National Digital Identity and

Government Data Sharing

in Singapore
A Case Study of Singpass and APEX
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 CONTENTS

About ID4D    v

Acknowledgements    vii

Abbreviations    ix

Executive Summary    xiii

1 Introduction    1
1.1 Country Context    1

1.2 The Smart Nation Initiative    2

1.3 Government Technology Agency (GovTech)    3

2 Singapore’s National Digital Identity —

Singpass    5
2.1 Overview of Singpass    5

2.2 Singapore’s Foundational ID System as a Basis for Singpass     7

2.3 History and Evolution of Singpass     9

2.4 Singpass Products and Processes    11

2.5 Key Enablers    22

3 Government Data Sharing Platform —

API Exchange (APEX)    35
3.1 Overview of APEX    35

3.2 How APEX Works    38

3.3 Key Enablers    42

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE i

 4 Impact    45
4.1 Singpass Adoption    45

4.2 API Exchange (APEX) Adoption    45

4.3 Convenience and Cost Savings    45

4.4 Example Use Cases    46

5 The Future of Singpass and API Exchange

(APEX)    51
5.1 Decentralization and Alternative Trust Anchors     51

5.2 Authorization    51

5.3 Expanding the Digital Wallet    51

5.4 Delegation    52

5.5 Cross-Border Interoperability    52

5.6 Expanding APEX for the Private Sector     52

5.7 APEX Moving to the Cloud     52

6 Success Factors and Lessons    53

6.1. Evolution    54

6.2. Prioritizing User Experience    54

6.3. Focusing on Use Cases and Value     54

6.4. Identifying Authoritative Data    55

6.5. Foundational ID    55

6.6. Technology and Required Skillsets    55

6.7. Adopting Technologies Responsibly    56

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

ii
Table of Figures
Figure 1.2.1   Institutional Arrangements for the Smart Nation Initiative . . . . . . . . . . 2
Figure 1.2.2    Smart Nation Initiative Strategic National Projects . . . . . . . . . . . . . . . . 3
Figure 2.1    Singpass Home Screen . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Figure 2.3   Example of an Early Singpass Login Screen Showing a
Username and Password . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Figure 2.4.3   Verify for Face-to-Face Access to Services . . . . . . . . . . . . . . . . . . . . . . 13
Figure 2.4.4   Examples of Myinfo Individual and Myinfo business
Consent Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Figure 2.4.5.1    Illustration of the Face Verify and Face Compare Services
from the Singpass Developer’s Portal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Figure 2.4.5.2    Identiface Used through a Web Browser . . . . . . . . . . . . . . . . . . . . . . . 16
Figure 2.4.6   The Digital ID Card (IC) for Singaporeans in Various Forms
across the Singpass application . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Figure 2.4.7    The Sign Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Figure 2.4.8.1   A COVID-19 Vaccination Certificate Presented from
the Singpass Document Wallet . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Figure 2.4.8.2   Digital Driving License (DL) Stored in the Singpass
Document Wallet in Various States of Validity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Figure 2.4.9   Example of Announcements and Alerts Received
through Notify . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Figure 2.4.10   Corppass Profile in the Singpass application . . . . . . . . . . . . . . . . . . . 21
Figure 2.5.2.1   National Digital Identity (NDI) High-level Architecture . . . . . . . . . . 23
Figure B2.5.2.3.1    Singpass Login Flow (OpenID Connect) . . . . . . . . . . . . . . . . . . . . 26
Figure 2.5.2.5.1    The Singpass app Before and After Redesign . . . . . . . . . . . . . . . . . 27
Figure 2.5.2.5.2  Advertisements Promoting the Refreshed Singpass Brand . . 28
Figure 2.5.2.5.3   Examples of Buttons from the New Design System . . . . . . . . . . 29
Figure B2.5.2.5.1   Working with Visually Impaired Users during Accessibility
Testing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Figure B2.5.2.5.2   One Singpass, Multiple Languages . . . . . . . . . . . . . . . . . . . . . . . . 30
Figure 2.5.3.2    The Singpass API Developer Portal and Three-Step
Process for Onboarding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Figure 2.5.3.3.1   Developer Tools: Signature Verifier . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Figure B3.1­  Illustration of How an API Gateway Works . . . . . . . . . . . . . . . . . . . . . . . 36
Figure 3.1   Screenshot Example of the APEX API Library . . . . . . . . . . . . . . . . . . . . . . . 36
Figure 3.2.1    Overview of APEX Flow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Figure 3.2.4   APEX and Myinfo Flow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Figure 4.4.1   Example of How Myinfo Can Be Used to Apply for a Credit Card
Instantly . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
Figure 4.4.4    Accessing Financial Data with MyMoneySense
and SGFinDex . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

iii
 Table of Boxes
Box 2.2.1   Additional Use Cases and Protections for National Registration
Identity Card (NRIC) Numbers and Foreign Identification Numbers (FIN) . . . . . . . 7
Box 2.2.2    The National Registration Identity Card (NRIC) . . . . . . . . . . . . . . . . . . . . . . . 8
Box 2.5.2.3   Technical Authentication Flow for Singpass . . . . . . . . . . . . . . . . . . . . . . 26
Box 2.5.2.5   Designing for Accessibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Box 3.1  What is an Application Programming Interface (API) . . . . . . . . . . . . . . . . 36
Box 3.2   Comparing APEX to the X-Road Government Service Bus
Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

Table of Tables
Table 2.3   Timeline of Major Singpass and API Exchange (APEX) Events . . . . . . . 10
Table 2.5.2.1   National Digital Identity (NDI) High-Level Architecture
Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Table B3.1   Comparison of APEX and X-Road Approaches to Data Sharing . . . 37

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

iv
 ABOUT ID4D

The World Bank Group’s Identification for Development (ID4D) initiative combines
global knowledge, cross-sectoral expertise, financial and technical assistance,
and partnerships to help countries realize the transformational potential of iden-
tification and civil registration. The goal of ID4D is to accelerate inclusive growth
and the achievement of a wide range of development outcomes by enabling
all people to exercise their rights and to access more and better services. The
work of ID4D is made possible through support from the Bill & Melinda Gates
Foundation, the Norwegian Agency for Development Cooperation, the Omidyar
Network, and the governments of France and the United Kingdom

To find out more about ID4D, visit https://id4d.worldbank.org/

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE v

 ACKNOWLEDGEMENTS

This case study was authored by Adam Cooper, under the supervision of
Jonathan Marskell (World Bank) and Cheow Hoe Chan (Singapore Government
Technology Agency). It is the result of collaboration between The World Bank
Group’s Identification for Development (ID4D) Initiative and Singapore’s Govern-
ment Technology Agency (GovTech) to share knowledge and experiences for the
benefit of other countries.

Excellent feedback and input were provided throughout the development of this
case study. We thank the following individuals for their various contributions:
Dominic Chan, Kendrick Lee, Lynette Kwok, Kok Khuan Fong, Li Ting Guo, Yoke
May Kam, Hazel Koh, Karen Kee, Billy Teo, Wan Yieng Chong, Vithya Selvam, and
Adrian Chan (GovTech); and Vyjayanti Desai, Julia Clark, Faher Elfayez, Marie
Eichholtzer, Burak Eskici, and Carla Berisso Queirolo (World Bank). We also
appreciate peer reviews by Quek Sin Kwok (formerly of GovTech), Hsiao Ming
Chia (GovTech), Junko Narimatsu (World Bank), and Khuram Farooq (World
Bank). Screenshots of the Singpass application are from the Singpass website:
https://www.singpass.gov.sg/

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE vii

 ABBREVIATIONS

2FA Two-Factor Authentication

APEX API Exchange (APEX)

API Application Programming Interface

ASEAN Association of Southeast Asian Nations

AU APEX Units

CDA Child Development Account

CODEX Core Operations Development Environment and eXchange

CPF Central Provident Fund

CWC Cyber Watch Centre

DGB Digital Government Blueprint

EASY E-Services Authorisation System

eBLs Electronic Bills of Lading

FIN Foreign Identification Number

G2B Government-to-Business

G2C Government-to-Citizens

GCC Government on Commercial Cloud

GDS Government Digital Services

GovTech Government Technology Agency

HTX Home Team Science and Technology Agency

IC ID Card

ICA Immigration and Checkpoints Authority

ICT Information and Communication Technologies

IDA Infocomm Development Authority of Singapore

IRAS Inland Revenue Authority of Singapore

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE ix

 ISO International Organization for Standardization

JWT JSON Web Token

JWKS JSON Web Key Set

KYC Know Your Customer

MAS Monetary Authority of Singapore

MCI Ministry of Communication and Information

mDL Mobile driving license

MHA Ministry of Home Affairs

MLETR Model Law on Electronic Transactions Act

MOF Ministry of Finance

MOM Ministry of Manpower

MTI Ministry of Trade and Industry

NCA National Certificate Authority

NCB National Computer Board

NDI National Digital Identity

NFC Near-Field Communication

NRIC National Registration Identity Card

NTC National Translation Committee

OIDC Open ID Connect

OP OpenID Provider

PDPC Personal Data Protection Commission

PKI Public Key Infrastructure

PMO Prime Minister’s Office

SGFinDex Singapore Financial Data Exchange

SGTraDex Singapore Trade Data Exchange

SGTS Singapore Government Technology Stack

SIEM Security Information and Event Management

SII Significant Information Infrastructure

SNDGG Smart Nation and Digital Government Group

SNDGO Smart Nation and Digital Government Office

SNPO Smart Nation Programme Office

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

x
 SPF Singapore Police Force

TPS Transactions-per-Second

UEN Unique Entity Number

UNCITRAL United Nations Commission on International Trade Law

URI Uniform Resource Identifier

VM Virtual Machine

WOG Whole-of-Government

Key Definitions

Credential A document, object, or data structure that vouches for the

identity of a person or other entity through some method of
trust and authentication

Digital Public Solutions and systems that enable the effective provision of
Infrastructure essential, society-wide functions and services in the public and
(DPI) private sectors, such as digital identification, digital payments,
and data sharing.

Foundational ID systems primarily created to manage identity information for

ID the general population and provide credentials that serve as
proof of identity for a wide variety of public and private sector
transactions and services. Common types of foundational
ID systems include civil registries, national ID systems, and
population registers.

Relying Party An entity that relies upon the credentials and authentication
(RP) mechanisms provided by an ID system, typically to process a
transaction or grant access to information or a to system

Selective The ability of a user to make nuanced decisions about what

Disclosure information to share.

