• Unless the context requires otherwise, the capitalized terms used in this Agreement have the

meaning ascribed to them in the General Conditions or in the Appendix to this Agreement.


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Article II- Financing

The Association agrees to extend to the recipient, on the terms and conditions set forth or refer

to in this Agreement, A credit in an amount equivalent to one hundred twenty-three million

Special Drawing Rights (SDR 123000000) (variously, “Credit” and “Financing”) to assist in

financing the project described in Schedule 1 to this Agreement (“Project”.)

Article III- Project

Article IV- Effectiveness; Termination

Article V- Representative Address

Credit Effectiveness

The effectiveness deadline is the date ninety (90) days after the date of this Agreement

For purpose of section 8.05 (b) of the general conditions, the date of which the obligation of the Recipient under

this Agreement (other than those providing for payment obligations) shall terminate is twenty years after the date

of this Agreement.

Loan Disbursement

Disbursement Arrangements

(i) Disbursement Methods: the following Disbursement Methods may be used under the

Financing:

▪ Reimbursement

▪ Advance

▪ Direct payment

▪ Special Commitment

(ii) Disbursement Deadline Date: The disbursement Deadline date is four months after the

Closing Date specified in the Financing Agreement. Any changes to this date will be notified

by the Association

Loan Conditionalities

For payment made prior to the date of this Agreement, except that with drawls up to an aggregate amount

not exceed $1500000 equivalent may be made for payments made prior to this date but on or after January

1, 2011, for Eligible Expenditure; or

Under Categories (1) and (2) unless the rules and regulations, satisfactory to the Association, for the

implementation of National Identity Registration Act, 2010 have become effective.

Project Approval.

Board Approval date: May 10, 2011

Effectiveness date: August 28, 2011

DPP approval date by ECNEC: October 04, 2011

Others (if any).

4. Analysis of the Post-Implementation situation and result of the project:

4.1 Whether the beneficiaries of the project have clear knowledge about the Target/ Objectives

of the project.

The beneficiaries of the project were Election Commission, Citizens of Bangladesh, Banking Sector,

Government Agencies, Telcos, Birth Registration Authority, NBR, Passport authority and the Civil

Society etc. All the beneficiaries had clear concept and knowledge about the target, objectives, and

outcome of the project. The people’s participation in NID system process proved that all the

beneficiaries and stake holder were well known for the objectives, activities, and outcome of the

project.

4.2 Programme for use of created-facilities of the project


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IDEA project created huge facilities for good governance, providing e-services, authentic

verification service, decentralization of IT infrastructure and Services, database sharing, etc for the

country. Election Commission established a dedicated data communication network across the

country within Upazila/thana server station. NPR with the help of the NID database created under

BBS. Election Commission provided NID authentication services to the public and private agencies

through the database. So far 85 agencies using NID authentication services and over 325 million

successful hits for identity authentication have been made by the user agencies. List of the agencies

and number of authentications is attached as Annex- A.

4.3 O & M programme of the project.

The Project implemented by the National ID and Registration Wing of the BEC, with a close technical

partnership with the Local Government Division, and the Bangladesh Bureau of Statistics of the

Ministry of Planning.

A Project Steering Committee (PSC) was the highest body that provided strategic policy guidance

and oversees the project implementation. The PSC was chaired by the Chief Election Commissioner

and included secretaries of concerned ministries, with the NIDW served as a secretariat. The

committee met 9 times during the implementation. The Committee provided strategic guidance and

policy decision to implement the project. The PSC included members from public and private service

agencies, an expert group on NID system, and citizens’ representatives.

A Project Implementation Committee (PIC) handled operational issues of project implementation.

The PIC chaired by Director General of NIDW and PD IDEA and included directors of operation,

technology, administration/finance branches of NIDW and head of the Implementation Support

Consultancy. It also included officials from the BBS, LGD, and other concerned agencies for better

collaboration among related systems. The PIC determined the number, duration and the type of

consultants hired under the project and also provided guidance for better implementation of the

project.

The NIDW supported by a comprehensive project Management Support Consultancy (PMC) which

brought a number of international experts on various aspects of the NID System on a long-term

residency basis. They paired with government officials who were newly recruited into the NIDW.

This long-term pairing arrangement was considered as one of the most effective capacity building

arrangements.

In addition, the NIDW selectively carry-overed about one hundred data processing technicians and

national ICT experts from the PERP project. BEC followed the required World Bank procurement

policy and procedure ensuring competitiveness and value for money of project resources. A number

of project staff and national consultants has been hired by the project during the peak period of ID

card production and distribution.

4.4 Impact of the project -

4.4.1 Direct

With the introduction of NID verification services and a smart card, Bangladesh stepped into a new

era of digitization in identifying citizens. Newly introduced unique ID number empowers

implementation of one man one ID concept effectively. A significant improvement in service delivery

by identifying citizens have already been achieved in little less than a year time. The government now

relying greatly on the NID system to render e-governance and good governance. In fact, NID system

has been designated as the pivot and hub of all e-service deliveries in Bangladesh. The IDEA project

reduced and saved a huge amount for authenticating the citizens through e-KYC.

▪ The legal and regulatory framework for the NID system has been established

▪ Issuance ID cards with robust security features are going on. As of June 30, 2018, a total of

40.39 million cards have been personalized, 39.67 have been delivered up to Upazila level and

29.79 million have been distributed to citizens. Details at Annex-B

▪ Necessary IT infrastructure has been established for the NID services, which includes a data

center (housed at the Bangladesh Computer Council), a disaster recovery site (housed at the

BEC) and a data communication network.


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• Election Commission provided identity verification services to 85 agencies (17 public and 68

private agencies) 24/7 basis where the target was 4 (2public and 2 private). Over 325 million

successful hits for identity authentication have been made by the user agencies. The

commercial banks and non-banking financial institutions have started using the identity

authentication services as part of their electronic Know Your Client (e-KYC) process. The

Bangladesh Bank and World Bank organized a workshop, titled, leveraging the NID database

for the streamlining and simplifying the Customer Due Diligence process using e-KYC from

March 15-16, 2017. It was attended by the senior executives of the Bangladesh Bank,

commercial banks, and mobile operators. The participants in the workshop conveyed their

satisfaction of the quality of authentication services of the NIDW. Detailed list attached as

Annex- A.

▪ EC established a decentralized technological infrastructure in the field level election offices

(536 UZ/Th election offices) through IDEA project. IDEA project also ensures dedicated data

connectivity within EC head Quarter and field offices (516 offices) through VPN. IDEA also

established a call center for the EC and the call center is functioning regularly.

▪ IDEA project provided training in different level officers and staffs in different capacity

development courses to ensure the development of the institutional capacity for service

delivery. As of now, IDEA provided training to 4261 officials of EC, NIDW, and IDEA.

▪ A biometric dataset of over 104 million citizens has been developed. Over 98% of the

population of 18 years of age and above have already been covered. Besides, the NIDW has

started registering individuals of 15-18 years of age from July 2015

▪ Since September 1, 2015, fees for NID correction and replacement of lost NID cards are being

collected from the citizens through the different banks which are being deposited to the

government exchequer. As of June 30, 2018, a total of TK 136,73,06,802.35 has been

collected and deposited. Details are in the table below:

Sl.

No. Name of the Services

Total Revenue Deposited

in BDT In million USD

1 Agreement Charges/Fees for user

registration 10,24,27,966.00 1.28

2 Fees for Verification Services 89,53,01,237.35 11.20

3 NID Correction, Lost fees 36,95,77,599.00 4.62

Total 136,73,06,802.35 17.10

4.4.2 Indirect

➢ Instilling a sense of pride in each citizen by issuing smart NID cards from the state.

