About the Client 

The Samoa Bureau of Statistics (SBS), in collaboration with the National ID Steering Committee, led the development of a strategic roadmap for the country’s national digital identity ecosystem. This initiative was funded through a World Bank-administered Pacific Regional Infrastructure Facility (PRIF) multi-donor trust fund, reflecting strong international support for Samoa’s digital transformation. 

As the lead agency for civil registration and population data, SBS played a central role in positioning identity as a cornerstone for inclusive governance, disaster resilience, and digital public service delivery. 

The initiative aligned with Samoa’s broader commitment to improving governance, strengthening disaster response capacity, and achieving inclusive service delivery through digital transformation. By embedding identity as a strategic enabler, the project laid the groundwork for long-term, cross-sectoral benefits – from health and education to financial inclusion and e-governance.  

Challenge 

As a small island developing state facing severe climate threats, Samoa must prepare for a future where mobility, resilience, and digital inclusion are essential. Without a secure, recognized, and portable legal identity, citizens displaced by natural disasters or rising sea levels risk becoming legally invisible – unable to access healthcare, vote, or receive assistance. 

Several systemic challenges stood in the way of building a strong foundation for digital identity: 

• Fragmented Identity Systems: Multiple outdated databases created inefficiencies, gaps in service delivery, and limited trust in existing identity records. 

• Vulnerable Civil Registration Infrastructure: Paper-based records and legacy systems lacked continuity, completeness, and accuracy. 

• Exclusion Risks in Rural Areas: Citizens in remote villages and outer islands faced barriers to registration and services. 

• Limited Technical and Procurement Capacity: Institutions required expert support to design and procure a secure, interoperable identity solution aligned with global standards. 

In this context, Samoa’s national identity strategy became more than a digital project – it was an investment in inclusion, continuity, and human dignity.  

Additionally, the absence of a foundational identity system limited the government’s ability to coordinate social programs, manage population data in real time, and respond effectively to national emergencies – issues made more urgent in the face of climate vulnerability and regional mobility. 

Solution and Benefits

To address these challenges, the Government of Samoa engaged NRD Companies to develop a comprehensive strategy for its digital identity ecosystem, anchored in strong civil registration and institutional ownership. 

Key deliverables included: 

• Strategic Roadmap: A phased, three-year plan for designing, adopting, and rolling out a secure and inclusive digital identity system aligned with Samoa’s development goals. 

• System and Legal Assessment: A deep-dive review of civil registration processes, identity infrastructure, institutional roles, and legal frameworks. 

• Procurement Support: Development of detailed technical specifications and evaluation criteria for civil registration and digital ID systems, along with bid evaluation support. 

• Capacity Building: Structured training and advisory services to equip national stakeholders with the tools and knowledge to manage and sustain the system. 

Throughout the process, NRD Companies worked closely with national stakeholders to ensure full alignment with Samoa’s digital government agenda and to transfer knowledge for long-term sustainability. The approach emphasized co-creation, stakeholder engagement, and readiness for future integration with broader public service platforms. 

The strategy had to ensure that Samoa did not just adopt digital tools – but built lasting institutional capacity, protected citizen rights, and created a future-ready identity foundation. 

NRD Companies’ Services Provided

As a trusted partner in foundational identity reform, NRD Companies provided a full suite of advisory services to guide Samoa’s strategic transition toward a secure and inclusive digital identity system. 

• Strategy Development: Creation of a national identity ecosystem strategy, aligned with international best practices and local needs. 

• Institutional Diagnostics: Review of Samoa’s civil registration and identity systems, data flows, and legal environment. 

• Procurement Advisory: Support in preparing system specifications, tender documentation, and evaluation frameworks. 

Digital Identity Framework Design: Definition of key building blocks required for an inclusive, secure, and interoperable identity system. 

Expected Results 

With the successful implementation of the strategy and follow-on procurement, Samoa was well-positioned to achieve the following outcomes: 

• Universal Legal Identity Coverage: Every citizen, including those in remote or underserved areas, should be able to obtain a secure and verifiable legal identity. 

• Improved Access to Public Services: Citizens should gain easier access to healthcare, education, financial services, and government support. 

• Enhanced Digital Government Readiness: A trusted identity system should enable the delivery of integrated digital services and secure data exchange across sectors. 

• Greater Institutional Trust and Efficiency: Reliable identity verification should support voter registration, financial inclusion, social protection, and secure online transactions. 

These outcomes were expected to strengthen national resilience, promote inclusive development, and ensure that no one would be left behind in Samoa’s digital journey. 

Replicability 

Samoa’s approach provides a replicable model for other small island developing states and countries with complex geographic or institutional challenges. The advisory model, strategic sequencing, and focus on local ownership reflect NRD Companies’ proven methodology for identity system transformation. 

SDGs Addressed 

SDG 9: Industry, Innovation, and Infrastructure 

By developing a modern and interoperable digital identity ecosystem, the project strengthened Samoa’s foundational digital infrastructure. It enabled more efficient government operations, supported innovation in service delivery, and laid the groundwork for resilient digital transformation aligned with national priorities. 

SDG 10: Reduced Inequalities 

The strategy promoted inclusion by ensuring that all citizens – especially those in rural and outer island communities – had access to legal identity and essential public services. This helped close the digital divide and ensured that no one was left behind in Samoa’s development journey. 

SDG 16: Peace, Justice, and Strong Institutions 

By strengthening civil registration systems and establishing secure digital identity, the project enhanced institutional capacity, transparency, and accountability. It supported citizen trust and ensured that individuals were visible and recognized within legal and governance frameworks. 

SDG 17: Partnerships for the Goals 

The project exemplified effective collaboration between international donors, national institutions, and expert technical partners. This partnership model demonstrated the power of coordinated action in driving sustainable digital development and identity inclusion. 

Through this strategy, Samoa took a decisive step toward building a future where every individual was counted, protected, and empowered to participate fully in society – regardless of geography or circumstance.