Trust A set of operational, business, and technical rules and

Framework associated governance to enable a group of entities (including
schemes) to interoperate with an adequate level of trust.

User The entity in control of a credential.

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

xi
 EXECUTIVE
SUMMARY

The ability of an individual to reliably prove their identity is crucial to ensure access
to services and exercise rights. The foundational ID systems that enable people to
do this also help government agencies and businesses to improve how services
are delivered, streamline processes, and reduce leakages and fraud. As countries
digitalize, and the number and importance of end-to-end online transactions
grow, the mechanisms used to prove identity in the physical world are not as
reliable in the digital world. Digital ID systems, which allow people to prove their
officially recognized identity online and without a physical interaction, have there-
fore become key enabler for the inclusive digital transformation of countries.

Similarly, as highlighted in the 2021 World Development Report, Data for Better
Lives, governments can be better at responding to the needs of citizens and
businesses by being able to seamlessly and securely exchange data.1 Such
data re-use can not only increase the efficiency of government services and
operations; it can also unlock innovation by the private sector, civil society, and
individuals. It is for this reason that governments around the world have built
data sharing platforms of various types, including with linkages to digital identity
to enable people to exercise consent and control over their personal data.

This case study describes Singpass, Singapore’s national digital identity (NDI),
and API Exchange (APEX), the government’s data sharing platform. It highlights
not just how they work but also how they work together. Built by the Government
Technology Agency of Singapore (GovTech), both products have helped to
improving the lives of Singaporeans and residents, and to enabling government
agencies and businesses to offer better services. This has contributed greatly to
Singapore becoming a leading digital government, economy, and society, which
are the three pillars of its Smart Nation Initiative.

The section on Singpass, which began in 2003 simply as a username and pass-
word login system to access government websites, shows how it has evolved
over time. This is an important characteristic of its success, as Singapore has not
attempted to build a new identity system, but rather to create a digital version of
the foundational ID system that people use in their everyday life. This experience

1
World Bank, 2021. World Development Report 2021: Data for Better Lives. https://www.worldbank.org/en/publication/
wdr2021

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE xiii

 offers important lessons and may be adapted by other countries with equally
strong foundational ID systems, bearing in mind the need to design for local
political, legal, social, and economic conditions.

The success of Singpass is evident in its adoption. 97 percent of the eligible pop-
ulation (or 4.5 million citizens and residents) uses the Singpass application to
access more than 2,000 public and private sector services online, ranging from
financial services to healthcare, education, business services, and transporta-
tion. More than 350 million transactions are completed each year, and trans-
actions that previously took days or hours to complete, often requiring physical
visits, now take minutes and can be performed from anywhere with an internet
connection. A document wallet has recently been added, enabling citizens and
residents to store their identity cards, driving license, and COVID-19 vaccination
documentation—and more documents will soon be added. This document wallet
is accessed more than 300,000 times a month and is growing in popularity.

Singpass also empowers Singaporeans and residents to provide consent to

sharing their data held in government databases via the Myinfo product. This has
led to reductions in the cost and time for transactions with government agencies
and businesses. Approximately 200,000 Myinfo transactions take place per day.
The time it takes to apply for services using Myinfo has decreased by up to 80
percent, with businesses also reporting significant cost savings and up to a 15
percent higher approval rating from their customers.

The section on APEX, which is an application programming interface (API)

gateway for government agencies to share and re-use data transparently,
securely and seamlessly, shows how it has enabled public services to be more
efficient. For example, APEX is a key backbone for the functioning of Singpass,
including onboarding (validating information with the foundational ID system)
and Myinfo transactions. The number of APIs supported through APEX has sur-
passed 2,000, from over 45 different agency projects, approximately half of
all government agencies in Singapore. The level of traffic has surpassed 100
million transactions per month, with peaks on average exceeding 300 million
transactions per month.

GovTech is constantly looking for ways to improve Singpass and APEX. Alternative
models for Singpass are under consideration, including federated and decen-
tralized architectures. Other plans include introducing authorization services for
businesses, expanding the digital wallet, and establishing cross-border interop-
erability with other countries. Similarly, GovTech will be piloting the use of APEX
within the private sector and will be moving non-sensitive functionalities to the
cloud to improve scalability.

Any country wishing to build their own NDI and government data sharing plat-
form should consider their own national requirements and may adapt or learn
from the experience of Singapore (as well as other countries), rather than directly
replicating their approach. Some key takeaways from the experience with Sing-
pass and APEX include:

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

xiv
 ▶ Evolution: gradually improving products and services, based on experi-
ences and lessons, rather than trying to solve too many problems at the
same time.
▶ Prioritizing user experience: investing time and other resources across the
development lifecycle to understand what users want and expect, espe-
cially among vulnerable users.
▶ Focusing on use cases: driving adoption by identifying where the most
value will be generated.
▶ Identifying authoritative sources of data in government: developing com-
mon data standards and identifying the most reliable sources for each
data attribute, rather than replicating information across databases.
▶ Technology and skillsets: adopting open technologies where appropriate
and continuously investing in people.
▶ Responsibly adopting technologies: using new technologies when rele-
vant rather than when they become available.

NDI and data exchange platforms are a key part (along with digital payments) of
what has become known as digital public infrastructure (DPI), the solutions that
enable the effective provision of essential society-wide functions and services
in the public and private sectors. This case study highlights how Singapore has
successfully developed its DPI to improve the lives and livelihoods of its citizens
and residents and boost its economic competitiveness.

CALL FOR COLLABORATION

Countries and international organizations interested in collaborating with GovTech
on NDI and government data sharing projects can contact GovTech via email at
[email protected]

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

xv
1 INTRODUCTION

This case study describes Singapore’s National Digital Identity (NDI) (known as
Singpass and inclusive of its Myinfo personal data sharing consent product)
and government data sharing platform (known as the API Exchange or APEX),
which are digital public infrastructure (DPI) built and maintained by Singapore’s
Government Technology Agency (GovTech). It illustrates how Singpass, Myinfo,
and APEX work together to improve the lives of Singapore’s citizens and residents,
as well as to boost Singapore’s economic competitiveness, in accordance with
Singapore’s Smart Nation Initiative.

The objective of this case study is to help policymakers and practitioners in other
countries to contextualise Singapore’s experience and key takeaways as they
design and implement their own NDI and government data sharing platforms.

1.1 Country Context

Singapore is a relatively small, high-income island city-state. In 2021, it had a
population of nearly 5.5 million, which includes approximately 2 million non-national
residents.2 Recognizing the challenges and vulnerabilities of its size and lack of
natural resources, the government has invested heavily in digital technologies
as a driver of growth, competitiveness, and prosperity.

Internet access is reliable and widely available in Singapore. According to the

2021 Global Findex Survey, 98 percent of the population aged 15 and older has
a financial account, and 97 percent has a mobile phone.3 As described later in
this case study, the country’s foundational ID systems, including civil registration,
have universal coverage.

This does not mean that other countries should be discouraged if they do not
have all of these advantages. There is still much to learn from the Singaporean
experience, and a rigid implementation of what has worked in Singapore will
not be appropriate in other countries. It is the approach and lessons that are of
primary value.

2
Government of Singapore, 2021. Population in Brief – 2021. https://www.population.gov.sg/files/media-centre/
publications/population-in-brief-2021.pdf
3
World Bank, 2022. The Global Findex Database 2021. https://www.worldbank.org/en/publication/globalfindex

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE 1

 1.2 The Smart Nation Initiative
Launched in 2014 by Prime Minister Lee Hsien Loong, the Smart Nation Initiative
is driven by the Smart Nation and Digital Government Group (SNDGG), which
is housed in the Prime Minister’s Office (PMO) and is comprised of the Smart
Nation and Digital Government Office (SNDGO) for planning and policy functions
and the Government Technology Agency (GovTech), which functions as the
implementation arm (see figure 1.2.1).4 The SNDGG is headed by a Permanent
Secretary in the Prime Minister’s Office and overseen by a Ministerial Committee.5
The pillars for the Smart Nation Initiative are Digital Society, Digital Economy, and
Digital Government.

Figure 1.2.1   Institutional Arrangements for the Smart Nation Initiative

PRIME MINISTER’S OFFICE (PMO)

SMART NATION AND DIGITAL GOVERNMENT GROUP (SNDGG)

Smart Nation and Digital Government Office (SNDGO) Government

Technology
Implementing Agency
Arm (GovTech)

Digital Digital Digital

Society Economy Government

The Smart Nation Initiative and SNDGG are critical success factors for Singpass
(including Myinfo) and APEX. They provide a coherent and comprehensive over-
arching policy and institutional framework, which enables whole-of-government
(WOG) approaches, participation of the public, and collaboration with the private
sector. Furthermore, by identifying strategic national projects (see figure 1.2.2),
which include NDI for Singpass, and Core Operations Development Environment
and eXchange (CODEX) for APEX, the Smart Nation Initiative provides clarity on
priorities, facilitating the coordination and resourcing needed for successful
delivery.

4
For more information about Singapore’s Smart Nation Initiative, see: https://www.smartnation.gov.sg/about-
smart-nation/transforming-singapore
5
Government of Singapore. 2022. “About Smart Nation Digital Government Group.” https://www.smartnation.gov.
sg/about-smart-nation/sndgg

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

2
Figure 1.2.2   Smart Nation Initiative Strategic National Projects6

1.3 Government Technology Agency (GovTech)

GovTech is a statutory board under the PMO that is responsible for digital trans-
formation within the public sector. It was established in 2016 under the Ministry of
Information and Communication as a successor to the Infocomm Development
Authority of Singapore (IDA), before moving to the PMO in 2017. In July 2022, Gov-
Tech employed approximately 3,400 staff members and in 2021 had a budget of
SG$635.5 million. The Government Chief Digital Technology Officer concurrently
serves as GovTech’s Deputy Chief Executive Officer.

GovTech’s work can be broadly classified into three areas:

▶ Products: More than 700 in-house developers build products for citizens,
such as Singpass and Myinfo; businesses, including Corppass; and the
WOG, such as APEX. This also includes capability centres—for example,
on data science and artificial intelligence—and WOG infrastructure, for
example: the government on commercial cloud systems. GovTech also
spearheads strategic national projects.
▶ Services: Making up more than half of GovTech’s staff, the Services group
manages technology across over 60 percent of Singapore’s government
agencies.
▶ Cybersecurity and Governance: GovTech is the sector lead for cybersecu-
rity in the Singapore government, responsible for setting WOG policies and
guidelines to ensure the safety and security of government digital structures.