➢ By providing NID verification services reduce cost and ensure trust to the service provider as

well as to the service receivers.

➢ Creating an example by successful completion of large-scale ICT project entirely by domestic

personnel.

➢ Ensure crime tracking, reduce extortion, mobile threat, money laundering etc.

➢ A cost-effective model for large-scale people’s registration integrating various government

agencies’ effort.

4.5 Transfer of Technology and Institutional Building through the project

A nationwide ICT infrastructure has been established and maintained through the project. The project

upgraded EC’s Central Data Center in Bangladesh Computer Council (BCC) and a Disaster Recovery

System in Project office. This ICT infrastructure enhanced the institutional strength of the BEC and

has follow-on effects on other ministries and institution involved. Through NID system the project

improved the institutional capacity of BEC, developed ICT infrastructure at the field level offices,

processes ICT knowledge based on that BEC shared the knowledge among the ministries, department

and other organization to identify the citizen’s identity for getting services. IDEA project also

generated countrywide employment opportunity.

4.6 The possibility of Self employment

The technical people who are engaged in this project as data entry operator, team leader, proofreader,


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and data entry helper, technical expert/supports got huge training in ICT field especially data entry,

data management, data processing etc. Besides this, the technical experts/supports got training on

AFIS, Oracle Database management, Oracle database maintenance, CDCP, CDFOM, CDRP, CDCS,

CITM, Oracle 10g, Oracle 11g, CHE etc. This training helps those to be self-employed in future.

4.7 The possibility of women-employment opportunity

IDEA Project created a tremendous opportunity for women employment. During the citizen

registration update program in 2012, 2013, 2015, 2016, and 2017 and thereafter Smart NID Card

Distribution Program. IDEA project was engaged and trained a large number or female worker as an

enumerator, supervisor, data entry operator, proofreader, technical expert, technical support

throughout the country.

They are now well acquainted with different ICT equipment like Laptop, Finger Print Scanner, Web

camera, etc. They also trained in the collection and processing of various information and data and

using various application software. They have gathered a lot of experience in using ICT equipment

and handle the database. It changed their views; enrich their innovative ideas and created a big

opportunity for women employment.

4.8 Women's participation in development:

In Bangladesh context IDEA project achieved the largest number of women’s participation in

development. During updatation program, a total of 25000 Data enumerator were working all over

the country of which 35% enumerator were female. On the other hand, 30000 data entry operator and

proofreader were engaged in updatation program of which 25% were female. More than 104 million

citizens were registered as a voter of which 49% were female. From this static data, it is clearly

understood that this project plays a significant role in women’s participation in development. They

have proved their skill ness to work in any development sector. Women empowered having the

National ID cards; also it helped to prevent early marriage and female child labor.

4.9 Probable Impact on Socio-Economic activity.

Benefits of a comprehensive and robust NID system clearly go beyond economic and financial gains.

The increased capacity of a country in formulating public policies based on the better identification

of current services and beneficiaries in addition to non-tangible benefits of national ownership

amongst others are expected from IDEA. The probable impact on socio-Economic activities are as

follows:

Enhanced Citizens’ Access to Services

Currently, Bangladesh citizens hardly had a valid identity proof to avail services or apply for

documents i.e. passport. Citizens are forced to go through the duress of collecting multiple identity

proofs to validate their identity for various purposes. At the same time, many citizens were deprived

of services/public goods they are entitled to owing to service agencies‟ incapacity to identify eligible

clients/beneficiaries, leading to exclusion, leakage or duplication of resources. For instance, citizens

are deprived of access to information following poor mobile phone and internet penetration rates,

partly owing to lack to identity means for service installation.

The introduction of a reliable NID system allowed accurate and efficient identification of

beneficiaries (and clients of services) and make eligible citizens have easier access to services they

are entitled to. At the same time, citizens have a single valid ID, eliminating the need for collecting

multiple identity proof documents. On the other hand, higher access to information had been

facilitated through increased penetration of mobile phone and internet services with valid identity

proofs.

Cost savings/risk mitigation

Public and private service agencies have to bear considerable risks from unreliable identity proof and

incur expenses to guard against it. Banks were using multiple, unreliable sources of identity proof for

loans leading, resulted in a considerable loan default rate. The Department of Immigration and

Passports gone through rigorous verification efforts before issuance of passports, due to multiple

unreliable sources of identity proof. The telecommunication (telco) industry faced very high churning


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rate with hardly any means of identifying churned users to direct appropriate communication.

Churned customer’s value as much as US$ 0.45 million every month. In addition, the telco industry

faced the risk of losing US$ 150 million owing to the potential barring of unregistered sim cards.

With a reliable NID service, banks were better equipped to analyze clients before lending and this

may reduce default rate. Passport issuance is been backed up by a valid identity proof, potentially

reducing the lead time for delivery of passport to citizens. The telco industry had better means of

retaining clients through identification of churned users and appropriate communication directed to

them for retrieval and retention of existing vulnerable users. Besides, the telcos were better equipped

with all 13 million sims registered using the new NID, the risk of losing clients through involuntary

deactivation of sims by law enforcers had been reduced.

Higher revenue for public and private service agencies

Banks have administrative burdens of client verification through multiple documents to meet “know

your client” requirements and focus on actual client service becomes diluted as a result. Lack of

identity means also restricts mobile/electronic commerce. The telco industry loses out as much as

US$ 17 million from new adults without a national ID and also others without a robust NID for

verification during sim purchase. The National Board of Revenue is currently contributing only 9%

to GDP out of tax receipts, lowest in the region, with about one million registered tax payers in a

country of more than 160 million. Tax payer identification is recognized as a major deterrent to

tapping the eligible taxpayers to boost tax revenue.

The commercial banks and non-banking financial institutions have started using the identity

authentication services as part of their electronic Know Your Client (eKYC) process. The Bangladesh

Bank and World Bank organized a workshop, titled, leveraging the NID database for the streamlining

and simplifying the Customer Due Diligence process using eKYC from March 15-16, 2017. It was

attended by the senior executives of the Bangladesh Bank, commercial banks, and mobile operators.

The participants in the workshop conveyed their satisfaction of the quality of authentication services

of the NIDW.

E TIN introduced with the help of NID instant verification services and resulted removal of hundreds

and thousands of false or duplicate taxpayer accounts, clamped down on tax evasion and increased

resources available for the financing public services.

With a reliable NID service in place, banks‟ time spent on administrative chores of client identity

verification will be significantly reduced, leaving time for actual, revenue generating client service

with higher responsiveness to client and reduced lead time. Through better identification means and

reduced fear of lack of tracking mechanism for money laundering, both m/e-commerce are likely to

grow, potentially adding to the revenues of commercial banks and telco industry. Finally, linking tax

payer identification with NID system will significantly improve the capacity of revenue authorities

to increase tax net.

The Finance Division is using the NID number as the primary means of identification of government

employees and the pensioners for the payment of their salaries and pensions. Besides the National

Board of Revenue (e-TIN) have emerged as important and regular users of the system.

Since September 1, 2015, fees for NID correction and replacement of lost NID cards are being

collected from the citizens through the different banks which are being deposited to the government

exchequer. As of June 30, 2018, a total of TK 136,73,06,802.35 has been collected and deposited to

the Govt. treasury.

