FROM EXCLUSION TO IDENTITY:
Baidoa’s fast-tracked, cost-effective and scalable legal ID registration model for IDPs
In Baidoa, a one-month pilot has demonstrated that Somalia can bring legal identity to displaced and marginalized communities at scale, quickly and at remarkably low operating cost, when done collaboratively. With only two enrollment centres and a lean facilitation model, the initiative enabled more than 38,000 internally displaced people to obtain their national ID, achieving an average cost of under one dollar per registration.
This proof of concept now offers a clear pathway for expanding legal identity to over 3.5 million internally displaced persons (IDPs) living across the country.
A government-led process
After 32 years of absence of a unified national ID, a historic milestone was achieved in September 2023 when the Prime Minister of the Federal Government of Somalia officially launched the Somali National ID system. Immediately after the launch, the National Identification Registration Authority (NIRA) commenced pilot registrations targeting both government employees and private-sector staff. The first enrolment centres were opened in Banadir Region, marking the beginning of a nationwide rollout. With the consistent institutional support of UNDP, Somalia’s digital legal ID rollout has strengthened not only service delivery but also contributed to the national cohesion. As of November 2025, over 1 million Somalis have been registered with biometric digital identity, with 47% female enrolment achieved through gender-responsive protocols.
“The NIRA system is processing between 12,000 and 15,000 registrations daily, demonstrating robust operational capacity. We are also intensifying outreach and expansion by opening more permanent centers nationwide and deploying mobile registration teams to reach underserved and remote populations. Early mobile deployments have enabled 38,000+ IDPs to enrol in priority displacement sites in Baidoa, while diaspora enrolment centres in 30+ embassies worldwide have extended services to Somalis abroad,” said NIRA’s Director General, Abdiwali Ali Abdulle (Timacadde).
Making IDPs benefit from the digital transformation
The national identification system is one of the key deliverables under the implementation of the National Solutions Pathways Action Plan and is also a core deliverable under the National Transformation Plan (NTP). Its primary objective is to ensure that internally displaced persons (IDPs) have access to legal documentation and are fully recognized through a national ID.
The National Solutions Pathways Action Plan identifies 33 priority cities where durable solutions for IDPs must be implemented, with a national target of reaching 1,000,000 internally displaced persons.
“Baidoa’s systematic large-scale enrollment of IDPs into the national identification system represents a significant milestone, demonstrating that we are well on track under the national solutions agenda,” says Zahra Abdi Mohamed, Director General, National Centre for Rural Development and Durable Solutions.
As part of the durable solutions programmme, the government has made it mandatory for beneficiaries of solutions-oriented projects to obtain a national ID. This strengthens identification, enhances accountability, and ensures that IDPs can access services as full national citizens.
Starting in January 2026, access to key services, including opening a bank account, domestic travel, and other essential public and private services, will be linked to possession of a national ID. “This makes the national ID a cornerstone for legal identity, protection, and access to rights and services. It also unlocks opportunities for livelihoods, financial inclusion, freedom of movement, recovery, and long-term development, thereby restoring dignity and promoting self-reliance,” says Zahra.
This shift, according to Zahra, also supports the transition away from parallel and fragmented humanitarian registration systems towards a more sustainable, government-led approach.
Baidoa’s registration drive
With the support of Somalia Joint Fund (SJF), UNDP conducted an ID governance assessment in 2024 and recommended a number of use-cases for ID registration with IDPs being one of the most critical use-case for a quick uptake. Following the use-case approach, Baidoa was selected as a pilot. Baidoa is one of the districts of Southwest State which hosts the highest number of IDPs — estimated be around 500,000. They were displaced over years due to various reasons, including drought, floods, conflict and insecurity.
To ensure displaced communities are not left behind in the national ID registration process, UNDP, in close collaboration with the Federal Government, Office of President of South West State, NIRA and Baidoa Municipality, supported a targeted ID registration campaign focused on IDPs in Baidoa. This initiative was funded through UNDP’s flexible Funding Windows contributed by Luxembourg, the Republic of Korea and Denmark.
Rather than expecting displaced families to travel to distant offices, the team brought registration points directly to IDP sites and nearby public spaces. Local authorities and community volunteers mobilized camp residents, while NIRA deployed trained staff, equipment and biometric technology.