6
Government of Singapore, n.d. Smart Nation Initiative – Our Strategic National Projects. https://www.smartnation.
gov.sg/initiatives/strategic-national-projects

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 SINGAPORE’S NATIONAL
2 DIGITAL IDENTITY:
SINGPASS

2.1 Overview of Singpass

Singpass comprises the smartphone application and Figure 2.1   Singpass Home
a back-end managed by GovTech. The smartphone Screen
application is the user-facing component, which is
accessible for free to all Singapore citizens, permanent
residents, and Foreign Identification Number (FIN) hold-
ers aged 15 and older. It enables users to leverage their
legal identity to carry out a wide range of online and
face-to-face transactions with government agencies
and businesses. Singpass was first launched in 2003
as a username and password to sign into government
websites and has since significantly evolved.

Today, Singpass includes several products and fea-

tures for citizens and residents, including:

▶ Login: Users can verify their identity online in a

secure and trusted manner when transacting
with websites and smartphone applications of
government agencies and businesses. Verifi-
cation can be performed using a six-digit PIN
code or the phone unlock mechanism, such as
a fingerprint or selfie, on most devices.
▶ Verify: User identity is verified for a face-to-
face transaction and the secure transfer of
personal information through scanning of QR
codes or tapping near-field communication
(NFC) devices.
▶ Myinfo: Manages the use and sharing of per-
sonal data for simpler online transactions;
data is pulled in real time from authoritative
sources, and consent is facilitated through
Login or Verify. For example, this feature can be used to pre-fill forms.
▶ Identiface: A stronger method of authentication than Login or Verify that
uses face verification based on the latest facial image enrolled with the
Immigration and Checkpoints Authority (ICA).

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE 5

 ▶ Digital IC: Enables users to present a digital version of their National Reg-
istration Identity Card (NRIC) or FIN card.
▶ Sign: Users can create secure electronic signatures using a preferred
third party digital signing tool compliant with Singapore’s Electronic
Transactions Act.
▶ Document Wallet: Users can store digital versions of other official doc-
uments, such as a driving license and HealthCerts (including COVID-19
vaccination certificates).
▶ Notify: This feature enables users to receive push notifications and alerts
from government agencies, as well as information related to Singpass
transactions.
▶ Shortcuts: Users are able to log in directly to commonly used digital
government services, such as the Central Provident Fund (CPF) for social
security, HealthHub for health services and records, and the Inland Reve-
nue Authority of Singapore (IRAS) MyTax Portal.

Singpass also functions as a digital ID for legal entities. Eligible owners and
officers of businesses and other entities (such as non-profit organizations and
associations) can use Login and Myinfo business on behalf of a legal entity
when accessing digital government services. Roles and user rights are managed
through the Corppass website.

The Singpass application is available on Apple iOS, Android, and Huawei devices.
Singpass, including the application and back-end, uses various technologies,
including cryptography and biometrics, for convenience, security, and trust.
Relying parties (RPs) can integrate with Singpass using NDI application pro-
gramming interfaces (APIs). More than 85 percent of all Singpass transactions
are conducted through the application, with the remaining 15 percent using
two-factor authentication (2FA) methods, such as Singpass’s Identiface (includ-
ing through a web browser).

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2.2 Singapore’s Foundational ID System as a Basis
for Singpass
An important characteristic of Singpass as a digital ID is how it functions as an
extension of, and builds on, Singapore’s foundational ID system. The information
in the foundational ID system is used by Singpass, including for onboarding—that
is, verifying identity when initially creating the digital ID; for the digital identity
card (IC); and for face verification, known as Identiface. The availability of this
information and the means to easily verify it made the transition to NDI rela-
tively straightforward. Furthermore, the issuance of a unique identifier and the
existence of a national registry of persons as an authoritative source of core
demographic attributes facilitate interoperability. This and the subsequent WOG
approach to data are key success factors for Myinfo and API Exchange (APEX).
Box 2.2.1 describes additional use cases for NRIC numbers and FINs and how these
unique identifiers are protected against misuse.

Box 2.2.1   Additional Use Cases and Protections for National

Registration Identity Card (NRIC) Numbers and Foreign Identification
Numbers (FIN)

Since 2017, NRIC numbers and FINs (along with mobile phone numbers) can be linked to a per-
son’s bank account and used as a payment address, using the PayNow real-time payment
system.

In recognition of the data protection risks surrounding permanent unique identifiers, in 2018, the
Personal Data Protection Commission (PDPC) issued advisory guidelines on the Personal Data
Protection Act for NRIC and other national identification numbers. Under these advisory guide-
lines, private sector organizations can only collect NRIC, FIN, and other identification numbers
if it is required by law, or if it is necessary to establish or verify an individual’s identity to a high
degree of accuracy.7

The Immigration and Checkpoints Authority (ICA), under the Ministry of Home
Affairs (MHA), is responsible for Singapore’s foundational ID system, including
civil registration, in accordance with Singapore’s National Registration Act. This
is in addition to responsibilities for border management and passport issuance.
The Ministry of Manpower (MOM) is responsible for the registration of work pass
holders. An NRIC number is issued at birth registration for citizens, and a FIN is
issued to foreigners when they register for a long-term pass, such as permanent
resident status or a work pass.

7
Personal Data Protection Commission Singapore. n.d. “NRIC FAQs.” https://www.pdpc.gov.sg/NRIC-faqs

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 At the age of 15, citizens and permanent residents must report to an ICA premise
to enrol their fingerprints, irises, and a facial image when they are issued a phys-
ical identity card (IC); ICA introduced irises as an additional biometric modality
in 2017. Fingerprints and irises are used for both deduplication and verification,
such as at border checkpoints. Biometrics are re-enrolled when the NRIC or FIN
card is replaced (for example, due to loss or damage). See Box 2.2.2 for more
information on the NRIC.

Box 2.2.2   The National Registration Identity Card (NRIC)

The NRIC is a polycarbonate card with several physical

security features, such as an alternating of the lion head
symbol and the NRIC number when observed from different
angles. The NRIC number is included in a barcode on the
back, along with an image of the individual’s fingerprint. The
NRIC for citizens is pink, whereas the NRIC for permanent res-
idents is blue; other types of residents are also differentiated
by distinct card designs. The specifications have generally
been the same since the 1990s; however, blood type was
removed from the card in 2002. There is no expiry date for
the NRIC.

On several occasions, the government considered introduc-

ing a smartcard as the basis for digital identity. However,
after comparing a smartcard vs. an app and considering
various factors pertaining to usability and security, the cho-
sen form was an app. Additionally, there was potential to
incorporate digital representations of physical cards, as is now seen with the digital IC in Sing-
pass. This reflects the experience in other countries, particularly given the cost and complication
of issuing smartcards compared to the utility and ease of use of digital credentials.

If a citizen applies for a new passport with ICA, the facial image is stored in their
NRIC record, which helps with the implementation of Singpass, as a more recent
facial image can be used as a reference for Identiface. It is mandatory for citizens
to re-enrol their fingerprints and irises at the ages of 30 and 55 if they have not
been issued a replacement NRIC within the last 10 years. MOM enrols fingerprints
and facial images for work pass holders.

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2.3 History and Evolution of Singpass
Singpass began very simply in 2003 as a username and password to act as a
single sign-on to government websites (see figure 2.3 for an early screenshot). As
evident in the timeline shown in table 2.3, Singpass has undergone a progressive
evolution over the past 20 years to become one of the world’s leading examples
of an NDI platform. GovTech and its predecessors have adapted Singpass to
changing user needs, emerging technologies, and external events, such as the
passing of the Personal Data Protection Act and a shift in user preferences from
desktop/browser-based access to a more mobile-centric means of service.

Examples of this evolution Figure 2.3   Example of an Early Singpass Login

include the introduction of Screen Showing a Username and Password
Myinfo for consented data
sharing, the expansion to
private sector services,
the transition to a smart-
phone application, and the
most recent addition of
Identiface (facial verifica-
tion) for stronger identity
verification.

In terms of development
and technological evolu-
tion, Singpass began as a
completely on-premises
solution built by a commer-
cial vendor. It was initially
deployed at physical data
centres, an approach often
referred to by GovTech as
the “out-sourced” approach. Today, the majority of the back-end components
run on the Government on Commercial Cloud (GCC) and product management;
most aspects of development are handled in-house, using supplied compo-
nents where appropriate—such as for fraud detection and biometric verification.

The Ministry of Finance (MOF), and GovTech formed a committee in the early days
of platform design to ensure buy-in and ownership for the target architecture.
It was also vital that Singpass solve shared problems—in many agencies it was
clear that the same questions were being asked of citizens and residents that
had been asked elsewhere in government systems. Introducing Singpass and
Myinfo reduced the frustration of having different login credentials and repeat
information for both citizens and government agencies. Government agencies
benefitted by focusing on their core business rather than running and protecting
authentication systems and maintaining personal data securely.

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Table 2.3   Timeline of Major Singpass and API Exchange (APEX) Events

Year Event Impact

2003 Singpass launches, utilizing Users are able to reliably prove who they are to digital government
username and password for login services for the first time in Singapore.

2014 Two factor authentication (2FA) is The introduction of 2FA vastly increases the protection of user
introduced accounts from password compromise.

2015 Personal Data Protection Act The PDPA prompts GovTech’s predecessor (Infocomm
(PDPA) is passed Development Authority of Singapore—IDA) to consider identifying
verified information in government, referred to as the ‘single
source of truth.’ This leads to the ‘Tell us once’ policy, reducing the
need for government agencies to hold duplicate personal data
about individuals.

2016 Policy splits government and Drives the requirement for a bridge or gateway allowing government
public- facing digital services agencies to share data from intranet to internet-facing services,
which serves as the catalyst for the development of APEX as a data
sharing framework.

Myinfo launches Myinfo begins as a platform to help users to pre-fill digital forms
automatically instead of repeatedly for every transaction. To
access the platform, users must authenticate using Singpass.

Corppass launched A single digital identity for legal entities is established, consolidating
various different authentication and authorization platforms.

2017 APEX introduced APEX is quickly recognized as a significant information

infrastructure (SII) due to its enabling role for digital services.

2018 Digital Government Blueprint The DGB highlights how national digital identification (NDI) is an
(DGB) launched enabler for digital government and the broader digital economy.

Release of Singpass application The mobile and crypto-based Singpass application is first released,
(October) after being announced in 2017.