Improved crime tracking

Law enforcing agencies hardly had a valid mechanism to verify identities of citizens in light of

maintaining law and order. In addition, it gets difficult to track people when they use unregistered

pre-paid sims for anti-social/criminal activities. NID system has significantly increased the capacities

of law enforcing agencies for identification and tracking of criminal activities has enhanced. More

than 70 million citizens have successfully re-registered nearly 160 million mobile sim cards using


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biometric authentication from NID database between January and May 2016 which helped to track

the crime reduce mobile extortion, mobile threat, money laundering, etc. Law enforcing agencies use

offline NID verification for the proper authentication of unidentified dead body and crime tracking.

So far the law enforcing agencies authenticated almost 72 beheaded dead body using biometric

identification system from NID database.

Beside this, IDEA project had created equal opportunity irrespective of sex, race, and religion thus

impacted positively on our socio-economic condition. IDEA project established a Central Data Center

that contains a database of 104 million voter’s data with biometric features. The project also

established countrywide ICT infrastructure for Election Commission, providing NID related services

not only for the citizens but also for public and private entities. This project introduced digital NID

authentication system. IDEA project established and maintained a national database that strengthened

the e-governance system in Bangladesh. Different government and non-government organization like

Bank, Insurance, Education Institute, and Foreign mission etc. are using National ID Cards to identify

the citizen and provide the services. It helped to ensure good governance that creates facilities for the

socio-economic development.

IDEA project engaged and trained a large number of Enumerator, Supervisor, Technical

Expert/Support, Data Entry Operator, Proof Reader, Team leader etc. That helped to reduce

unemployment, create a scope of self-employment. The silent features of the project were to change

the mental state of the citizens, reduce digital dividation. People, who are related to the NID

registration process were digitized in thinking. In the above-mentioned activities proved that the

impact of IDEA project activity was significant upon socio-economic activity in Bangladesh.

The successful establishment of NID System, including a reliable database, hard-to-fake ID cards,

and network for verifying IDs at various service points, citizens, public and private sectors, and

society in general build up a culture of trust and transparency in managing daily affairs of life by

displaying their true and only identity. Any attempt to abuse the system through fake ID in a range of

services, such as government social protection programs or mobile telephony and banking has made

extremely difficult, and it turned greatly reduced social transactions costs. It helped reduce violence,

abuse against women, crime tracking etc. The government now relying greatly on the NID system to

render e-governance and good governance. In fact, NID system has been designated as the pivot and

hub of all e-service deliveries in Bangladesh.

4 Impact on the environment: Not applicable

4.1 Sustainability of the project: IDEA project contracted with BRTC, BUET. To assess the NID

system and recommend the future sustainability of the project. BRTC, BUET assessed the IT

infrastructure and operations of the NIDW, as well as its skills and capacity of the IT contract

management and submitted a report with recommendations which was shared with the WB.

Bangladesh Election Commission has taken initiative to implement the BUET recommendation step

by step to ensure sustainability of IDEA project. At first, BEC is rearranging its TO&E. EC is also

preparing a project with completely GOB financing for taking the suggested technical manpower.

4.2 Contribution to poverty alleviation/reduction: Not applicable

4.3 The opinion of the public representatives, local elite, local administration, teachers, religious

leaders, women's representatives etc.

4.4 The contribution of Micro-credit programmes and Comments on overlapping with any NGO

activities: Not applicable

5. Problems encountered during Implementation (with duration & steps taken to remove

those)

5.1 Project Management: The contract management with Oberthur Technologies was a big challenge for

IDEA project. There were problems regarding the Project Management with Oberthur Technologies (OT),


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especially on smart NID Card packages. The Project authority would take the challenge but unable to

overcome successfully with OT. The project authority had to take the strict decision not to renew the

contract after June 30, 2017, due to the continuous changed of OT’s position, shifted their condition and

deviated from their commitment. OT was in clear breach of the terms of the Contract and officially

accepted their failure in its letter dated 4 July 2017. OT also provided liquidated damage for their failure

up to 30 June 2017. There were some problems which were not addressed by the OT in time, OT also did

not pay enough attention to the contract implementation. The main lacking’s of OT were in taking much

time to solve Hologram delamination problem, changing manufacturing site, fail to ensure maximum

throughput of the perso machine, Noncompliance with contract documents, delay in submitting the project

plan and failed to submit the recovery plan though the project issued fifteen (15) reminders for the

submission of the revised project plan and recovery plan.

5.2 Project Director:

Three Project Directors (PD) have been transferred for the project period and now the 4th Project Director

is serving the duties. Project directors needed sometimes to understand the activities of a project and to

determine its implementation method. It is a complex and gigantic task. When a PD prepare his work

process, set a methodology for the implementation of the project, then the transfer of the project director

is an obstacle for the smooth execution of the Project. The progress of this project was hampered due to

the frequent transfer of the project director.

5.3 Land Acquisition: Not Applicable

5.4 Procurement:

BEC has not been earlier involved in any Bank financed project. The agency neither has any procurement

unit nor any dedicated procurement personnel within it to handle the procurement activities. BEC has been

assessed by the web-based Procurement Risk Assessment Management System (P-RAMS) as significantly

lacking in procurement capacity to handle such a project with such large valued international contracts of

goods and consultancies. Time limitation and management of contract was the problems but it overcomes

by the help of the executing agency and other stakeholders. In some cases, there was a contradiction in

Govt. practices and WB international practices which confused the implementation team.

In order to minimize procurement associated risks, the following measures have been agreed upon by IDA

with the Government. Measures implemented under the project. BEC has nominated Deputy Director

(Budget) NID wing as the procurement focal point (PFP) for the project. The appointed focal point has

taken necessary training, both on PPR 2008 and Bank Procurement Guidelines. The focal person helped

the NIDW in day-to-day procurement follow-up and preparation of periodic procurement reporting.

An international and national procurement consultant with sound knowledge in international procurement

has been hired to assist BEC for procurement of National ID cards and other related procurements. This

international consultant was a member of the bid evaluation committee for large IT procurements. The

consultant has been hired for a short period of time. Besides, a national consultant has also been hired to

assist the BEC in local procurement of goods and services. The consultant’s service was ben on a full time

basis. Procurement of 10 finger and IRIS scanner needed 3rd time bidding process which delayed the

implementation process of the project.

5.5 Consultancy: There was no problem with consultancy.

5.6 Contractor: Bangladesh Election Commission represented by the Project Director IDEA project signed

an agreement (package G4) with a French Company, Oberthur Technologies (OT) on 14/1/2015 for

production, personalization, and distribution of NID smart cards up to Upazilla/Thane level. But OT failed

to complete the following tasks as per agreement. Under the agreement, OT is obliged to import 90 million

blank smart cards from Vitre, France and to personalize those cards in personalization (Perso) center

located in Prime Minister’s Tran Vander by 30/06/2016. The problems were to implement the

contract/project with the contractor as follows:

Hologram delamination: Over the course of importing blank cards from Vitra, OT at one stage raised an


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issue via e-mail dated October 21, 2015, of Hologram delamination. The problem of delamination of the

hologram was causing decreased production. OT failed to solve the problem. Over the course of 5 months,

no viable progress was seen nor were solutions broached. When OT requested to change supplier, BEC

accepted OT’s proposal within one day. OT then spent four months processing this change.