The result: turnout far exceeded initial projections. The campaign was designed for 25,000 people but reached 38,026, and demand kept rising, with daily registrations surpassing 1,000 people.
The scale and speed of ID registration for IDPs achieved in Baidoa show what is possible when national systems and local leadership work together, and this is a model that can be replicated in other districts,” says the Mayor of Baidoa, Abdullahi Ali Watiin.
Why IDPs came forward in such high numbers
Several factors created an unusual level of momentum. The first factor was the proactive role played by Baidoa Municipality in mobilizing the community. “We treated the exercise as a local priority, rapidly mobilized communities and led awareness drives within camps,” said Mayor Watiin. This ensured a sense of ownership as local authorities were fully involved in the implementation, building trust and encouraging families to register, explains Abdirahman Aden, coordinating the drive from UNDP’s side.
Moreover, according to the Mayor, there were clear incentives for IDPs. In addition to being free-of-charge and easy to register, national IDs will help IDPs to access their rights and entitlements for travel, education, social protection, banking and other public services and will thus facilitate their integration in the urban community.
Crucially, registration signalled recognition: IDPs were engaging with the state not as aid recipients, but as citizens with rights.
Baidoa also functioned as a live use-case experiment, testing whether proximity-based registration, trusted local leadership, and clear service incentives could accelerate uptake among displaced populations. Early results suggest this combination may be critical for linking digital ID to downstream services such as social protection, mobility, and financial inclusion.
One IDP woman described the impact simply: “We know this document will help us access services. We were very happy the registration came close to our camp.”
Proof of concept: A Scalable model for national use
The pilot validated a community-based registration model that works:
· It is fast — average of 1,000 enrollments per day.
· It is cost-effective — about half a dollar per ID operation cost when resources are shared with NIRA infrastructure. The regular registration fee ($5) was waved.
· It is scalable — can be deployed in other IDP-dense areas with minimal setup.
· It is inclusive — helps reach those excluded due to distance, cost or lack of information.
Successful enrollment also strengthens state-building efforts. A verified ID system reduces duplication and fraud, and improves transparency in service delivery and strengthens sectors such as education, health, banking and social protection.
“Baidoa pilot supported by UNDP demonstrates that Somalia’s national ID system is not only operational at scale, but capable of reaching populations that have long been excluded. By integrating mobile registration, local leadership, and a secure digital platform, we are extending legal identity to displaced citizens and strengthening trust between the state and its people,” says Abdiweli Ali Abdullah, Director General, National Identification and Registration Authority (NIRA)
What comes next: A clear investment opportunity
Baidoa alone hosts more than 500,000 IDPs who remain outside the national ID system. The pilot reached 38,026 of them in just one month. According to UN records, there are over 3.5 million IDPs nationwide as of September 2025 (OCHA 2025). Scaling up this model would allow Somalia to register the remaining population rapidly, turning a successful experiment into a transformative national programme.
The architecture is in place. NIRA’s legal and digital systems are strengthened under UNDP’s governance support. Local authorities are equipped and motivated to lead community outreach. And a tested, low-cost operational model is ready to be scaled up.
What is now needed is targeted investment to replicate this approach in additional sites and sustain accelerated registration over the coming months.
A unique chance to deliver at scale
This Baidoa pilot has already shown what is achievable: fast, affordable and equitable access to legal identity for displaced communities.
“It is a model with national relevance, and a compelling opportunity for partners seeking high-impact, scalable solutions that strengthen institutions, empower vulnerable populations and advance Somalia’s transition toward more transparent, service-oriented governance,” says Ali Yusuf Hosh, Minister of Interior and Federal Affairs and Reconciliation.
“Legal identity is the gateway to several public services and participation. Reaching 38,000 displaced people in one month shows that Somalia can close the inclusion gap faster than many imagined. This provides a great opportunity to scale up and expand the successful campaign to meet the national target to register all Somalis in the digital legal ID system,” says Lionel Laurens, Resident Representative, UNDP Somalia.
With the right support, Somalia can move from a successful pilot to a nationwide breakthrough, ensuring that no displaced family remains invisible in the country’s future.
Read more about UNDP’s work in Somalia: www.undp.org/somalia
