Digital ID Overview

overview_background_image

Tonga does not have a digital ID system but there are plans to implement one.[12] Planning and implementation of the digital ID system will be undertaken by the Tongan government in collaboration with international and bilateral development organizations as well as the private sector. [13] The World Bank granted Tonga $4.65 million to support the Tonga Digital Government Support Project which will include the digitization and linking of Tonga’s civil registration and national ID systems.[14] The Project also involves improving internet access across Tonga’s islands.[15] In this update, citizens and residents will be assigned unique national ID numbers through the birth registration system, which would be linked through automated data exchange to other relevant civil information such as marriage and death registration. [16] The digitized national ID card would allow public and private entities to digitally authenticate the identity of a person based on the information in the national identification register, making it a foundational ID. [17] As this system would also enable the delivery of online public services, this digitized national ID would also be a functional ID.[18] Public services that are planned to be a part of Tonga’s digital government include licensing, registration, and taxes.[19] It is unclear whether or not registering for the digitized national ID would be mandatory, however, it is possible given the mandatory nature of the existing paper-based national ID.[20] At this stage, there is insufficient information to assess whether stateless persons, refugees or foreign nationals will be able to access the digital ID.

Under the Digital Government Strategic Framework 2019-2024, Tonga has begun planning the expansion of digital public infrastructure (DPI), which will “promote the use of ICT within Government ministries and agencies”, including through “an aggressive transition from paper-based transactions to digital Government”. [21] One of the objectives of the Framework is to ensure inclusion of all citizens, “including the elderly and citizens with disabilities”.[22] Plans for Tonga’s digital government also include interlinking government agencies, including health, education, and social assistance, among others. [23] The Framework establishes that all government processes and public services will become automated through digitization, however, it is unclear whether people will still be able to access public services without a digital ID once it is rolled out.[24]

Law

law_background_image

Domestic law and policy

There is no definition provided for digital identity in Tonga’s policy or legislation. While a legal framework is yet to be established for digital ID in Tonga, Tonga’s Digital Government Strategic Framework 2019-2024 lays a foundation for the expansion of digital technologies used by the Tongan government, including priorities and objectives for establishing DPI. [25] Drafting of legislation needed to support digital identity, such as a Data Protection & Privacy Bill as well as amendments to the Nationality Identity Card Act and the Birth, Death, Marriages Registration Act, is in progress.[26]

Data Protection

The first Principle of the Digital Government Strategic Framework 2019-2024 is security, emphasizing that personal data protection and privacy is fundamental. [27] The Framework also mentions that it will “enable a far more integrated, shared, accurate, timely, and inclusive information flow within and across all Government agencies”.[28] The Tongan government’s cross-agency data exchange approach has been ad hoc, however, its 2021 Data Exchange Framework establishes plans to create more structure for cross-agency data sharing as a part of the development of Tonga’s digital government.[29] This Framework identifies priorities for ensuring data security, including that “structure, semantics and authorizations must be controlled by the original data owner”.[30]

A legal framework on data protection and privacy in Tonga is yet to be established, but is currently being drafted.[31] Tonga recently enacted its Cybersecurity Bill in 2024, which establishes a framework for securing digital systems to protect against cyber attacks that may compromise data held in digital systems. [32] Under the Nationality Identity Card Act, which relates to the current paper-based system, information in the register of holders of national ID cards may be used by the National Identity Card Office for purposes such as interests of national security, prevention or detection of crime, enforcement of immigration controls, dispensing public services, among others.[33] It is also outlined that in the above mentioned instances, as well as by order of the Supreme Court, personal information collected for the national ID card may also be shared.[34] It is unclear whether registering for a national ID card would place stateless persons at risk of surveillance or detention as a result of legal status. 

International Commitments

As digital ID has not been implemented in Tonga, there is no current violation of the treaties Tonga is party to. Tonga is not a party to treaties specific to digital ID or data privacy and protection. As Tonga continues to develop its digital ID system, it is important to do so in line with its international obligations under the human rights treaties it is party to – the ICERD and CRC. 

Designed to Include?

The Impact of Digital ID and Legal Identity on Citizenship and Nationality Rights

background_image

Based on the definition of ‘resident’ in the Tongan legislation, stateless persons with birth certificates may be included in Tonga’s paper-based national ID scheme.[35] However, there is not enough available information to confirm whether implementation ensures stateless people access to a national ID. While inclusion is mentioned in the Digital Government Strategic Framework, only citizens are mentioned, despite the Tonga Digital Government Support Project referencing ‘residents’.[36] As Tonga continues to plan its digitized national ID system, it is important to ensure that stateless persons continue to have access to legal identity and the services that will be attached to the new digital ID.

1.^

Nationality Identity Card Act (2020) (Tonga).