Change of manufacturing site: OT applied for a second manufacturing site in Shenzhen, China through

an e-mail dated 1 August 2016 in order to avoid IDEA program any impact of the overall project

completion date agreed with the Bangladesh Election Commission. BEC permitted this within two days

for the sake of the project. The factory in China could not produce anything while the BEC team were

visiting Shenzhen factory for acceptance. It was clear to BEC that OT was preparing to install machines;

by this time, two years had passed. Ultimately, OT failed to supply 90 million blank cards as per the

contractually obligated revised schedule, supplying only 77.3 million blank cards.

Initial extension of contract: OT failed to complete production of 90 million cards even after getting

permission to manufacture blank smart cards from Shenzhen, China, as per provisions of the contract OT

sought an extension of the contract for one year up to 30 June 2017.

Personalization of smart cards: As of 30 June 2017, OT completed personalization of only 12.9 million

cards. Supply of Smart card was not according to the delivery schedule submitted with the tender and that

resulted in no cards at perso center for a prolonged time and created a huge backlog. At one stage

personalization of smart cards was put at a halt for about three months.

Distribution of smart cards: OT is obliged to distribute personalized smart cards up to Thana/Upazilla

level by 30 June 2017; as of 30 June 2017, OT have failed to execute the distribution, only 10.98 million

personalized cards have been distributed

Failure in maximum throughput: OT failed to demonstrate its contractual obligation to ensure

maximum throughput of 5 million cards per month as there was lack of supply of cards at the beginning

and then all 10 machines were never up and always few machines were down.

Noncompliance with contract documents: In order to put the project on the right track, the project

authority and the OT agreed to have a revised recovery plan to ensure the contracted tasks done as per

time frame. The project issued fifteen (15) reminders to submit the revised recovery plan. At the fag end

on the 5 July 2017, after the expiry of the Contract Period, OT submitted a recovery plan which was

unrealistic and the terms of which were unacceptable.

Noncompliance with contractual Obligations: OT failed to provide Technical Support as per agreement

Clause- 2.5.1 Technical Support. OT failed to provide Hardware Support as per clause sl. 2.1. OT was

not deployed experience and capable system repair and maintenance engineers for on-site support at the

BEC premises. OT did not ensure the employment of required manpower employed to address the

throughput of machines as per Clause -2.4.1 Project Management and Operations. OT have failed to

provide all Fogra AGE FO2 Test report as per contract clause Inspection and Tests (GCC Claus 25)

5.7 Manpower: From beginning to end, the project suffered from lack of manpower. As per approved

manpower setup, only 22 officers and staff were provisioned though huge number of manpower were

included in the DPP under contractual hire the recruitment process and the salary structure was not

suitable. Lack of support staff hampered the smooth functioning of the project activities.

5.8 Law & Order: Law & order situation during the implementation period was mostly good.

5.9 Natural calamity: There was no problem due to natural calamity.

5.10 Project financing, allocation, and Release:

The withdrawal condition as set forth in the financing Agreement (FA) initially restricted the financing of

all expenditures until the rules and regulations for implementation of NIRA, 2010 were duly approved

and in effect. In April 2012 the FA was amended to allow consultancy services and operating cost to

proceed, with only the production and delivery of smart NID cards remaining contingent upon the

effectiveness of the rules and regulations. This restructuring allowed the implementation to advance, but

processing of major procurement activities only started in December 2013.

In this situation, National Legal Consultant was appointed to draft national identity registration rules and

regulations. Legal Consultant reviewed the National Identity Registration Act 2010, consult with IDEA,

NIDW, Election Commission Secretariat, and Hon’ble Commissioners and prepared draft National ID

Registration rules and regulations. The draft prepared by the Legal Consultant was reviewed by the

Election Commission and forwarded to the Banks Team for their review. The World Bank Legal Team


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reviewed and made few comments with observations especially their observations were to the rules and

regulations in data privacy and data security.

After receiving the observation from the World Bank, the Election Commission present their own

arguments on the draft rules and regulations. But the bank team is firm in their objections and requested

for inclusion in the rules. They also suggested hiring International Legal Consultant to review and address

this issue. In this context, the International Legal Consultant was appointed to review and finalize the

laws, rules, and regulations.

The International Legal Consultant Reviewed the draft rules, regulations prepared by the National Legal

Consultant and also reviewed the NID registration Act 2010. They met and talked with the Hon’ble

Election Commissioner, Legal Wing of Election Commission Secretariat, DG, NIDW & PD, IDEA, WB

task team, WB legal team, National Legal Consultants etc. After the discussion with all concern and

reviewed the existing rules and regulations in this regards they prepared a draft of the NID rules and

regulations. At the same time, the International Legal Consultant recommended some amendments in the

National Identity Registration Act-2010

The draft rules and regulations prepared and submitted by the International Legal Consultant approved by

the Bangladesh Election Commission, with the necessary amendment. The NID rules and regulations were

translated into bangle and submitted the draft to the Ministry of Law, Justice and Parliamentary Affairs

and the Legislative Department for necessary actions. The National Identity Registration (Amendment)

Act, 2013 was approved in the ninth session of the National Parliament and the Gazette was published on

9 October 2013 which boosted the implementation of the project. Subsequently, the adoption of the rules

and regulations enabled the bank to lift the withdrawal condition in December 2014.

For the first time in the history of Bangladesh, a fundamental law was amended to meet the

requirements of the Financing Agreement. According to the provisions of the Financing Agreement

and the World Bank's observation, the project delayed 30 months to implement the project's overall

activities.

5.11 Design formulation/approval: No problems

5.12 Project aid disbursement and re-imbursement: No problems occurred in the disbursement and re-

imbursement of the project aid.

5.14 The mission of the development partners: Mission of the development partners was friendly and

cooperative, no problems arose during the mission period. Mission Team reviewed the framework,

objectives, component, activities, procurement packages, financial aspects, disbursement, re-

imbursement, contract management, consulting and non-consulting services. The mission team suggested

few actions, implementation measures and also recommended the agreed actions with implementation

time to be done. The project team worked to achieve the agreed actions, maximum actions were completed

within stipulated time with some exception. The main actions and initiatives of the project were as under:

Sl Mission

period

Suggested Actions Project Initiatives

1

Au

gu

st 2

3-3

1, 2

015

The hiring of a consultant to conduct an

assessment and design up gradation of the NID

Wing by November 30, 2015

The Project proposed to hire a consultant for

the assessment of NIDW to BEC.

2

Organizing a consultation Session with key

stakeholders regarding a policy framework to

augment measures aimed at ensuring

information security and the quality of the

identity verification service by December 31,

2015

A consultation Session with key

stakeholders regarding a policy framework

to augment measures aimed at ensuring

information security and the quality of the

identity verification service was held on

February 4, 2016

3 Commencing the distribution of smart NID

cards to the citizens by December 31, 2015

Distribution of smart NID cards was

commenced on October 2, 2016

4

Jun

e 8

-21

,

20

16

Receive complete revised contract

Implementation Plan from the supplier of the

smart NID card package by September 20,

2016

The Project send several reminders to

Oberthur Technologies to submit the revised

contract Implementation Plan of the smart

NID card package but the supplier has failed

to submit.


Page 106 of 125

5

Share the terms of reference for the second

performance audit with the Bank for

concurrence by September 20, 2016

The terms of reference for the second

performance audit has been shared with the

Bank.

6

Conduct first round of survey on agencies and

citizen perceptions of the ID authentication

service by October 30, 2016

The Project conducted a final survey on

agencies and citizen perceptions of the ID

authentication service and the report shared

with World Bank.

