Tracking Maisha Namba – Digital UPI: What is changing, and what are the key issues?
Category: Unique Personal Identifier
By: Leo Kipkogei Kemboi,
Maisha Namba refers to the unique personal identification number assigned to every Kenyan citizen upon registration, usually at birth. This number serves as a lifelong personal identity number.
In this study by the IEA Kenya, the author examined the proposed implementation of a unique personal identifier system in Kenya and compared that to India’s Aadhar and Social Security Numbers issued by the government of the United States.[1] The study examined the State of Play in providing public goods, including the National Education Management Information System (NEMIS) applied in education, and how it interfaces with the Unique Personal Identifier.
The paper discussed the following issues: (i) The State had not provided a written policy outlining the importance of a Unique Personal Identifier (UPI). However, the potential benefits of the UPI as a public good could have encouraged voluntary adoption without enforcing a legal mandate, offering a promising future for identification in Kenya; (ii) The scope of data collection needed review for several reasons. The Registration of Persons Act mandated the collection of biometric data, including fingerprints, retina and iris patterns, DNA, voice waves, and hand and earlobe geometry. Collecting this data without clarifying its intended use could be deemed unconstitutional and a violation of privacy; (iii) Fingerprints, retina, and iris patterns were sufficient for identification, making DNA, voice waves, and other biometric data unnecessary; (iv) Collecting location data assumed permanent residence, which was impractical due to mobility driven by education, employment, and other factors. The State could have summoned individuals when needed, making GPS tracking redundant and raising privacy concerns.
The State reviewed the Maisha Namba further. The Maisha Namba project comprises several interconnected elements, including the Maisha Namba, the Maisha Card, the Digital ID, and the National Population Master Register.[2] The UPI is part of digital public goods. Unique Personal Identifiers (UPIs), such as digital national identification numbers, are essential in modern economies and can be substantiated as a digital public good grounded in economic principles and the rectification of market failures. From an economic standpoint, public goods are characterized by their non-rivalry and non-excludability. While personal data is excludable, a well-administered UPI system demonstrates the characteristics of a public good when issuing a unique personal identifier to an individual, which does not preclude others from obtaining one. Broad access to the Unique Personal Identifier renders exclusion inefficient, especially when associated with publicly provided healthcare and social protection services. These digital public goods can only be provided by governments because private enterprises have minimal incentive to supply universal digital identification. This leads to market failures, as the marginal cost cannot exceed the marginal benefits, which fails to justify capital deployment by private entities and enterprises. Even if the potential for private sector development of these goods exists, monopoly risks arise when these unique identity services are concentrated in private hands, creating barriers to access and increasing costs because Monopolies can restrict output, allowing them to charge prices higher than those in a competitive market unlike firms in perfectly competitive markets, a monopolist can reduce the quantity supplied to raise prices, thereby maximizing profits at the expense of consumer surplus.[3] Private sector firms lack the concrete perpetuity protections that governments possess, which can help them withstand the test of time with minimal failures. Coordination failures occur in fragmented identity systems, resulting in duplication and inefficiencies, while privacy and data security concerns require government oversight. A state-provided UPI system mitigates these risks by ensuring efficiency, widespread accessibility, and enhanced data protection, justifying public sector involvement.
The purpose of this blog is to critically review the policy changes and key issues that arise from the introduction of the Unique Personal Identifier (UPI) in Kenya.
As a public good, the Unique Personal Identifier (UPI) would transform Kenya’s identification process. This 14-digit identifier, assigned at birth and retained throughout life, consolidates various identification numbers, including the Social Health Insurance Fund Number and the Personal Identification Number issued by the Kenya Revenue Authority (KRA), National Social Security Fund, amongst others, given to any Kenyan throughout their life. By establishing a unified identity system from birth to adulthood, the UPI simplifies identity verification processes and significantly enhances service delivery efficiency, providing credibility about the system’s effectiveness and removing any loopholes on duplication while giving the system advantages of a digital database that includes retrievability.
Another change is the replacement of the old laminated second-generation ID cards with the new Maisha Card.[4] The Registration of Persons (Amendment) Rules, 2024, provide that the identity card issued under section 9 of the Registration of Persons Act shall consist of an electronic card set out in the first schedule to these rules and also that the electronic card issued under this Regulation may also be presented in digital or virtual form.[5] The recently introduced Maisha Card signifies an advancement over the previous identification type, which was characterized by a laminated design. In contrast, the new Maisha Card is constructed from durable polycarbonate material, enhancing its wear and tear resistance. This development reflects the government of Kenya’s commitment to improving the card’s longevity, ensuring its capacity to endure the rigors of daily usage (rugged use). The card also incorporates advanced biometric security features and an embedded encrypted chip, both aimed at enhancing the safety and reliability of personal identification.