2.^

‘Civil Registration and Vital Statistics in Tonga’ (Pacific Community and United Nations Children’s Fund (UNICEF) 2021) <https://sdd.spc.int/digital_library/civil-registration-and-vital-statistics-tonga>.

3.^

Births, Deaths and Marriages Registration Act (2020) Article 3 (Tonga).

4.^

‘Data Warehouse’ (UNICEF DATA) <https://data.unicef.org/resources/data_explorer/unicef_f/> accessed 7 November 2023.

5.^

Committee on the Rights of the Child, ‘Concluding Observations on the Initial Report of Tonga’ UN Doc CRC/C/TON/CO/1 (2 July 2019) [29].

6.^

Committee on the Rights of the Child, ‘Concluding Observations on the Initial Report of Tonga’ UN Doc CRC/C/TON/CO/1 (2 July 2019) [29]. 

7.^

Nationality Identity Card Act (2020) Part 3, Article 7(1) (Tonga).

8.^

 Nationality Identity Card Act (2020) Part 3, Article 8 (Tonga). 

9.^

 Nationality Identity Card Act (2020) Part 5, Article 15(1) (Tonga). 

10.^

‘Civil Registration and Vital Statistics in Tonga’ (Pacific Community and United Nations Children’s Fund (UNICEF) 2021) <https://sdd.spc.int/digital_library/civil-registration-and-vital-statistics-tonga>.

11.^

 Nationality Identity Card Act (2020) Part 3, Article 7(2) (Tonga).

12.^

World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

13.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019) 1, <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

14.^

Chris Burt, ‘Tonga Digital Identity Plan Granted $4.65M by World Bank’ (Biometric Update, 22 May 2019) <https://www.biometricupdate.com/201905/tonga-digital-identity-plan-granted-4-65m-by-world-bank> accessed 20 May 2025; World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

15.^

hris Burt, ‘Tonga Digital Identity Plan Granted $4.65M by World Bank’ (Biometric Update, 22 May 2019) <https://www.biometricupdate.com/201905/tonga-digital-identity-plan-granted-4-65m-by-world-bank> accessed 20 May 2025; World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

16.^

World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

17.^

World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

18.^

Chris Burt, ‘Tonga Digital Identity Plan Granted $4.65M by World Bank’ (Biometric Update, 22 May 2019) <https://www.biometricupdate.com/201905/tonga-digital-identity-plan-granted-4-65m-by-world-bank> accessed 20 May 2025; World Bank Group, ‘Tonga - Digital Government Support Project (English)’ para. 28 (April 2019) <https://documents1.worldbank.org/curated/en/473751557713173311/pdf/Tonga-Digital-Government-Support-Project.pdf> accessed 30 November 2024.

19.^

 ‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019) 1, <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

20.^

Nationality Identity Card Act (2020) s 1 (Tonga).

21.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019) 2, <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

22.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019) 22, <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

23.^

Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019) 5, <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

24.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019), <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

25.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019), <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

26.^

Digital Transformation Department, ‘Legislation’ <https://digitaltransformation.gov.to/?page_id=367> accessed 30 November 2024.

27.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019), <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

28.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019), <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.

29.^

‘Tongan Data Exchange Policy and Framework’ (Digital Transformation Department 2021) <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Tonga-Data-Exchange-Framework-final.pdf>.

30.^

‘Tongan Data Exchange Policy and Framework’ (Digital Transformation Department 2021) <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Tonga-Data-Exchange-Framework-final.pdf>.

31.^

Digital Transformation Department, ‘Legislation’ <https://digitaltransformation.gov.to/?page_id=367> accessed 30 November 2024.

32.^

 Edwin Liava’a, ‘Tonga’s New Cyber Laws Modernize Digital Policy but Lack Provisions for Emerging Technologies’ (HackerNoon, 12 May 2025) <https://hackernoon.com/tongas-new-cyber-laws-modernize-digital-policy-but-lack-provisions-for-emerging-technologies> accessed 20 May 2025.

33.^

Nationality Identity Card Act (2020) Part 4, Article 12(1-2) (Tonga).

34.^

 Nationality Identity Card Act (2020) Part 4, Article 13(1) (Tonga). 

35.^

Nationality Identity Card Act (2020) Part 3, Article 8 (Tonga); ‘Civil Registration and Vital Statistics in Tonga’ (Pacific Community and United Nations Children’s Fund (UNICEF) 2021) <https://sdd.spc.int/digital_library/civil-registration-and-vital-statistics-tonga>.

36.^

‘Digital Government Strategic Framework 2019-2024’ (Digital Transformation Department 2019), <https://digitaltransformation.gov.to/wp-content/uploads/2022/08/Digital-Government-Strategic-Framework_final.pdf>.