2020 Launch of Identiface A higher level of authentication assurance is offered for users and
relying parties (RPs).

Singpass app reaches 1 million Significant adoption in less than six months demonstrates the
users (March) potential value to citizens and residents

2021 Singpass revamps branding and Implemented due to recognition for the wide range of services
user experience provided under Singpass and a result of continuous user research.
Myinfo is reframed as a product of Singpass, instead of as a
separate platform.

Application programming A key opportunity to introduce formal API standards, as plans are
interface (API) standards formally developed to extend the use of the API gateway, encompassing the
introduced private sector and a move to a cloud-based version of APEX.

Singpass app reaches 3 million The COVID-19 pandemic drives adoption by a factor of three.
users (August)

2022 Immigration and Checkpoints A key demonstration of how digital technology can enable
Authority (ICA) introduces digital convenient, yet highly secure, public services.
birth and death certificates

First Association of Southeast Organized by the ASEAN Secretariat and Singapore Ministry of
Asian Nations (ASEAN) digital Trade and Industry, reflecting the leading role of Singapore in
identity workshop is convened digital government and digital ID.

2023 Cloud version of APEX is due to go Increases the ability of APEX to scale and support further digital
live (March) services.

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2.4 Singpass Products and Processes
2.4.1 Account Creation and Recovery
Any Singaporean citizen, permanent resident, or FIN-holder can create a Sing-
pass account using their NRIC number or FIN and demographic information. An
individual’s NRIC number or FIN can only be connected to one smartphone at any
time, and only one NRIC number or FIN can be attached to a Singpass application
installation.

There are two main methods of identity verification for the creation and recovery
of an account, which are both remote (essentially meaning there is no need to
go to a government office):

▶ Face verification: Using the Identiface feature, the user takes a selfie,
which is matched against the facial image in the user’s NRIC or FIN record.
An account is instantly created.
▶ PIN mailer: A one-time password is mailed to the address attached to the
user’s NRIC or FIN record. This process may take several days, depending
on mail delivery.

Once the account is created and the user is linked to the device, the user is able
to set a password and can provide their email address and/or mobile phone
number for future one-time password requests to facilitate authentication.

2.4.2 Login (Authentication)

Login is a password-less login method that enables citizens and residents (includ-
ing on behalf of a legal entity) to easily and securely access public and private
sector digital services. This process uses Open ID Connect (OIDC) protocols.

To use Login:

1 The citizen or resident accessing a

smartphone application or website
will tap or click a link to “Log in” or
“Sign in.”

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

11
 2 The relying party’s application or website will communicate with the Singpass back-end
to direct the user to a Singpass webpage with a unique and time-bound QR code.

3 The user scans or taps the QR code, bringing

them to the Singpass application. In order to
reduce risks of a “man-in-the-middle” attack,
information about the relying party and or
application website will be displated for the
user’s confirmation.

4 If the user responds affir-

matively, they will be asked
to authenticate themselves
inside the Singpass appli-
cation using either a six-
digit PIN (set up inside the
application), SMS one-time
password, or the smart-
phone fingerprint or face
verification unlock feature.

5 The Singpass back-end will com-

municate the authentication result
with the relying party’s website or
smartphone application. The user will
also receive a notification of a login
transaction occurring.

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2.4.3 Verify
Verify enables users to perform face-to-face identity verification and secure
transfer of personal information through the scanning of QR codes with their
Singpass app. This allows users to complete contactless transactions without
the need to share physical documents, such as identity documents. It follows a
similar process to Login, except that the QR code is static (see figure 2.4.3).

Verify is currently used for new patient registration at polyclinics, age verification
when purchasing alcohol at vending machines, and registration for building
entry, donations, and car test drives.

SingHealth Polyclinics uses Verify for new patient registration. Compared to tra-
ditional registration methods, Verify halved the processing time to register a new
patient, from an average of six minutes to three minutes. This reduced crowding
at clinic registration counters.

Figure 2.4.3   Verify for Face-to-Face Access to Services

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 2.4.4 Myinfo
Myinfo enables users to consent to the sharing of their personal data stored in
trusted government databases with digital services, as well as to pre-fill digi-
tal forms. The process is similar to Login; however, the user is shown additional
information about what specific data attributes the relying party is requesting
access to, and the purpose of the transaction, before being given the opportunity
to provide consent or to cancel the transaction (see figure 2.4.4).

Figure 2.4.4   Examples of Myinfo Individual and Myinfo business Consent Steps

For Myinfo individual, approximately 150 data attributes from more than 10 gov-
ernment agencies are available for consented data sharing. These range from
core demographic information held by ICA and taxation information held by
the Inland Revenue Authority of Singapore (IRAS), to employer information held
by the Ministry of Manpower (MOM), and vehicle information held by the Land
Transport Authority. The exact attributes, the population that they are available
to serve (specifically, citizens, permanent residents, and FIN holders), and the
source are well-catalogued on the NDI developers’ portal.8

8
Singpass API. 2022. “Myinfo API Data.” https://api.singpass.gov.sg/library/myinfo/business/implementation-my-
info-data

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Myinfo coordinates the gathering of government data via published APIs and the
use of APEX acting as an aggregator and an orchestration point for service pro-
viders to request multiple data attributes relating to a single person. In this case
Myinfo makes onward requests from the relevant API providers in government
agencies, then collates the responses into a single response to be sent back to
the initiating service.

Myinfo removes manual data entry and verification requirements. This results
in higher data quality and facilitates “instant” approvals, thereby saving time
and increasing efficiency in the process. By retrieving data directly from various
government sources, Myinfo enables government agencies and businesses to
complete their “Know Your Customer” (KYC) processes without the need for cus-
tomers to provide additional supporting documents or to access a third party to
have the information verified.

2.4.5 Identiface (Face Verification)

Launched in 2020, Identiface is a more advanced method of authentication than
Login. Login authenticates the user on the individual’s device, whereas Identiface
involves the user taking a selfie of their face, which is then compared against the
latest facial image provided to the ICA or MOM against their NRIC number or FIN
(for example, that of the latest NRIC, work pass, or Singapore passport). It can be
integrated into websites—therefore not requiring the user to have a smartphone
application—or smartphone applications, as well as face-to-face situations.

Identiface involves two different services, both of which require the NRIC number
or FIN. Face Verify embeds liveness detection capabilities into the process, which

Figure 2.4.5.1   Illustration of the Face Verify and Face Compare

Services from the Singpass Developer’s Portal

Identiface Verification-as-a-Service

Your application
web-based, mobile apps, kiosks, etc. . .
Identiface
SDK
Send captured images
Presentation Attack
Detection (PAD)

Government
Biometrics
Return verification results Data Source
Get biometrics
Face Verification
profile

Send static image & get match results

Face Verify

Face Compare

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15
 is ideal for unsupervised transactions, to reduce the risks of presentation attacks.
In contrast, Face Compare sends a static image for verification. Face Compare
can only be used in tandem with Face Verify, given the risks of presentation and
injection attacks.

Identiface was introduced to facilitate higher levels of assurance and greater

inclusion, essentially because it does not require a user to have a smartphone
application and can mitigate the challenges some users may face in remember-
ing PINs and using the Login feature (see example in figure 2.4.5.2). It is also used
during the onboarding and account retrieval
processes for the Singpass application, as well
Figure 2.4.5.2   Identiface Used through as an additional, prompted presence-check
a Web Browser for fraud prevention if the Singpass back-end
detects unusual transactions from a user.

Community centers and government offices

have been piloting face verification since 2020
with over 81,000 transactions at these kiosks
verified through the Identiface API. Users who
visit the service centers to reset their Singpass
passwords have also seen a reduction in wait
time of over 10 minutes.

As a privacy-by-design measure, the facial

image used for the transaction will only be
used for the biometric verification process and will be encrypted and removed
from government servers after 30 days, allowing time to audit the transaction if
necessary.

2.4.6 Digital Identity Card (IC)

Launched in 2022, the digital IC is digital representation of the user’s NRIC or FIN
card that can be used in an in-person setting to prove identity. In general, the
purpose of the digital IC is to solve the problem of when an individual needs
to show a physical card, alleviating the need to carry various cards for physi-
cal transactions. Importantly, the intent of the digital IC is focused on identity
verification as opposed to data sharing; instead, Verify and Myinfo continue to
provide this service, and in a more secure manner.

All government agencies accept the digital IC, and business are also encour-
aged to do so. Although there are some use cases where the law still specifically
requires a physical card, such as registering a marriage and hotel check-ins, the
government is in the process of reviewing the legislation to formalize the use of
digital ICs for these exceptions.

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Figure 2.4.6   The Digital ID Card (IC) for Singaporeans in Various
Forms across the Singpass application

The Singpass application provides users with the ability to access the digital IC
from the home page (see figure 2.4.6). To open the digital IC, the user must first
authenticate themselves. To preserve the privacy of the user, the NRIC number
or FIN is masked by default and is only revealed when the user correctly authen-
ticates with the app and chooses to reveal it.

The digital IC includes a barcode, encoding the NRIC number or FIN of the indi-
vidual, and security features to prevent tampering or screen copying (and sub-
sequent spoofing), including:

▶ Profile Photo: The facial image shown should match the user’s face. This
is their latest facial image submitted to ICA or MOM.
▶ Holographic Logo: A lion crest overlaid with an animated holographic
effect confirms that the digital IC is not a screenshot.
▶ Screenshots Disabled: Screenshots are disabled on Android and iOS; the
holographic effect disappears when the screen is being recorded.
▶ Quality of Image: As the detailed background is not simple to reproduce,
a spoof of the digital IC may be of poor quality.
▶ Interactivity: Viewers may ask the user to use relevant features, such as
re-opening it through the Singpass application homepage, expanding
details, and showing the barcode, to prove that it is not a screenshot or
video.

As with many GovTech products, the digital IC was designed as a pragmatic and
effective approach, leading to solutions that have the highest possible impact
without requiring an overly complex, hard-to-deliver technical resolution. The
digital IC is more appropriate to most in-person transactions and is seen as
convenient to many users. It is also helpful in everyday interactions; for example,
if the traffic police need to check an individual’s details, they can use the digital
driving license, which alleviates the necessity to carry physical documents.

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17
 The digital IC is visual, rather than a data representation of the physical card, so
it does not follow standards such as those established by the International Orga-
nization for Standardization (ISO) for a mobile driving license, or mDL (ISO/IEC
18013-5:2021). From an international point of view, there is currently no provision
for cross-border use for credentials such as the driver’s licence. Therefore, it is
currently low-priority for the digital IC to adopt the ISO/IEC 18013-5:2021 standard.