Given that UPI is a digital public good, the Maisha Digital ID is expected to introduce a virtual identity verification system allowing individuals to validate their unique personal identities using QR code technology. This aspect of the digital ID is anticipated to facilitate seamless access to online government services without needing a physical card, improving convenience and reducing bureaucratic inefficiencies.[6] The Ministry of Interior claims it also provides an additional layer of security, as it can only be accessed with the user’s unique QR code, reducing the risk of identity theft.[7]
Another feature of the new Maisha number system is the establishment of a centralized National Population Master Register. The Registration of Persons Act mandates the compilation of the National Register as a database that consolidates identity records from various government institutions, including civil registration and data from all agencies that collect government information to provide services, such as the NSSF. The goal of setting up the system was to minimize duplication and inefficiencies in data management so the centralized register could enhance the accuracy and reliability of national identity records. This improvement would ultimately lead to better service delivery in both public and private sectors and serve as a comprehensive database for population statistics and planning.
Key Issues
The Registration of Persons (Amendment) Rules, 2024, addresses the more significant scope of data collection raised in the IEA Kenya study by limiting the data collected to include (a) facial, thumb, and fingerprint biometric data in a prescribed electronic or digital device; thumb and fingerprint impressions, and excluding retina and iris patterns, DNA, voice waves, and hand and earlobe geometry as before anticipated. This practice is beneficial.
Another concern the IEA Kenya raised was for the relevant government agency to ensure that data protection issues, such as vulnerability to identity theft, identification without consent, identity correlation across domains, and illegal tracking of individuals, are addressed before the rollout. If the state fails to address these concerns, the constitutional safeguards for the right to privacy will be eroded. Some suggestions to resolve this problem included tailored laws to tackle the unique challenges posed by digital identity systems, raising public awareness, and civic education to ensure citizens are informed about their rights and the implications of the new system, which is essential for voluntary uptake given the low public trust in Kenya about the conduct of public entities. Another solution includes implementing measures to prevent discrimination and ensure that all communities are considered in the system’s design, especially given the significant digital divide in the country. Moreover, there is limited information about the investments made by the Government of Kenya through public budgets to safeguard data from hacking, infiltration, and identity theft. No established protocols exist for accessing data within government agencies while adhering to the Constitutional requirements that demand judicial oversight, ensuring that a judicial officer reviews such requests.
Conclusion
The Maisha Namba digital public goods system is meant to significantly advance Kenya’s identity management by streamlining verification processes, enhancing security, and improving service delivery. The Registration of Persons (Amendment) Rules, 2024, have addressed privacy concerns by limiting biometric data collection, but serious risks like identity theft and unauthorized surveillance still exist. To foster public trust and encourage voluntary adoption, the government must strengthen legal safeguards, raise public awareness, and promote inclusivity. However, issues regarding whether the necessary investments, protocols to safeguard data, privacy concerns, and access discrimination have been resolved are unclear to the policy or execution teams.
References
[1] Kemboi, Leo Kipkogei, and Jackline Kagume. “Analysis of the Proposed Implementation of a Unique Personal Identifier System in Kenya: Comparative Perspectives – IEA Kenya.” IEA Kenya, 2023. https://ieakenya.or.ke/download/analysis-of-the-proposed-implementation-of-a-unique-personal-identifier-system-in-kenya-comparative-perspectives/.
[2] Walubengo, John. “Understanding Maisha Namba: Kenya’s New Digital Identity System.” Kictanet.or.ke, November 10, 2023. https://www.kictanet.or.ke/understanding-maisha-namba-kenyas-new-digital-identity-system/.
[3] Asmundson, Irena. “Econometrics: Making Theory Count – back to Basics Compilation Book – IMF Finance & Development Magazine.” www.imf.org, n.d. https://www.imf.org/external/pubs/ft/fandd/basics/12_supply-demand.htm.
[4] Directorate of Immigration. “Issuance of Maisha Card IDs.” Directorate of Immigration Services, November 14, 2024. https://immigration.go.ke/issuance-of-maisha-card-ids/.
[5] Ministry of Interior. “The Registration of Persons (Amendment) Rules, 2024,” 2024. https://www.interior.go.ke/sites/default/files/2024-05/Registration%20of%20Persons%20Rules%2C%202024%20%281%29.pdf.