7

Dec

emb

er 1

-8,

20

16


Implementation Plan from the supplier of the

smart NID card package by December 20,

2016

The Project send several reminders to




to submit.

8 Resume the personalization of blank smart

National ID cards by December 20, 2016

The personalization of blank smart National

ID cards has been resumed on January 2017

9

Shift the personalization machine from Project

office to the personalization center by January

15, 2017

The personalization machine was shifted

from Project office to the personalization

center on January 2017

10

Hire a consultant to conduct an institutional

assessment of the NID Wing by January 30,

2017

BEC conducted the institutional assessment

and up gradation plan of the NIDW by itself.

11

Mar

ch 1

9-2

3 a

nd

Ap

ril

6,

20

17


Implementation Plan from Oberthur

Technologies, the supplier of the smart NID

card package by May 15, 2017

The Project requested and reminded




to submit.

12

Starting the personalization of smart NID

cards in three shifts using 10 machines by May

15, 2017

The Oberthur Technologies have failed to

start the personalization of smart NID cards

in three shifts using 10 machines.

13

Operating at least another 15 personalization

machines at the Bangladesh Election

Commission (BEC) personalization center in

three shifts by June 15, 2017

OT have failed to bring and operating at least

another 15 personalization machines

14

No

vem

ber

6-2

3, 2

01

7

Refund encashed Advance Payment

Guarantee to DA immediately

Advance Payment Guarantee had been

refunded to DA on time

15 Resolve the pending audit observation with the

FAPAD by December 15, 2017

Except two all observation of the FAPAD

has been resolved by December 2017

16

Ensure transfer of IT assets (equipment,

software, and process) from suppliers by

December 26, 2017, and inform the Bank

Accordingly

IT assets (equipment, software, and process)

has been transferred from suppliers to IDEA

project and inform the Bank Accordingly

17 Complete and reconcile stocktaking of assets

of the Project by December 26, 2017

The Project complete and reconciled

stocktaking of the assets by the agreed time

5.15 Time & Cost Over-run: According to the revised DPP there was no time or cost overrun. But according

to the original DPP implementation time overrun 50% and cost overrun 136.62 % due to the delay starting

of the project as per the provisions of the Financing Agreement and the World Bank's observation on

Rules and Regulations. The project needed almost 30 months to enact the NID rules and regulations thus

the project needed additional 30 months to implement the project's overall activities. The cost overrun due

to the field and actual requirement of the project.

5.16 Project Supervision/Inspection: There was no problem regarding the project supervision and inspection

but the Implementation Support Mission team drew attention to some action for the successful

achievement of the project objectives.

5.17 Delay in Decision: There was a delay in a decision from the vendor side regarding the implementation of

contract implementation for package G-4 which hampered the production and distribution of smart NID

card and OT have failed to complete the task in time. OT did not made any decision in time. They always

changed their position and changed their decisions.


Page 107 of 125

5.18 Transport: The transportation facilities was in adequate comparing with the actual manpower.

5.19 Training: There was no problem in training component of the project.

5.20 Approval: There was no approval related problem in the project.

5.21 Others: None

6. Remarks & Recommendations of the Project Director:

The IDEA project with a focus on preparing smart NID cards with robust security features maintaining

international standard was a massive undertaking. This nationwide project went from planning stage to

personalization of smart NID card and delivered to the citizen was a huge task. Capturing 10 finger and

iris at the time of card distribution was an outstanding decision by the EC. This gigantic task is going on

by working together with Local Govt. Officials, Civil Society, and the Bangladesh Election Commission.

Not only are the numbers of cards were impressive, but also is the NID authentication service was a

challenge. Modern technology enabled the biometric authentication and digitized the NID verification

services. NID authentication services were very user-friendly and easy. It resulted the service provider of

Bangladesh can easily identify their clients.

The project heartily congratulated all who contributed to this outstanding achievement, which would not

had been possible without the strong leadership of Bangladesh Election Commission, the commitment of

the men and women served enumerators and data entry operators across the country, the project personnel

like consultant, officers, Technical Experts, Technical Supports, Associates, who worked at the central

project office, the strong support & participation of the citizens of Bangladesh and the contribution of WB

task team. The Task team reviewed the progress, made the queries recommend the corrective measures

and suggested various international practices regarding implementation.

To ensure and institutionalize the achievement of IDEA project Election Commission (EC) has taken

several initiatives. EC established a Central Datacenter and a Disaster Recovery System. Standard

procedure has been formalized through the development of Standard Operating Procedure (SOP). All

procedure is being regularized through a legal framework.

Election commission Bangladesh is now upgrading the biometric data of all registered citizens by

collecting fingerprint of 10 fingers instead of 4 and capturing iris as second biometric for more

authentication and maintain international standard.

The smart NID card opens up the possibility of automation and machine verification of the physical

document. On various situations the bearer would be able to verify his/her identity with confidence with

the chip/machine readable data. Also on various occasions data can be read from the chip and can various

forms can be filled out automatically and correctly. Considering the ever growing demand of NID, ECB

firmly determine to implement followings in future:

a. Registration of under aged citizens

b. Use of enhanced biometrics in service delivery

c. Ensure uninterrupted card supply chain

d. Educate citizens in using Smart NID Card NEA

e. Production of smart NID cards for under aged citizens

f. Integration of NEA service bus with NID system

g. Use of NID as Travel Card

h. Registration of the expatriate citizen and issuance of smart NID cards

Like many third world country Bangladesh lacked nationwide authentic identity document for citizens.

The situation started improving with the issue of laminated paper ID cards to citizens on 2007-8. Despite

some shortcomings the card became widely popular and regarded and accepted by citizens and various


Page 108 of 125

authorities. Now the country is entered into a new era with the distribution of polycarbonate smart NID

card. Success of this project will ensure nationwide distribution of authentic identity document for all

citizens that is capable of machine communication and online and offline verification ensuring service

delivery to all citizens of Bangladesh. I would like to convey my sincere and gratitude to all who

contributed to the successful implementation of the project and creation of history in digital identification

system in Bangladesh.

Date: .................................. Signature and seal of the Project Director/Manager

7. Remarks/Comments of Agency Head

Date: ..................................

Signature and Seal

8. Remarks/Comments of the officer in- charge of the Ministry/Division

Date: Signature

and Seal


Page 109 of 125

Annex- A

The progress of the MoU/Agreement for the NID Verification Services:

NIDW has been offering verification services to eighty two (85) public and private sector

agencies of which 17 public and 68 private agencies are using identity verification services.

Among the 66 private sector agencies 45 are private banks and 6 are mobile phone operators

and 17 are non-banking financial institutions. The table shows the details of the agencies and

date of signing MoU/contract/agreements:

Status of the MoU/Contract/Agreement for the NID Verification Services.

Sl. Name of Agencies Type of

Agencies

Date of signing

MoU/ Contracts

Purposes of ID Verification

Services

1. National Board of Revenue (NBR)

Government

agencies (17)

25-Jan-12

Registration in Taxpayers’

Identification No. (TIN) database;

issuance of e TIN.

2. Bangladesh Bank 26-Jan-12

Authentication of ID for Credit

Information Bureau and Financial

Management Intelligence Unit.

3. Passport and Immigration Authority 4-Jul-13 Authentication of ID for issuance of

passport

4. Finance Division, Ministry of Finance 3-Dec-15

Development/maintenance of

database for pensioners in civil

service, Salary/Pay fixation for civil

service.