2.4.7 Sign
The Singpass application facilitates user ability to digitally sign agreements with
businesses that are integrated with one of Singpass’s digital signing partners.
Sign uses signing certificates issued by the National Certification Authority, which
means that the signatures will be regarded as secure electronic signatures under
Singapore’s Electronic Transactions Act.

The process (as shown in figure 2.4.7) is similar to Login. A user taps or scans a
unique QR code presented on a web browser and is presented with information
about the document they are signing. There is also a four-digit match reference
code that should be compared against the four-digit code in the agreement that
the user is signing.

Figure 2.4.7   The Sign Process

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2.4.8 Document Wallet
In tandem with the launch of the digital IC in 2022, Singpass introduced a digital
wallet functionality to provide the ability to store and present digital representa-
tions of other government-issued documents. Initial use cases include COVID-19
test results (as shown in figure 2.4.8.1) and vaccination certificates (in the Health-
Certs standard format, allowing the QR code to be securely verified anywhere),
as well as a digital driving license (DL) similar to the digital IC format. The digital
DL (figure 2.4.8.2) is a good example of how GovTech collaborates with other
government agencies, in this case with the Home Team Science and Technology
Agency (HTX) and the Singapore Police Force (SPF).

Figure 2.4.8.1   A COVID-19 Vaccination Certificate Presented from the

Singpass Document Wallet

Figure 2.4.8.2   Digital Driving License (DL) Stored in the Singpass Document Wallet
in Various States of Validity

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 2.4.9 Notify
Notify enables Singpass users to receive personalized inbox public announce-
ments; personal reminders; and important messages, such as document
updates, directly from government agencies. Current examples (figure 2.4.9)
include Singpass transaction notifications, payment reminders, pre-departure
COVID-19 test certificate and COVID-19 vaccination certificate notifications, and
passport renewal and NRIC re-registration reminders.

Figure 2.4.9   Example of Announcements and Alerts Received

through Notify

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2.4.10 Corppass and Myinfo business – A Digital Identity for
Legal Entities
Corppass was launched by IDA in 2016 as a new corporate digital identity for
businesses and other legal entities, such as non-profit organizations and asso-
ciations, to access government digital services—for example, filing taxes or
applying for permits and licenses.

As the name suggests, Corppass initially drew on the experience of Singpass,

and authentication comprised a username and password. Businesses and legal
entities with a local Unique Entity Number (UEN) could identify registered officers,
such as owners, directors, and corporate secretaries, as well as Corppass admin-
istrators (appointed by registered officers to manage Corppass accounts).

Prior to the launch of Corppass, businesses and other legal entities used either
Singpass or the E-Services Authorisation System (EASY), depending on which
government agency they were transacting with. The introduction of Corppass
reflected feedback from the business community that Singpass should only be
used for personal transactions, due to privacy concerns. For example, employees
often shared their Singpass username and password with colleagues when they
went on leave, in order to ensure that transactions could still be undertaken.

In 2021, Corppass accounts and authentication evolved to become a feature

in Singpass for local business and other entities. Registered officers can now
change between personal and Corppass profiles within the Singpass applica-
tion, which differentiates the look and feel for Corppass profiles from a personal
profile (figure 2.4.10). Corppass administrators still use the Corppass website
to manage accounts, signing in using their personal Singpass. Foreign entities
without a UEN, including those that must file tax returns, also use the previous
Corppass username and password system, but with the added layer of 2FA.

Figure 2.4.10   Corppass Profile in the Singpass application

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 2.5 Key Enablers
2.5.1 Legal Framework
Specific legislation for NDI has not been required to date. Several underlying laws
are in place that create a legislative framework through which Singpass can be
reliably used in Singapore. These key legislative acts are as follows:

▶ The Public Sector (Governance) Act: This law governs, among other
topics, the management of data by government agencies, including
personal data protection and data sharing. It is complemented by the
Instruction Manual for Infocomm Technology and Smart Systems Man-
agement, which provides WOG policies, standards and guidance on good
practices related to data classification, data protection and security, data
acquisition, data processing and fusion, and data access and distribution.
▶ The Personal Data Protection Act: This law provides a baseline standard
of protection for personal data by the private sector in Singapore. It com-
plements sector-specific legislative and regulatory frameworks, such as
the Banking Act and Insurance Act. It also comprises various require-
ments governing the collection, use, disclosure, and care of personal
data in Singapore—which is of vital importance to both privacy and trust
in a digital identity ecosystem.
▶ The National Registration Act: This law enables Singapore to retain a
high-quality, high-coverage foundational ID system upon which Singpass
is reliant.
▶ The Electronic Transactions Act: This law is a key legal basis for Singpass
by establishing trusted certification authority services in Singapore. Fur-
ther, it focuses on the facilitation of electronic transactions through the
recognition of electronic signatures and records. In an amendment to the
law in 2021, Singapore became, the second country to adopt the United
Nations Commission on International Trade Law (UNCITRAL) Model Law
on Electronic Transferable Records (MLETR) into domestic legislation, a
move which sees electronic trade documents, such as promissory notes
and electronic bills of lading (eBLs), given the same legal standing as
their paper-based counterparts. This move toward further equivalence
for electronic records adds opportunities for the use of Singpass to facil-
itate additional use cases in the private sector.

2.5.2 Technology
2.5.2.1 Architecture and Components

Figure 2.5.2.1 shows the core components of the Singpass architecture and how
users interact with it to create a digital identity as part of Singpass and to subse-
quently use key services, such as Myinfo, to share data with relying party services
once authenticated.

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More information about the architecture of Singpass is available at: https://api.
singpass.gov.sg/library/login/developers/overview-at-a-glance

Figure 2.5.2.1   National Digital Identity (NDI) High-level Architecture

Relying Parties

Authoritative
OIDC Singpass Data Sources
NCA
User
DB
Auth
APEX Gov Agency N
ASP RA

Facial
Biometric Pwd
DB DB
PKI Challenge/ ICA
Response Authentication
Credentials

iOS/Android with Desktop/Browser

Secure Enclave Access (Legacy)

Person Person

Table 2.5.2.1   National Digital Identity (NDI) High-Level Architecture

Definitions

APEX A secure application programming interface (API) gateway for exchanging data
with government databases.

ASP Authentication Service Provider – Responsible for authenticating existing users

(using OpenID Connect—OIDC).

Authentication Databases of facial images and passwords for registered Singpass users used
Credentials during authentication.

NCA The National Certificate Authority (NCA) is responsible for issuing user certificates
that tie a user’s public key infrastructure (PKI) credentials to the user’s digital
identity.

RA Registration Authority – Acts as an intermediary for verifying requests for a digital

certificate. The RA informs the National Certificate Authority (NCA) to issue a
certificate and also communicates revocation of digital certificates.

User DB A database containing the information of all citizens and residents over the
age of 15, regardless of their registration status with Singpass. This is used as
a reference point during onboarding and is derived automatically from the
Immigration and Checkpoints Authority (ICA), a foundational ID system, and the
Ministry of Manpower (MOM) data, which issues work passes.

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 2.5.2.2 Public Key Infrastructure and Establishing Trust During
Onboarding and Use

A key design decision was to base the trust of a user’s Singpass identity on public
key infrastructure (PKI), which is also a foundation for other Singpass services,
such as Sign. Singpass relies on the National Certificate Authority (NCA) for the
issuance and management of digital certificates.

For iOS and Android users, the Singpass onboarding process includes the gen-
eration of a secure user PKI keypair in the smartphone’s secure enclave. The
Singpass application relies upon digital certificates to certify the ownership of
credentials, such as a user’s identity credential. This means that only the user has
ownership of their private key, ensuring that relying parties can trust communi-
cation between the smartphone and Singpass services.

Two types of digital certificates are stored on the smartphone:

▶ Authentication Certificate: Used for Login and related products. When

users authenticate themselves with Singpass, the authentication certifi-
cate is checked for the verification of the user’s identity.
▶ Signing Certificate: Used for Sign and Authorize. When an individual uses
Sign with Singpass to digitally sign documents, the signing certificate
generates a digital signature on the electronic document. This digital sig-
nature is cryptographically linked to the signer and can be verified using
the signer’s public key.

GovTech does not have specific hardware requirements for the smartphone
device, but at the point of account creation, the application detects the capa-
bilities of the device with regard to a secure enclave, and if this is present, the
onboarding can continue.

The Myinfo service APIs are not accessed directly by the Singpass application and
are able to utilize a wider range of public key options from commercial providers,
such as Entrust, GlobalSign, VeriSign, and others as described in Myinfo docu-
mentation.9 The core requirement is a X.509 certificate enabling implementation
of RSA SHA-256 (as specified in the technical documentation). Furthermore, in
terms of the integrity of demographic information, the Singpass back-end utilizes
the APEX gateway to pull authoritative data directly from government databases
on-demand for onboarding, as well as Myinfo.

9
For Myinfo documentation and implementation requirements, see:https://api.singpass.gov.sg/library/myinfo/
developers/implementation-technical-requirements

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2.5.2.3 Authentication Process

Two forms of two factor authentication (2FA) were added to Singpass in 2014:
an SMS one-time passcode sent to the user’s registered mobile phone number,
and a hardware token optionally provided to users who did not wish to use a
mobile phone number or were unable to use one. These hardware tokens were
issued free of charge but are being retired due to the high cost and increasingly
marginal use.

Today’s Singpass authentication usually occurs by scanning (in the case of

accessing a service through a second device, such as a computer) or tapping
(in the case of accessing a service using the smartphone that the application is
installed on) a QR code, which serves as an instruction to the Singpass application
to start an authentication transaction and includes a unique value representing
the specific authentication request from the relying party.

To prove that the user is who they say they are, the Singpass app uses the private
key held in the phone’s secure enclave to sign the request and send it back to the
relying party (at a fixed endpoint for the relying party via the Singpass service)
as a response message. Subsequent communication between the application
and the relying party currently utilizes OpenID Connect as a protocol. Box 2.5.2.3
explains the process in more detail.

The key advantage for the user is a secure, password-less login that is more con-
venient to use. For relying parties, there is greater authentication assurance and,
particularly for those that are accessed infrequently, allowing users to log in with
a mechanism that they are familiar with elsewhere, such as Singpass, reduces
issues with account management—that is, forgotten credentials, among others.