[6] Ecitizen. “Digital ID.” Ecitizen.go.ke, 2025. https://did.ecitizen.go.ke/.
[7] Aratek. “The New Kenyan ID Card: Maisha Namba Explained.” Aratek.co, 2024. https://www.aratek.co/news/the-new-kenyan-id-card-maisha-namba-explained.
More Blogs
Why Policies Limiting Early Access to Retirement Savings are Misguided
Among the most concerning things in Kenya today is the relentless march of the state through laws and regulations and into areas that result in reduced autonomy of citizens. This march of the nanny state is predicated on the view that state agencies care for and know better than the citizen. In other words, citizens […]
Newly Proposed State Corporation Reforms: A Necessary Fix or another False Start?
The 2025 Cabinet-approved State Corporation Reforms Plan has detailed comprehensive changes in the structure and governance of state-owned enterprises (SOEs) in Kenya. The plan, which involves mergers, dissolutions, restructuring, and declassification of various entities, is framed as a necessary intervention to enhance efficiency and alleviate fiscal pressures. However, beyond the technicalities, it raises significant legal […]
Tax 101: Tariffs are taxes
There is a big global debate on tariffs, their effects, and who pays for them, creating misconceptions. The broader trade strategy premised on Tariffs reflects a worldview rooted in 19th-century mercantilism, emphasizing protectionism and an aggressive use of tariffs.[1] The misconception that tariffs aren’t taxes stems from several factors. Framing plays a significant role. Tariffs […]
Law and Economics of Occupational Licensing: The Case of Law Profession
Occupational licensing is widespread in Kenya, particularly in professions such as law and medicine, and it sparks debate in law and economics. In Kenya, occupational licensing is provided for through a set of statutes. This has implications for markets of legal service provision, which we discuss in this blog. Why is occupational licensing now a […]
Mr. Trump and Kenya’s Macro
It has always been difficult to tie Mr. Trump’s statements to his subsequent policy actions. That fact qualifies any certainty in discerning his implications for Kenya’s macro now. But in three areas, the Kenyan macroeconomic authorities should be on high alert. The Kenya Shilling For much of 2024, the Central Bank of Kenya (CBK)has been […]
Tracking Maisha Namba – Digital UPI: What is changing, and what are the key issues?
| Post date: Wed, Mar 12, 2025 |
| Category: Unique Personal Identifier |
| By: Leo Kipkogei Kemboi, |
Maisha Namba refers to the unique personal identification number assigned to every Kenyan citizen upon registration, usually at birth. This number serves as a lifelong personal identity number.
In this study by the IEA Kenya, the author examined the proposed implementation of a unique personal identifier system in Kenya and compared that to India’s Aadhar and Social Security Numbers issued by the government of the United States.[1] The study examined the State of Play in providing public goods, including the National Education Management Information System (NEMIS) applied in education, and how it interfaces with the Unique Personal Identifier.
The paper discussed the following issues: (i) The State had not provided a written policy outlining the importance of a Unique Personal Identifier (UPI). However, the potential benefits of the UPI as a public good could have encouraged voluntary adoption without enforcing a legal mandate, offering a promising future for identification in Kenya; (ii) The scope of data collection needed review for several reasons. The Registration of Persons Act mandated the collection of biometric data, including fingerprints, retina and iris patterns, DNA, voice waves, and hand and earlobe geometry. Collecting this data without clarifying its intended use could be deemed unconstitutional and a violation of privacy; (iii) Fingerprints, retina, and iris patterns were sufficient for identification, making DNA, voice waves, and other biometric data unnecessary; (iv) Collecting location data assumed permanent residence, which was impractical due to mobility driven by education, employment, and other factors. The State could have summoned individuals when needed, making GPS tracking redundant and raising privacy concerns.
