Following the consultation exercise on entitlement/identity cards launched in July 2002, the government has decided to begin the process of introducing a national identity cards scheme. This is part of a strategy to address growing threats to security and prosperity from illegal immigration and working, organised crime and terrorism, identity theft and fraudulent access to public services. This report outlines the proposed implementation strategy for this process, divided into two stages. The first stage will involve the publication of draft legislation for the introduction of the scheme, and will include establishing a National Identify Register, more secure passports and driving licences based on biometric technology, making a voluntary plain identify card available for those who do not need a passport or driving licence and choose to take the option, and introducing mandatory biometric ID documents for foreign nationals staying in this country, in accordance with European law. The second stage would involved a move to a compulsory card scheme, following Parliamentary approval, technological availability and clarification that it was fully affordable within future agreed spending plans. A separate document which sets out the responses to the consultation exercise and results of surveys on identity cards is also available (Cm 6019, ISBN 0101601921).