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 Box 2.5.2.3   Technical Authentication Flow for Singpass

Figure B2.5.2.3.1   Singpass Login Flow (OpenID Connect)

1b. Client ID & Radical URL

User Agent Authorization
(e.g., browser) 2. User Authenticates Endpoint
3a. Authorization Code

1a 3b
4a. Authorization code, client ID, redirect URL, client
assertion

4b. (Optional) Get JWK signing and encryption keys Token

RP JWKS Endpoint from JWKS endpoint if RP onboarding using JWKS URL Endpoint
5a. Access token, ID token
Relying Party
(Agency’s module)
5b. Get Singpass signing public key to validate the
token signature
JWKS Endpoint

The technical authentication flow for Singpass (as shown in figure B2.5.2.3.1) comprises the fol-
lowing steps:

Step 1: The relying party requests that the user authenticate.

(a) The relying party sends an authentication request to the Singpass OpenID Provider (OP) to
authenticate the end user via user agent.
(b) The request must include the relying party’s identity (client ID), redirect uniform resource
identifier (URI), and the OpenID scope.

Step 2: Singpass OP will authenticate the end user using one of the available methods.

Step 3: Once the user has authenticated, Singpass issues an authorization code.
(a) Once the end user has been authenticated, Singpass will generate an authorization code.
(b) An authorization code will be redirected to the relying party’s server component via user
agent. In addition, the authenticated session of the end user is maintained on the user
agent and Singpass back-end.

Step 4: The relying party uses the authorization code to request the ID token.
(a) The relying party’s server component contacts the token endpoint with authorization code,
client identifier, client assertion JSON web token (JWT) and redirect URI.
(b) If the relying party has a JSON web key set (JWKS) endpoint, the Singpass OP will retrieve
the encryption and signing keys from this endpoint.

Step 5: Singpass validates the client credential.

(a) Singpass will validate the client credential, authorization code and return ID token, and
access token via out-of-band channel.
(b) The relying party can fetch Singpass’s signing key via JWKS URL to validate the token’s
signature.

Note: Singpass is continuously improving. For the latest technical information, including on the
authentication flow, please visit the Singpass website: https://www.singpass.gov.sg/.

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2.5.2.4 Cloud Adoption

Cloud, through the Government on Commercial Cloud, is now being adopted

in a measured approach by the back-end architecture that supports Singpass.
This is being implemented where the advantages of cloud can be harnessed to
meet the increased demand from both users and relying parties building new
products and services. However, in cases where data security is paramount,
some services remain under the control of GovTech.

2.5.2.5 User Experience

GovTech and its predecessors have paid significant attention to prioritizing and
understanding the needs of users and relying parties for all of their products and
services. This includes studying in detail how users interact with Singpass and,
as new products and features are added, carrying out user testing and focus
group discussions. For example, GovTech has set up Tech Kaki, an open commu-
nity for citizen participation in the design process,10 allowing members to obtain
first access to new products before they go live, as well as to collaborate with
GovTech’s development teams. As a result, GovTech is able to analyze the user
experience of citizens and residents—and identify where it could be improved.

Most recently, in 2021, several design changes were made to the Singpass appli-
cation and branding, both in recognition that Singpass had become more than
just a login to public and private sector services, and to highlight its full potential
to users. More information about this redesign is available at: https://medium.
com/ndi-sg/not-just-for-logging-in-redesigning-singapores-digital-identi-
ty-app-545c08d820bb

Figure 2.5.2.5.1   The Singpass app Before and After Redesign

10
For more information about Tech Kaki, see: https://www.tech.gov.sg/products-and-services/tech-kaki-community/

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 The look and feel of Singpass was refreshed (figure 2.5.2.5.1), modernizing the
brand and building on the strong reputation and trust built over the previous 18
years, aiming to give it a professional yet fresh personality. A unique logo was
created, with a lowercase “i” taking the shape of both a human silhouette and a
keyhole, to signify a focus on user-centric services and security. Elements of the
old Singpass logo, such as the logomark of the “i,” were retained to ensure famil-
iarity and build on its established branding. Animated characters and elements
that mirrored the landscape and demographics of Singapore were also added.

GovTech also introduced new taglines such as, “Even Better,” “Even Easier,” “Even
Safer,” “Even Faster,” to communicate the attributes that users value in Singpass:
convenience, ease of use, and security (figure 2.5.2.5.2). To emphasize Singpass
as a user-centric, business-friendly, and inclusive platform, the Singpass website
and app were given a visual overhaul.

Figure 2.5.2.5.2   Advertisements Promoting the Refreshed

Singpass Brand

Nevertheless, it was not just how the application looked that was important;
GovTech sought to address how it was used. In many cases, this meant striking
a balance between convenience and security when designing the new user
interface. To support developers and the wide array of functionalities now seen
in Singpass, a more flexible and scalable design system was also developed to
ensure that it was easy for developers of relying parties to build new functionalities
while maintaining a consistent user experience (figure 2.5.2.5.3; box 2.5.2.5).

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Figure 2.5.2.5.3   Examples of Buttons from the New Design System

Box 2.5.2.5   Designing for Accessibility

Inclusive Design Processes

As part of the process leading up to Figure B2.5.2.5.1   Working with Visually Impaired
the 2021 refresh, GovTech design- Users during Accessibility Testing
ers also began to look at how they
could make Singpass more inclusive.
Part of this effort was to address the
needs of people less able or those
with differing needs when accessing
technology. This could be due to any
number of factors, including physical
or sensory disabilities, specific emo-
tional needs, and those with cognitive
issues. These considerations do not
only make for a more inclusive ser-
vice, but they usually result in a better
experience for all users.

As work began with a research project focusing on the needs of underserved communities, such
as persons with disabilities, single mothers, and the elderly, insights from these user testing ses-
sions began to shape the app’s development and led to guiding principles such as: “Be succinct.
Provide just enough information for the user to proceed at every step of the user journey.” For
example, catering to native screen reader technologies has become part of the app develop-
ment process.
(continues)

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 Box 2.5.2.5   Designing for Accessibility (continued)

Another key learning point for the research team was that in addition to making Singpass more
functionally accessible, the application should empower people with a sense of agency and
independence. These key insights have led the Singpass app to become a pleasure to use, and
to drive the app to become a much more inclusive service for Singaporeans and residents. This
can be observed through the Singpass app reviews, which has a rating of 4.7 on both the Google
Play Store and the Apple App Store as of August 2022.

Multi-Language Support
Singapore is a multilingual society with four official languages: English, Chinese, Malay, and Tamil.
From an inclusivity point of view, as 11 percent of Singpass app users already set their phones to a
language other than English, having Singpass in the four official languages can only be a benefit.

To address this need, the Figure B2.5.2.5.2   One Singpass, Multiple Languages
Singpass app team, assisted
by GovTech’s Government
Digital Services (GDS) divi-
sion, translated approxi-
mately 60,000 words from
the existing English version
of the Singpass application
into each of the other three
official languages. But sim-
ply translating the text was
only one aspect—time was
taken to ensure that the
translations made sense in
each of the languages, and that the same level of readability and understanding was maintained,
regardless of which language the user chose.

Translating an app from one language to another has many challenges. For example, words may
take up more space than in other languages; therefore, pages might need to be redesigned.
Extensive testing of the application has ensured that all users have a consistent experience
regardless of language choice. Technical testing was conducted, followed by user testing with
Citizen Translators—native speakers/writers who have volunteered with the National Translation
Committee (NTC) under the Ministry of Communication and Information (MCI)—to review trans-
lated materials.

The fresh eyes of the Citizen Translators allowed them to provide valuable feedback on the trans-
lations. This made the difference between a readable app and a truly great experience for native
speakers. For example, the English version of the app has a “What is this?” button where users
can find out more about the “My Cards” section, which holds users’ digital identity cards(ICs). The
initial Chinese translation was “这是什么?”, a factually accurate but literal translation. However,
the Citizen Translators recommended “了解更多,” (Chinese for “Understand more”) instead, which
is fluent and easier to understand for the Mandarin-speaking community.

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2.5.2.6  Security

As with almost every official digital system, phishing scams are a problem. Gov-
Tech and the Singapore Police Force work closely together to share intelligence
of the threat landscape and act accordingly to reduce the risk for Singaporeans
and residents. When phishing sites are identified, they can be blocked immedi-
ately, and users are informed in case they have been subject to scams.

Monitoring of the underlying infrastructure and applications is implemented to

prevent unauthorized use and potential malware attacks, as well as to identify
potential issues with the operational capability of Singpass. This includes any
particular protection as data passes through the APEX gateway from govern-
ment APIs to and from internet-facing services.

Fraud analytics is employed to identify and flag unusual activities in real-time,

alerting users instantly when unusual activities are detected (e.g., if a Singpass
login is performed on a new Internet browser or device, or if the country locations
of the Singpass app and the device logging in do not match).

If an individual loses their device, they can deactivate the Singpass app via
the Singpass portal using alternative 2FA methods such as Identiface or SMS
OTP. The app will prevent the user from using the app if it detects altered set-
ting on the device that could compromised the account. In these cases, the
individual will have to either reverse the changes made or set up an account
on a different device.

Please refer to the Singpass security page for latest information on the security
measures: https://www.singpass.gov.sg/main/security/?show=use-securely

2.5.2.7 Data protection and privacy

From a user perspective, when a service requests data, it does so through Myinfo,
which means that the data subject is requested to consent to the use of data
and is aware of what type of data will be shared.

Myinfo currently only supplies one-time access to data, in the context of a single
digital transaction; it does not offer continuous access to data or authorization
for an organization to access data multiple times without additional consent. This
is seen as better for the user, as it means that consent is sought every time an
organization needs to process data, and that the user does not have to remem-
ber what they allowed to happen with their data, which, in a digital economy,
could be extensive and range across multiple service providers and agencies.

Services wishing to access government data through Myinfo APIs must also
complete an application process, during which the need for data is reviewed,
and only services where appropriate access to data is demonstrated will be
allowed.

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31
 Individuals can also access an audit trail of where they have consented to data
being used, but this is limited to the use of data for digital transactions in which
the user is an integral part of the process flow.

2.5.3 Go-to-Market
2.5.3.1 Support for Citizens and Residents

GovTech has a help desk that handles issues with Singpass and related prod-
ucts for individual users. For issues beyond GovTech’s direct control, such as the
accuracy of Myinfo data, GovTech coordinates the resolution of these issues or
refers users to the appropriate government agency.