The State reviewed the Maisha Namba further. The Maisha Namba project comprises several interconnected elements, including the Maisha Namba, the Maisha Card, the Digital ID, and the National Population Master Register.[2] The UPI is part of digital public goods. Unique Personal Identifiers (UPIs), such as digital national identification numbers, are essential in modern economies and can be substantiated as a digital public good grounded in economic principles and the rectification of market failures. From an economic standpoint, public goods are characterized by their non-rivalry and non-excludability. While personal data is excludable, a well-administered UPI system demonstrates the characteristics of a public good when issuing a unique personal identifier to an individual, which does not preclude others from obtaining one. Broad access to the Unique Personal Identifier renders exclusion inefficient, especially when associated with publicly provided healthcare and social protection services. These digital public goods can only be provided by governments because private enterprises have minimal incentive to supply universal digital identification. This leads to market failures, as the marginal cost cannot exceed the marginal benefits, which fails to justify capital deployment by private entities and enterprises. Even if the potential for private sector development of these goods exists, monopoly risks arise when these unique identity services are concentrated in private hands, creating barriers to access and increasing costs because Monopolies can restrict output, allowing them to charge prices higher than those in a competitive market unlike firms in perfectly competitive markets, a monopolist can reduce the quantity supplied to raise prices, thereby maximizing profits at the expense of consumer surplus.[3] Private sector firms lack the concrete perpetuity protections that governments possess, which can help them withstand the test of time with minimal failures. Coordination failures occur in fragmented identity systems, resulting in duplication and inefficiencies, while privacy and data security concerns require government oversight. A state-provided UPI system mitigates these risks by ensuring efficiency, widespread accessibility, and enhanced data protection, justifying public sector involvement.
The purpose of this blog is to critically review the policy changes and key issues that arise from the introduction of the Unique Personal Identifier (UPI) in Kenya.
As a public good, the Unique Personal Identifier (UPI) would transform Kenya’s identification process. This 14-digit identifier, assigned at birth and retained throughout life, consolidates various identification numbers, including the Social Health Insurance Fund Number and the Personal Identification Number issued by the Kenya Revenue Authority (KRA), National Social Security Fund, amongst others, given to any Kenyan throughout their life. By establishing a unified identity system from birth to adulthood, the UPI simplifies identity verification processes and significantly enhances service delivery efficiency, providing credibility about the system’s effectiveness and removing any loopholes on duplication while giving the system advantages of a digital database that includes retrievability.
Another change is the replacement of the old laminated second-generation ID cards with the new Maisha Card.[4] The Registration of Persons (Amendment) Rules, 2024, provide that the identity card issued under section 9 of the Registration of Persons Act shall consist of an electronic card set out in the first schedule to these rules and also that the electronic card issued under this Regulation may also be presented in digital or virtual form.[5] The recently introduced Maisha Card signifies an advancement over the previous identification type, which was characterized by a laminated design. In contrast, the new Maisha Card is constructed from durable polycarbonate material, enhancing its wear and tear resistance. This development reflects the government of Kenya’s commitment to improving the card’s longevity, ensuring its capacity to endure the rigors of daily usage (rugged use). The card also incorporates advanced biometric security features and an embedded encrypted chip, both aimed at enhancing the safety and reliability of personal identification.
Given that UPI is a digital public good, the Maisha Digital ID is expected to introduce a virtual identity verification system allowing individuals to validate their unique personal identities using QR code technology. This aspect of the digital ID is anticipated to facilitate seamless access to online government services without needing a physical card, improving convenience and reducing bureaucratic inefficiencies.[6] The Ministry of Interior claims it also provides an additional layer of security, as it can only be accessed with the user’s unique QR code, reducing the risk of identity theft.[7]
Another feature of the new Maisha number system is the establishment of a centralized National Population Master Register. The Registration of Persons Act mandates the compilation of the National Register as a database that consolidates identity records from various government institutions, including civil registration and data from all agencies that collect government information to provide services, such as the NSSF. The goal of setting up the system was to minimize duplication and inefficiencies in data management so the centralized register could enhance the accuracy and reliability of national identity records. This improvement would ultimately lead to better service delivery in both public and private sectors and serve as a comprehensive database for population statistics and planning.
Key Issues
The Registration of Persons (Amendment) Rules, 2024, addresses the more significant scope of data collection raised in the IEA Kenya study by limiting the data collected to include (a) facial, thumb, and fingerprint biometric data in a prescribed electronic or digital device; thumb and fingerprint impressions, and excluding retina and iris patterns, DNA, voice waves, and hand and earlobe geometry as before anticipated. This practice is beneficial.
Another concern the IEA Kenya raised was for the relevant government agency to ensure that data protection issues, such as vulnerability to identity theft, identification without consent, identity correlation across domains, and illegal tracking of individuals, are addressed before the rollout. If the state fails to address these concerns, the constitutional safeguards for the right to privacy will be eroded. Some suggestions to resolve this problem included tailored laws to tackle the unique challenges posed by digital identity systems, raising public awareness, and civic education to ensure citizens are informed about their rights and the implications of the new system, which is essential for voluntary uptake given the low public trust in Kenya about the conduct of public entities. Another solution includes implementing measures to prevent discrimination and ensure that all communities are considered in the system’s design, especially given the significant digital divide in the country. Moreover, there is limited information about the investments made by the Government of Kenya through public budgets to safeguard data from hacking, infiltration, and identity theft. No established protocols exist for accessing data within government agencies while adhering to the Constitutional requirements that demand judicial oversight, ensuring that a judicial officer reviews such requests.
