From the outset, the United Kingdom Identity Cards Bill was controversial. The Bill was defeated on five occasions in the House of Lords before a compromise was reached which enabled the Bill to be passed two years after its introduction. The Conservatives and Liberal Democrats still opposed the Cards Act 2006 (UK) (‘Identity Cards Act ’) and the National Identity Scheme (‘NIS’) it established, and the Conservatives announced that they would repeal the legislation if they won the 2010 election.

The intention expressed at the time the legislation was enacted was that the NIS would eventually be compulsory for all United Kingdom residents over 16 years of age. Former Home Secretary Charles Clarke reportedly said the scheme could be made compulsory when around 80 percent of the population was registered. The scheme was to be used by both the public and private sectors for transactions.

From 30 November 2009, the scheme was phased-in on a voluntary basis for British citizens, with full roll-out planned for 2012. From 2011/12 registration on the National Identity Register (‘NIR’) was to be compulsory for all British citizens over the age of 16 years applying for a passport, with a view to registration becoming general in 2017.

As part of their 2010 election campaign, the Liberal Democrats promised to discontinue the NIS.