If citizens and residents face any problems, including with onboarding and
account recovery, they may visit one of 50 Community Clubs (half of all Commu-
nity Club locations) that also serve as Singpass counters. There, the user can be
served face-to-face by Community Club staff to create or recover an account.
Community Clubs are well-located and physically-accessible public locations
where people gather for group activities, social support, public information, and
other purposes. For example, many served as vaccination centers and distribu-
tion points for masks during the COVID-19 pandemic.

2.5.3.2 Building Communities, Publishing Documentation,

and Onboarding Relying Parties

GovTech places a strong emphasis on community development to build a

vibrant developer ecosystem around its products and services. As stated on the
GovTech Community Development website, “We believe that our goal—to build
better products for the public good—can be achieved only through meaningful
collaboration with the developer community.”11

To put this into practice, aside from detailed documentation, guidelines, tutorials,
and explanations, Singpass provides developers and partners in government,
as well as the private sector, with a self-service developer portal and applica-
tion process for integration with Singpass APIs.12 The portal is easy to use and
focuses not only on technological integration, but also on walking relying parties
through designing new user journeys for their products and services, as enabled
by Singpass. For example, the portal contains separate Business and Developer
sections, catering to non-technical and technical audiences, respectively.

These resources are accessible without the need of any login to the Singpass API
website, in order to encourage interested parties to explore and find out more
about Singpass APIs, including key principles, standards, processes, requirements,

11
For more information about GovTech’s Community Development efforts, see: https://www.developer.tech.gov.
sg/communities/overview
12
For more information about the Singpass self-service developer portal, see: https://api.singpass.gov.sg/

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Figure 2.5.3.2   The Singpass API Developer Portal and Three-Step
Process for Onboarding

and frequently asked questions. When potential relying parties want to integrate
with Singpass and onboard with any of the APIs, the application process begins
by logging in using Singpass on behalf of the legal entity, then submitting a pro-
posed user journey and a linkup request for approval.

The portal supports a guided application process for public and private sector
relying parties. In conjunction with the application process, there is a range of
documentation and a “sandbox” for relying parties to test their new service. While
the application process is largely automated, new relying parties are made aware
of the need to review their user journeys and re-engineer where necessary, as
Singpass and its products, such as Myinfo, will streamline the business process.

For private sector relying parties, a review process is in place to ensure that the
request for data is reasonable. For example, if a bank wants to ask for a custom-
er’s address, income statement, etc., that is considered reasonable. However, if
the bank asked for unrelated data, then that would not be deemed reasonable.
Oversight for this approval is provided through the Smart Nation and Digital Gov-
ernment Office (SNDGO) and GovTech. Once approved, the relying party can
then proceed to integrate Singpass API with their user journey that requests data,
which is subsequently consented to by the customer or citizen.

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33
 More generally, GovTech organizes regular developer events, including its STACK
flagship conference and regular STACK-X Meetups. An additional, highly infor-
mative resource is the Singapore Government Developer Portal,13 a one-stop
resource hub for government digital products and services. It provides digital
government resources, guidelines for project execution, information on the latest
government products and services, technical documentation, and community
resources.

2.5.3.3 Tutorials and Demonstration Code

In addition to the detailed tutorials for developers published on the Singpass API
portal, there are also demo applications and example code to illustrate the key
implementation requirements. A dummy application, known as Mockpass, was
built and made available as open source software on Github to allow developers
to simulate Singpass and Myinfo transactions in a development environment.

Figure 2.5.3.3.1   Developer Tools: These tools and code examples are also
Signature Verifier of great value to raise awareness in the
developer community and assist the rapid
onboarding of new services. Developers
also have access to “sandbox” APIs and
developer tools (figure 2.5.3.3.1) that allow
them to create functioning applications
without the need for real Singpass users.

13
For information regarding the Singapore Government Developer Portal, see: https://www.developer.tech.gov.sg/

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 GOVERNMENT DATA
3 SHARING PLATFORM –
API EXCHANGE (APEX)

3.1 Overview of APEX

The ability to seamlessly and securely data is key for digital
service delivery. In 2016, the government introduced a policy to
split government and public-facing digital services, leading
to the requirement for a bridge or gateway allowing govern-
ment agencies to share data from intranet to internet-facing
services. This was the catalyst for the development of a data
sharing platform.

Following this decision, APEX was launched in 2017 to become

the bridge between intranet and internet zones in the govern-
ment network architecture, enabling agencies to share data
through application programming interfaces (APIs) from the intranet to internet
zone services. APEX itself acts as an API gateway where agencies can consume
approved APIs for secure and seamless access to data across government.

APEX enables centralized publication, cataloguing, discovery (as a self-service

model), monitoring, and security management for the APIs. In doing so, it plays a
key role in the Singpass ecosystem. Furthermore, Singpass (through the Myinfo
product) provides citizens and residents with control over the sharing of their
personal data, which occurs through APEX in the case of government services.

When APEX was initially developed, there was no government cloud policy, hence
the system was developed in-house as an on-premise solution based on the
Akana API management platform (a commercial API management platform).
Now, APEX cloud is being developed for less-sensitive datasets. Moving to the cloud
also opens the possibility of creating an API marketplace with the private sector.

APEX is part of the Singapore Government Technology Stack (SGTS), a suite of

shared and re-usable software components and infrastructure maintained by
GovTech to enable government agencies to build digital services. Other exam-
ples of components of the SGTS include Singpass and the Government on Com-
mercial Cloud (GCC). The SGTS is part of a broader framework known as Core
Operations Development Environment and eXchange (CODEX), which is a shared
digital platform between government agencies and the private sector for the
development of better, faster, and more cost-effective digital services.

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 Box 3.1   What is an Application Programming Interface (API)

An API is a way for two or more software components to communicate with each other, including
to transmit data. More specifically, an API is programming code that governs the access point to
an application, which may be able to access a database. For example, if you search for a flight on
a website, that website would use APIs to send a request to airlines and receive a response with
offers. Well-designed APIs enable government agencies to enable access to their systems and
databases for authorized users (e.g., other government agencies) while maintaining security
and control.

An API gateway sits between a user and a collection of APIs and back-end services. An API gate-
way can accept and aggregate API calls (essentially message asking an API to provide a service
or data). It is also a management tool, enabling access control and monitoring of API usage.
Using the example of searching for flights, a website may access the APIs of multiple airlines and
travel agencies through an API gateway.

Figure B3.1­  
API 1
Illustration of How an
API Gateway Works API
Gateway API 2

API 3

Using APEX, developers of a requesting government agency can discover APIs,

apply for access, and then pull data from various agencies on demand, with
pre-configured access controls set by the data source agency. A central logging
system provides an overview of all API logs, allowing monitoring and trouble-
shooting when necessary.

Figure 3.1   Screenshot Example of the APEX API Library

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36
Box 3.2   Comparing APEX to the X-Road Government Service Bus Approach

Singapore’s API Exchange (APEX) and the X-Road software first developed by the Government of
Estonia (and implemented in Estonia as “X-Tee”) share a similar high-level objective: to facilitate
secure, seamless, and transparent data sharing between and among databases and services.
In doing so, both approaches enable the federation or decentralization of data, removing the
need for centralized data storage as an approach to unlocking the benefits of this data. There
are, however, key differences in how they achieve these outcomes.

APEX is an API gateway where entities (currently only government agencies) can consume
approved APIs for secure and seamless access to authoritative data managed by government,
and API providers can manage that access. This allows service providers to gather data required
for specific transactions, as well as to gain consent from the user through Myinfo. It has minimal
infrastructure. On the other hand, X-Road is an entire ecosystem that has strict onboarding rules
and requires much more infrastructure.

Table B3.1   Comparison of APEX and X-Road Approaches to Data Sharing

APEX X-Road

APEX is an API gateway — Enabling entities to X-Road is an ecosystem — A community of organizations

share data via APIs and for consuming services to using the same instance of the X-Road software for
access approved APIs. producing and consuming services.

There is a central stack but not a formal There is a central operator — The owner of the
operator  — APEX is part of the Singapore ecosystem, the X-Road Operator, controls who are
Government Technology Stack (SGTS), a suite of allowed to join the community, and the owner defines
shared and re-usable software components and regulations and practices that the ecosystem must
infrastructure maintained by GovTech to enable follow.
government agencies to build digital services.

There is a relatively lightweight onboarding There is a strict onboarding process — Joining

process — Potential API providers (government an X-Road ecosystem requires going through an
agencies) must register with the APEX Portal before onboarding process. During the process, the identity
being able to submit APIs or publication. Registration of each organization and technical access point
is based on control of a government agency email is verified using certificates that are issued by a
account, but also requires authentication to the trusted Certification Authority (CA). The identities are
portal with 2FA. maintained centrally, but all the data is exchanged
directly between a service consumer and a service
provider.

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37
 3.2 How APEX Works
3.2.1 Components
APEX has two main components: the API gateway and the portal (used by API
providers and API consumers).

▶ Gateway: serves the API traffic; provides orchestration, monitoring, throt-

tling, and cybersecurity features
▶ Portal: allows providers to publish their APIs and for consumers of APIs to
subscribe to their use

The portal is in the intranet zone and is used by API consumers and API providers.
The purpose of the portal is to allow API providers to publish and configure their
APIs on the portal, so that API consumers can discover APIs of interest to their
services and subsequently subscribe to those APIs for use in their services. The
gateway resides in both the intranet and internet zones (figure 3.2.1) and both
services are due to move to the cloud in the next generation of APEX.

Figure 3.2.1   Overview of APEX Flow

Internet/Consumer Facing Services Intranet/Government Agencies

APEX

Relying API Provider

Party 4
Bridge Endpoint
Data
2
Access API API 3 5 Authoritative
Person 1 Control Gateway Gateway
6 Source

Portal

API Discovery
API Management

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38
At a high level, the steps in the APEX flow can be described as follows:

Step Description Notes

1 The user attempts to access a Following authentication, user begins a transaction that
service. requires trusted data.

2 The relying party (RP) requests When a user accesses a service that needs trusted
additional data via API Exchange data to complete a transaction, the RP is able to
(APEX) based on user consent. request that data from an application programming
interface (API) hosted by the gateway.

3 The API request is routed to the API The bridge enables API calls to be placed with
provider via the bridge. government API providers on the government intranet.

4 The API provider processes the The API provider creates a response and sends this via
request. the gateway for the originating RP.

5 Data is retrieved from the Where required, data is retrieved from the authoritative
authoritative source. source/database.

6 The response is routed back to The result of one or more API calls beyond the gateway
the originating service. is relayed to the originating service provider (RP).