Conclusion
The Maisha Namba digital public goods system is meant to significantly advance Kenya’s identity management by streamlining verification processes, enhancing security, and improving service delivery. The Registration of Persons (Amendment) Rules, 2024, have addressed privacy concerns by limiting biometric data collection, but serious risks like identity theft and unauthorized surveillance still exist. To foster public trust and encourage voluntary adoption, the government must strengthen legal safeguards, raise public awareness, and promote inclusivity. However, issues regarding whether the necessary investments, protocols to safeguard data, privacy concerns, and access discrimination have been resolved are unclear to the policy or execution teams.
References
[1] Kemboi, Leo Kipkogei, and Jackline Kagume. “Analysis of the Proposed Implementation of a Unique Personal Identifier System in Kenya: Comparative Perspectives – IEA Kenya.” IEA Kenya, 2023. https://ieakenya.or.ke/download/analysis-of-the-proposed-implementation-of-a-unique-personal-identifier-system-in-kenya-comparative-perspectives/.
[2] Walubengo, John. “Understanding Maisha Namba: Kenya’s New Digital Identity System.” Kictanet.or.ke, November 10, 2023. https://www.kictanet.or.ke/understanding-maisha-namba-kenyas-new-digital-identity-system/.
[3] Asmundson, Irena. “Econometrics: Making Theory Count – back to Basics Compilation Book – IMF Finance & Development Magazine.” www.imf.org, n.d. https://www.imf.org/external/pubs/ft/fandd/basics/12_supply-demand.htm.
[4] Directorate of Immigration. “Issuance of Maisha Card IDs.” Directorate of Immigration Services, November 14, 2024. https://immigration.go.ke/issuance-of-maisha-card-ids/.
[5] Ministry of Interior. “The Registration of Persons (Amendment) Rules, 2024,” 2024. https://www.interior.go.ke/sites/default/files/2024-05/Registration%20of%20Persons%20Rules%2C%202024%20%281%29.pdf.
[6] Ecitizen. “Digital ID.” Ecitizen.go.ke, 2025. https://did.ecitizen.go.ke/.
[7] Aratek. “The New Kenyan ID Card: Maisha Namba Explained.” Aratek.co, 2024. https://www.aratek.co/news/the-new-kenyan-id-card-maisha-namba-explained.
More Blogs
Why Policies Limiting Early Access to Retirement Savings are Misguided
Among the most concerning things in Kenya today is the relentless march of the state through laws and regulations and into areas that result in reduced autonomy of citizens. This march of the nanny state is predicated on the view that state agencies care for and know better than the citizen. In other words, citizens […]
Newly Proposed State Corporation Reforms: A Necessary Fix or another False Start?
The 2025 Cabinet-approved State Corporation Reforms Plan has detailed comprehensive changes in the structure and governance of state-owned enterprises (SOEs) in Kenya. The plan, which involves mergers, dissolutions, restructuring, and declassification of various entities, is framed as a necessary intervention to enhance efficiency and alleviate fiscal pressures. However, beyond the technicalities, it raises significant legal […]
Tax 101: Tariffs are taxes
There is a big global debate on tariffs, their effects, and who pays for them, creating misconceptions. The broader trade strategy premised on Tariffs reflects a worldview rooted in 19th-century mercantilism, emphasizing protectionism and an aggressive use of tariffs.[1] The misconception that tariffs aren’t taxes stems from several factors. Framing plays a significant role. Tariffs […]
Law and Economics of Occupational Licensing: The Case of Law Profession
Occupational licensing is widespread in Kenya, particularly in professions such as law and medicine, and it sparks debate in law and economics. In Kenya, occupational licensing is provided for through a set of statutes. This has implications for markets of legal service provision, which we discuss in this blog. Why is occupational licensing now a […]
Mr. Trump and Kenya’s Macro
It has always been difficult to tie Mr. Trump’s statements to his subsequent policy actions. That fact qualifies any certainty in discerning his implications for Kenya’s macro now. But in three areas, the Kenyan macroeconomic authorities should be on high alert. The Kenya Shilling For much of 2024, the Central Bank of Kenya (CBK)has been […]