5. Ministry of Religious Affairs 10-Jan-16

Online registration of hajj pilgrims

at Union Information Service

Centers/ hajj agencies/ Islamic

Foundation offices/ deputy

commissioners’ offices/ hajj offices.

6. Electronic Signature Certificate Authority

Controller (CCA) Office 4-Feb-16

Authentication of the identity for

electronic signature.

7. Macro-economic wing, Finance Division,

Ministry of Finance 24-Feb-16

Authentication of the personnel.

Receiving data set for capacity

development training of the

personnel.

8. Ministry of Social Welfare 25-Feb-16

Receiving data set to list

beneficiaries under social welfare

program.

9. Special Branch, Bangladesh Police 24-May-16 Detecting criminals, investigation,

prevent forgery, terrorism etc.

10. Prime Minister Office (A2I) 18-July-16 Authentication of the identity for

various govt. services.

11. Police Bureau of Investigation (PBI) 02-Nov-16 Authentication of the victim,

criminal etc.

12. Bangladesh Bureau of Statistics (BBS)

06-Feb-17

Authentication Services for

Household surveys and other

surveys of BBS

13. Rapid Action Battalion (RAB) Detecting criminals, investigation,

prevent forgery, terrorism etc.

14. Janata Bank Ltd. 19-Feb-17 eKYC/ opening of account/ mobile

banking.

15. Signal Intelligence Bureau (SIB) 14 May 2017 Authentication of the victim,

criminal etc.

16. National Telecommunication Monitoring


Page 110 of 125


Agencies

Date of signing

MoU/ Contracts


Services

Cell

17. MIS Department of Health 22 Jan 18 Authentication for providing health

service

18. Airtel Bangladesh Limited (Airtel)

Mobile

operators

(6)

3-Nov-15 SIM/ RIM registration/re-

registration

19. Bangladesh Link Digital Communications

Limited (Bangla Link)

20. Pacific Telecom Limited (City Cell)

21. Grameen Phone Limited (GP)

22. Robi Axiata Limited (Robi)

23. Teletalk Bangladesh Limited (Teletalk)

24. BRAC Bank Limited

Private

commercial

banks

(45)

19-Aug-15

eKYC/ opening of account/ mobile

banking,

25. Dutch Bangla Bank Limited eKYC/ opening of account/ mobile

banking,

26. Southeast Bank Limited

24-Nov-15

eKYC/ opening of account

27. Eastern Bank Limited eKYC/ opening of account

28. Export Import Bank Limited eKYC/ opening of account

29. Bangladesh Commerce Bank Limited eKYC/ opening of account/ mobile

banking,

30. AB Bank Limited eKYC/ opening of account

31. United Commercial Bank Limited

10-Dec-15

eKYC/ opening of account/ mobile

banking/

32. NRB Global Bank Limited eKYC/ opening of account

33. NRB Commercial Bank Limited eKYC/ opening of account

34. Standard Chartered Bank Limited eKYC/ opening of account

35. IFIC Bank Limited eKYC/ opening of account

36. Al-Arafah Islami Bank

14-Jan-16


37. Mutual Trust Bank Ltd. eKYC/ opening of account

38. Prime Bank Ltd. eKYC/ opening of account

39. Sahajalal Islami Bank eKYC/ opening of account

40. Trust Bank Ltd eKYC/ opening of account

41. Jamuna Bank Ltd.

4-Feb-16


42. Islami Bank Bangladesh Ltd. eKYC/ opening of account

43. NRB Bank Ltd. eKYC/ opening of account

44. BASIC Bank Ltd. eKYC/ opening of account

45. Bank Al Falah

25-Feb-16


46. Uttara Bank Limited eKYC/ opening of account

47. Dhaka Bank Limited eKYC/ opening of account

48. First Security Islami Bank Limited eKYC/ opening of account

49. One Bank Limited

11-Apr-16


50. Midland Bank Limited eKYC/ opening of account

51. Mercantile Bank Limited eKYC/ opening of account

52. The City Bank Limited eKYC/ opening of account


Page 111 of 125


Agencies

Date of signing

MoU/ Contracts


Services

53. Bank Asia Limited

6-June-19


54. National Credit and Commerce Bank

limited


55. Pubali Bank Limited eKYC/ opening of account

56. Union Bank Limited eKYC/ opening of account

57. Social Islami Bank Limited 27-July-16 eKYC/ opening of account

58. The Honkong and Shanghai Banking

Corporation limited (HSBC) 4-Sep-16


59. Habib Bank Limited

19 January 2017


60. Standard Bank Limited eKYC/ opening of account

61. The Premier Bank Limited eKYC/ opening of account

62. The Farmers Bank Ltd.

19-Feb-17


63. National Bank Ltd. eKYC/ opening of account

64. Modhumati Bank Ltd. eKYC/ opening of account

65. Rupali Bank Limited 15 June 2017 eKYC/ opening of account

66. Agroni Bank Limited


67. Simanto Bank limited eKYC/ opening of account

68. Megna Bank Limited 07 Nov 17 eKYC/ opening of account

69. IDLC Finance limited

Non-banking

financial

institutions

(17)

21-Apr-16

eKYC

70. Industrial Promotion & Development

Company (IPDC) of Bangladesh Limited eKYC

71. MIDAS Financing Limited eKYC

72. Phoenix Finance & Investment Limited eKYC

73. Prime Finance & Investment Limited eKYC

74. United Finance Ltd.

10-May-16

eKYC

75. Lanka-Bangla Finance Ltd. eKYC

76. Infrastructure Development Ltd. eKYC

77. Fareast Finance and Investment Ltd. eKYC

78. Premier Leasing and Finance Ltd. eKYC

79. First Finance Limited

27-July-16

eKYC

80. Meridian Finance and Investment Company

Limited

eKYC

81. Bangladesh Finance and Investment

Company Limited

eKYC

82. International Lizing Co. Limited 07 Nov 17 eKYC

83. Union Capital Limited 08 Nov 17 eKYC

84. B-kash Limited 10 Dec 17

eKYC

85. National Finance Limited eKYC

The progress of the implementation of Online NID authentication services to the citizen

by various agencies:

By now 85 (Eighty Five) agencies are using the online identity verification services through

NID database for proper authentications of the citizens in service delivery. The Banks and

other agencies verify ID number through Database and the Mobile operators verify biometric

(fingerprint) through the database. The status of the hit counted for NID authentication


Page 112 of 125

services since inception to February 28, 2018 is as under:

Status of the Online Identity Authentication Services

Sl. Agencies Total NID

Verified Match Non Match

1 National Board of Revenue (NBR) 8,708,966 7,330,523 1,378,443

2 Bangladesh Bank 15,946 10,581 5,365

3 Passport and Immigration Authority 0 0 0

4 Finance Division, Ministry of Finance 5,201,823 4,090,434 1,111,389

5 Ministry of Religious Affairs 798,194 728,752 69,442

6 Electronic Signature Certificate Authority

Controller (CCA) Office 192 100 92

7 Macro-economic wing, Finance Division,

Ministry of Finance 0 0 0

8 Ministry of Social Welfare 0 0 0

9 Special Branch, Bangladesh Police 223,922 187,081 36,841

10 Prime Minister Office 25,989 21,161 4,828

11 Police Bureau of Investigation (PBI) 9,822 8,956 866

12 Airtel Bangladesh Limited (Airtel) 12,617,165 11,059,941 1,557,224

13 Bangladesh Link Digital Communications

Limited (Bangla Link) 69,364,371 49,587,153 19,777,218

14 Pacific Telecom Limited (City Cell) 230,902 200,316 30,586

15 Grameen Phone Limited (GP-Telco) 111,729,485 92,934,344 18,795,141

16 Robi Axiata Limited (Robi) 69,829,828 60,832,281 8,997,547

17 Teletalk Bangladesh Limited (Teletalk) 8,410,188 7,140,009 1,270,179

18 BRAC Bank Limited (NID) 1,835,031 1,512,683 322,348

19 Dutch Bangla Bank Limited 1,674,544 263,943 1,410,601

20 Southeast Bank Limited 654,160 528,646 125,514

21 Eastern Bank Limited 431,764 362,955 68,809

22 Export Import Bank Limited 951,506 748,890 202,616

23 Bangladesh Commerce Bank Limited 24,777 18,668 6,109

24 AB Bank Limited 177,343 149,952 27,391

25 United Commercial Bank Limited 667,579 541,397 126,182

26 NRB Global Bank Limited 85,008 71,066 13,942

27 NRB Commercial Bank Limited 112,371 87,586 24,785

28 Standard Chartered Bank Limited 219,657 186,626 33,031

29 IFIC Bank Limited 944,422 632,939 311,483

30 Al-Arafah Islami Bank 504,855 400,546 104,309

31 Mutual Trust Bank Ltd. 354,111 279,453 74,658

32 Prime Bank Ltd. 316,517 266,710 49,807

33 Sahajalal Islami Bank 213,419 166,312 47,107

34 Trust Bank Ltd 54,977 44,911 10,066

35 Jamuna Bank Ltd. 155,301 120,014 35,287

36 Islami Bank Bangladesh Ltd. 5,364,236 4,324,641 1,039,595

37 NRB Bank Ltd. 100,385 81,509 18,876

38 BASIC Bank Ltd. 45,075 34,189 10,886

39 Bank Al Falah 11,148 8,993 2,155


Page 113 of 125



40 Uttara Bank Limited 879,213 739,548 139,665

41 Dhaka Bank Limited 16,157 14,200 1,957

42 First Security Islami Bank Limited 880,290 725,170 155,120

43 One Bank Limited 152,309 127,904 24,405

44 Midland Bank Limited 71,262 57,685 13,577

45 Mercantile Bank Limited 227,100 177,551 49,549

46 The City Bank Limited 365,670 306,914 58,756

47 Bank Asia Limited 415,532 346,758 68,774

48 National Credit and Commerce Bank

limited 50,158 41,388 8,770

49 Pubali Bank Limited 1,308,182 1,041,328 266,854

50 Union Bank Limited 36,584 27,585 8,999

51 Social Islami Bank Limited 196,306 153,942 42,364

52 The Honkong and Shanghai Banking

Corporation limited (HSBC) 18,946 15,215 3,731

53 IDLC Finance limited 157,633 125,413 32,220

54 Industrial Promotion & Development

Company (IPDC) of Bangladesh 19,183 14,311 4,872

55 MIDAS Financing Limited 16,734 12,634 4,100

56 Phoenix Finance & Investment Limited 201 154 47

57 Prime Finance & Investment Limited 1,763 1,438 325

58 United Finance Ltd. 41,835 33,594 8,241

59 Lanka-Bangla Finance Ltd. 91,264 79,132 12,132

60 Infrastructure Development Ltd. 0 0 0

61 Fareast Finance and Investment Ltd. 1,675 1,131 544

62 Premier Leasing and Finance Ltd. 1,701 1,420 281

63 First Finance Limited 5,921 4,944 977

64 Meridian Finance and Investment

Company Limited 2,447 2,027 420

65 Bangladesh Finance and Investment

Company Limited 913 781 132

66 Habib Bank Limited 1,782 1,517 265

67 The Premier Bank Limited 22,377 16,966 5,411

68 Standard Bank Limited 10,976 8,981 1,995

69 Bangladesh Bureau Statistics 17,712,278 14,548,029 3,164,249

70 Rapid Action Batilian (RAB) 6,680 3,594 3,086

71 The Farmers Bank Ltd. 20,921 17,690 3,231

72 National Bank Ltd. 50,158 41,388 8,770

73 Modhumati Bank Ltd. 5,131 4,231 900

74 Janata Bank Ltd. 24,110 20,984 3,126

75 Signal Inteligence Bureau (SIB) 0 0 0

76 Rupali Bank Limited 53,401 46,755 6,646

77 International Lizing Co. Limited 157 84 73

78 Agroni Bank Limited 12,405 10,280 2,125


Page 114 of 125



79 Simanto Bank limited 0 0 0

80 National Telecommunication Monitoring 48 35 13

81 Megna Bank Limited 56,941 49,827 7,114

82 Union Kipital Bank 526 435 91

83 B-kash Limited 158,034 151,466 6,568

84 National Finance Limited 94 87 7

85 MIS Department of Health 0 0 0

Total 325,159,977 263,938,777 61,221,200


Page 115 of 125

Annex-B

Production, Personalization and Distribution of smart NID cards at glance:

Sl. No Activity Number of cards

in million % of 90 million

1 Total Number of Card 90.00 100.00

2 Card Supplied 77.30 85.89

3 Card not supplied 12.70 14.11

4 Personalization Completed 40.39 44.88

5 Yet to personalize 49.61 55.12

6 Delivered to Thana/Upazila 39.67 44.08

7 Yet to deliver to Upazila 50.33 55.93

8 Distributed to citizens 29.79 33.10

9 Yet to distribute to citizens 60.21 66.90


Page 116 of 125

Annex- C

Local Training Details (List of Cources and number of participants)

Serial

No. Name of the Training Courses

Number of

Participants Remarks

1 2 3 4

1 VPN Training 15

2 Customized Training on Networking,

Troubleshooting & Security 16

3 AIFS Basic, Solution & Algorithm 15

4 Biometric System 6

5 Enterprise AFIS User Training 31

6 NOC Operations and Management 18

7 Enterprise AFIS Operation, Upgradation,

Integration, Customization & Maintenance 11

8 New Card Management Soft ware 34

9 New Card Management Soft ware 25

10 Certified Data Centre Professional -CDCP 10

11 Certified Data Centre Facilities Operations

Manager-CDFOM 8

12 Certified Data Center Risk Professional-CDRP 8

13 Certified Data Center Migration Professional 6

14 Certified Data Center Specialist-CDCS 9

15 Certified Data Center Expert-CDCE 6

16 Certified IT Manager-CITM 7

17 Oracle Access Manager 11g: Administration 8

18 Oracle B1 Applications 7.9: Develop a Data

Warehouse 6

19 Oracle Database 11g: Data Mining 8


21 Tally Software operations, Management and

reporting 4

22 Tally Software 6


24 Oracle Web Logic Server 11g: Monitor and Tune

Performance 6

25 Oracle BI Discoverer Plus 11g: Analyze

Relational and OLAP Data 5

26 Oracle Service Bus 11g: System Administration 5

27 Oracle Enterprise Manager 11g: Grid control

Essentials 4

28 Oracle Web Logic Server 11g: Advanced

Administration 8

29 Oracle BI 11g RI: Creat Analyses & Dashboards 5


Page 117 of 125

Serial


Number of


Ed1.2

30 Oracle SOA Suite 11g: Essential Concepts 5

31 Oracle BI 11g RI: Build Repositories ED 1.2 9

32 Oracle Service Bus 11g: Design & Integrate

Service 5

33 Oracle Database 11g: RAC Administration Ed1.1 12

34 Oracle Oracle 11g: Administer a Data Warehouse 9

35 Oracle BI Application 7.9 Develop a Data

Warehouse 6


Manager-CDFOM 8

37 Web Component Development With Servlets &

JSPs, Java EE6 10

38 Oracle Grid Infrastructure 11g: Administer &

Disploy 3

39 Oracle Grid Infrastructure 11g: Administer &

Disploy Cluster 3

40 Oracle Weblogic Server 11g: Administration

Essentials 7

41 Exadata Database Machine Administration

Workshop 8

42 Oracle Exadata Storage Server V2 Overview

Seminer ED1 6


Manager-CDFOM 8

44 Oracle Grid Infrastructure 11g: Administer ASM 4

45 Oracle Database 11g: Data Guard Administration 10

46 Oracle Data Integrator : Administration and

Development 5

47 Oracle Database 11g: Integration and

Administration 5

48 Oracle Database 11g: RAC and Grid

Infrastructure Admin Accentials 7

49 Oracle Database 11g: Manage Clusterware &

ASM 3

50 Certified Data Center Professional-CDC 10

51 Certified Data Center Specialist-CDCS 9

52 Tally Software 8

53 Tally Software 23

54 Oracle Database 11g: Implementing Database

Vault 8

55 Oracle Database 11g: Backup & Recovery 8

56 Oracle Database 11g: SQL Tuning 3


Page 118 of 125

Serial


Number of


57 Implementing Oracle Audit Vault 7

58 Oracle Database 11g: Security 9

59 Oracle Database 11g: Implementing Partitioning 3

60 Oracle Database 11g: Performance Tuning R2 9

61 Oracle Linux: System Administration 15

62 Oracle Database 11g: Admin Workshop-1 12

63 UNIX Linux Essentials 15

64 Oracle Database 11g: Performance Tuning R2 9

65 Oracle Database 11g: Implementing Database

Vault 8

66 Oracle Database 11g: SQL Tuning Workshop 3

67 Oracle Database 11g: Admin Workshop-2 12

68 Oracle Linux Fundamentals 15

69 Oracle Database 8

70 Oracle Database 11g: Managing Oracle On Linux 11

71 Oracle Database 11g: Data Warehousing

Fundamentals 8

72 Oracle Database 11g: Advanced PL/SQL 8

73 Oracle Database 11g: Advanced PL/SQL New 7

74 Java SE 7 Fundamentals 8

75 Oracle Database SQL Fundamentals 7

76 Oracle Database 15

77 VAT & TAX Training 31

78 Outsourcing Operator Training 88

79 Outsourcing Operator Training Field 1042

80 Certified Ethical Hacker (CEH) 7

81 NOC Team Training 18

82 New Card Management Software 2278

83 Personalization Center Training 30

84 VAT & TAX Training 25

85 Project Management Training 25

86 NOC Team Training (ATS) 20

Total 4261


Page 119 of 125


Page 120 of 125

Results Framework

Project Development Objectives (PDO):

To establish a secure, accurate and reliable national ID system in Bangladesh that serves as the basis for more efficient and transparent service

delivery.


Core

Unit of

Measure

Baselin

e

Cumulative Target Values (Project Years)

YR 1

(FY 11-

12)

YR 2

(FY 12-

13)

YR 3

(FY 13-

14)

YR 4

(FY 14-

15)

YR 5

(FY 15-

16)

YR 6

(FY 16-

17)

YR 7

(FY 17-

18)

Indicator 1: Number of citizens

having access to secure, reliable

means of identification

Numbe

r

(Millio

n)

0 0 0 20 50 50 65 80

Achievement** - - - - - 8.54 40.39

Indicator 2: Number of women

among number of citizens

having access to secure reliable

means of identification

Numbe

r

(Millio

n)

0 0 0 10 25 25 30 40

Achievement - - - - - 2.57 19.80

Indicator 3: Number of

public/private institutions

regularly using electronic

identity verification for their

service delivery

Numbe

r 0 0 0 1 2 4 4 4

Achievement - - 2 3 4 74 85


public/private institutions using

off-line identity verification for

Numbe

r - - - - 0 2 4 5


Page 121 of 125

their service delivery using

smart NID cards

Achievement - - - - 0 0 0


citizens’ identity

electronically verified

Numb

er

(Millio

n)

- - - - 0 4 6 7

Achievement - - - - 4 6.5 70

Intermediate Results Indicators

Component 1: National Identification System and Services

Intermediate Result (Component 1.1): Legal & regulatory framework established for management of the NID system

Intermediate Result Indicator

1.1.1: Operational procedures

for the management of NID

Wing introduced

Yes/N

o No Yes Yes Yes Yes Yes Yes Yes

Achievement No Yes Yes Yes Yes Yes Yes


1.1.2: Regulatory and

operational guidelines for NID

Wing and verification service

issued

Text None Yes Yes Yes Yes Yes Yes Yes

Achievement - Drafted

Partly

complete

d

Fully

complete

d

Fully

complete

d

Fully

complete

d

Fully

complete

d

Component 2: IT Operations and Management


Page 122 of 125

Intermediate Result (Component 2.1): IT infrastructure for ID system developed and made operational


2.1.1: Bangladesh Election

Commission (BEC) Data Center

(DC) and Disaster Recovery

System established

Yes/N

o None Yes Yes Yes Yes Yes Yes Yes

Achievement -

DC (Yes)

DRS

(partly

establish

ed)

DRS- In

process Yes Yes Yes Yes


2.1.2: Personalization Center

for smart NID cards established

Numbe

r - - - - 0 1 1 1

Achievement - - - - 1 1 1

Intermediate Result (Component 2.2): Reliable data communication network through virtual private network created


2.2.1: Number of Upazila server

stations connected through VPN

and capable of NID registration

and updating of information

Numbe

r 0 100 130 230 230 230 230 230

Achievement ** - - In

process Off track Off track

In

process 516

Intermediate Result (Component 2.3): Usage of NID card by social services for authentication improved


2.3.1: Number of social

Numbe

r 0 0 0 5 5 5 5 5


Page 123 of 125

protection program utilizes NID

to verify the correct

beneficiaries

Achievement - - 2 2 2 2 3

Component 3: Capacity Building, Communication and Overall Project Management

Intermediate Result (Component 3.1): Technical and management capacity of the NIDW strengthened


3.1.1: Staff trained in operation

and management of NIDW

Numbe

r 0 700 700 700 700 700 700 700

Achievement - - 135 233 536 1603 4261


3.1.2: Staff recruited for NID

Wing

Numbe

r 0 71 71 71 71 71 71 71

Achievement 31 31 31 31 31 35 37

Intermediate Result (Component 3.2): Citizen awareness is generated through an effective communication mechanism


3.2.1: Orientation sessions

organized for Upazila level staff

of the Election Commission for

community mobilization on

NID system

Numbe

r - - - - 0 20 50 60

Achievement

- - - - 0

Orientati

on

sessions

is yet to

start

Orientati

on

sessions

is yet to

start


Page 124 of 125


3.2.2: Agencies satisfied using

the NID verification services

Percent - - - - 0 20 50 70

Achievement

- - - - Requires

a survey

Survey is

yet to

start

71


3.2.3: Citizens satisfied using

the smart NID cards

Percent - - - - 0 30 50 70

Achievement

- - - - Requires

a survey

Survey is

yet to

start

93.2

Implementation Completion and Results Report (ICR) Document...• The birth registration offices...

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