3.2.2 Publishing APIs

Government agencies are responsible for the development of APIs to be pub-
lished on APEX. API standards, however, are a relatively new addition to APEX
and were first introduced in July 2021. Up until this point, agencies have been
responsible for the design of the API interface based on their internal policies and
best practices. This has not caused major problems, but as plans to extend the
use of the API gateway have included the private sector, in addition to the move
to a cloud-based version of APEX, there is an opportunity to introduce these API
standards across the government as the platform evolves.

API standards have been published in conjunction with an instruction manual.

These include:

▶ Versioning
▶ Documentation
▶ Recommended Use of the Open API Standard
▶ Lifecycle (for example, deprecation of APIs)

3.2.2.1 Provider Onboarding Process

Potential API providers (government agencies) must register with the APEX Portal
before being able to submit APIs or publication. This is a relatively lightweight
process, in which registration is based on control of a government agency email
account, but it also requires authentication to the portal with two-factor authen-
tication (2FA). Consumers use APEX to manage and request access to the APIs
they need. In this case, the login mechanism is the same as providers; consum-
ers are not charged for using APEX. Providers must also sign a service agreement
outlining the charges levied by GovTech for the use of APEX.

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39
 Providers subscribe to APEX units (AU), which defines a soft limit on the number of
transactions-per-second (TPS) that can be sustained (based on a 20KB payload).
Subscribing to more APEX units increases the TPS. APEX provides non-produc-
tion-grade APEX units at 50 percent cost for development and staging purposes.

The APEX cost model will be revised when it moves to the cloud, and this may
result in a per API call model, rather than the existing fixed AU model, based on
access to the on-premises services.

3.2.2.2 Supporting API Users and Providers

Consumers of APIs are largely supported by the publishing agency. The portal
offers detailed documentation for developers, in conjunction with online training
for API providers and consumers of APEX. A hotline is also provided by GovTech,
although once onboarded, most providers become self-sufficient and use the
provided tools to resolve issues.

3.2.3 Service Monitoring and Billing

Usage of APIs is measured in APEX Units (AU) which are calculated using the
following guidelines: 20 transactions per second, 2–5 megabyte transaction
size. Monitoring tools are provided to understand utilization and performance of
APIs, so that peaks in traffic or potential issues can be identified automatically
and managed accordingly. To protect the service at times of high load, APEX
maintains a reserve capacity of 25 percent in order to maintain service levels.

The use of APIs follows the use of services by the public. For example, services
provided by the Immigration and Checkpoints Authority (ICA) to enable interna-
tional travel will see peaks at key times, such as extended holiday periods. During
these peak periods, where advance planning is possible, GovTech temporar-
ily increases APEX resources to meet those peaks. However, the finite system
resources in the current on-premises setup eventually limits scalability. This is
one of the concerns that the next evolution of the platform intends to resolve, by
tapping the cloud to increase agility in adapting to peak periods.

3.2.4 Myinfo and APEX

When users access a service that utilizes Myinfo for access to government data,
the process of consent is handled automatically as Myinfo coordinates the gath-
ering of government data via published APIs.

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40
Myinfo acts as an aggregator and an orchestration point for service providers to
request multiple data attributes relating to a single person. In this case Myinfo
makes outward requests from the relevant API providers in government agencies,
then collates the responses into a single response to be sent back to the initiating
public-facing service (figure 3.2.4). All of this is made possible by the APEX portal
and gateway, which facilitate the discovery and request of data, respectively.

Figure 3.2.4   APEX and Myinfo Flow

Internet/Consumer Facing Services Intranet/Government Agencies

CPF
Endpoint

APEX
Data
Relying Myinfo
Party 4
Bridge Endpoint
5 IRAS
2
Endpoint
Access API
Gateway 3 API
Person 1 Control
6 Calls
Data
Portal

Agency X
API Discovery Endpoint
API Management

Data

At a high level, the steps in the APEX and Myinfo flow can be described as follows:

Step Description Notes

The user attempts to access a Following authentication, a user begins a transaction

1
service. that requires trusted data.

The relying party (RP) requests When a user accesses a service that needs trusted
2
additional data via API Exchange data to complete a transaction, the RP is able to
(APEX) based on user consent. request that data from an API hosted by the gateway.

Application programming A request for multiple data attributes is routed through

3
interface (API) requests are the gateway to Myinfo (as an API call).
routed to Myinfo. Note: During this step, the user will be prompted to
consent to data sharing via the Singpass app.

Myinfo routes API requests to Myinfo interprets the request for data and presents
4
relevant APIs. multiple corresponding APIs to the relevant
authoritative sources (API providers).

Data is aggregated by Myinfo. Myinfo aggregates responses received from the API
5
providers and prepares a single response payload.

The response and data payload The result of one or more API calls beyond the gateway
6
are returned to the RP. is relayed to the originating service provider (RP).

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41
 3.3 Key Enablers
3.3.1 Authoritative Data and the Government Data
Architecture
A key success factor for APEX (as well as for Myinfo) has been the identification
of authoritative data (or “single sources of truth”) in government databases.
Beginning around 2015, Infocomm Development Authority of Singapore (IDA)
and, subsequently, GovTech, went through individual fields in key government
datasets to identify the most reliable sources. For example, within the govern-
ment, different datasets contained address-related data, but which one was
the most trustworthy and up-to-date source? The residential address was found
to be from ICA, income details from the Inland Revenue Authority of Singapore
(IRAS), and marriage status from the Registry of Marriages. Once identified and
established as re-usable, the government does not need to ask for the same
information multiple times.

Similarly, the development of the Government Data Architecture has led to a

whole-of-government (WOG) approach to data standards and formats, facili-
tating interoperability and comparability of information at a technical level.

This practice of “Tell us once” will not be the same in every country, but the
principle of identifying and assessing the authoritative source for each key
data attribute is a vital component for its successful implementation in
government data sharing. From the citizen perspective, this practice of “Tell
us once” has a tremendously positive effect, reinforcing the perception that
government is a single entity, and that if an individual informs one part of
government that their data has changed, that message should reach all parts
of government.

In addition to analyzing the data and how it was validated, a parallel discussion
examined whether this data should be held in a central data store. The conclu-
sion was that this approach creates a risk, as it is very attractive for attackers;
but also, if such a data set were created, there is the problem of which agency
would own and protect it. There is also the problem of a central dataset being
simply a snapshot of the data held elsewhere—a point in time value—so this
would run the risk of becoming out-of-date if it were not constantly updated. The
resulting policy was that the key data attributes, or the single sources of truth,
should remain under the control of the agency that has a vested interest in that
data. This implies that the means of accessing that data are created to enable
the wider utility.

This thinking led to the first implementation of Myinfo for an individual to give
consent to sharing their verified data in government-to-person transactions,
as well as Myinfo business for an authorized officer to consent to sharing their
verified data in government-to-business transactions. Beyond government,
this has also enabled many transactions that were previously process-heavy

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42
and paper-based experiences to be entirely digital, such as opening a bank
account. In this model, financial institutions can request multiple relevant data
attributes, which the customer has the right to consent to (or decline), and
APIs facilitate data transfer from the government to the financial institution, as
triggered by user consent. Furthermore, Myinfo has led to the creation of many
other digital products made possible by the underlying trust that individuals
have in Singpass.

Alongside APEX as a single point of exchange for data from government agen-
cies, strong governance, data standards, discoverability, and common cata-
logues were developed. This means that today, APIs and an API gateway exist,
giving access to various different data items from across government agencies,
enabling rich user journeys and digital transactions.

3.3.2 Ensuring Integrity and Trust

As API messages pass between the intranet and internet zones, controls are in
place to detect attacks through deep packet inspection and checks on the high-
level metadata of request and response headers.

The messages themselves are protected according to the API specification of

the API provider. Some providers may enforce encryption or the signing of data
payloads to ensure integrity—APEX provides mechanisms for this but is not a
requirement to use the gateway. This also extends to the security of APIs, such
as the requirement for API keys, and any limits on use that the provider may
enforce.

Since its launch in 2017, APEX was quickly viewed as significant national infra-
structure, or SII. This status has strongly increased the compliance overhead
costs for the service, but this has been embraced by the GovTech team and
their operations.

3.3.3 Securing API Transactions

APEX and its API transactions are monitored through the Cyber Watch Centre
(CWC), for central security monitoring which utilizes security information and
event management (SIEM) tools and techniques to provide real-time analysis of
network traffic and alerts when security incidents are detected. The APEX system
also incorporates other tools to audit events and logs for issues and abnormal
activity.

The data payloads carried in API transactions are secured according to the
specifications put in place by the API provider. This means that there are cur-
rently no set standards for data integrity or confidentiality of API calls; instead, it
is the responsibility of the agency publishing an API that gives access to data to
ensure that appropriate controls are in place.

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43
 The responsibility of API providers is made clear in a service agreement that is
put in place when an API is added to the APEX API gateway. GovTech advises on
good practices and clearly states the responsibilities of each entity (agency) as
it interacts with the wider Singpass and APEX ecosystems.

3.3.4 Data Protection and Privacy

APEX is focused on data exchange for digital transactions and does not reach
back further into agency-to-agency transactions where the user is not pres-
ent (online or offline), which is the case for government service buses (such as
X-Road). As a result, APEX is more practical and less complex to implement, as
it focuses on surfacing standardized APIs for data sharing, thereby solving a
specific problem, rather than creating a comprehensive infrastructure for digital
government.

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44
4 IMPACT

4.1 Singpass Adoption

Despite being an optional product, Singpass currently has a very high adoption
rate among citizens, residents, and relying parties. As of August 2022:

▶ There are more than 4.5 million users, covering 97 percent of citizens and
residents aged 15 and above.
▶ Over 2,000 services offered by more than 700 government agencies and
businesses, utilize Singpass to support relevant use cases, ranging from
financial services to healthcare, education, business services, and trans-
port. 900 of these services have been onboarded to Myinfo.
▶ More than 350 million personal and corporate transactions are facilitated
using Singpass every year. Myinfo sees about 200,000 transactions a day
on average.
▶ The document wallet and digital identity card (IC) are accessed approx-
imately 485,000 times per month.

4.2 API Exchange (APEX) Adoption

The number of application programming interfaces (APIs) supported through
APEX has risen above 4,000 and originates from over 45 different government
agency projects. 35 government agencies consume these APIs. The level of
traffic experienced has crossed 100 million transactions per month, with peaks
exceeding 300 million transactions per month.

4.3 Convenience and Cost Savings

Singpass and APEX have contributed to significant increases in convenience for
citizens and residents, as well as productivity gains and cost savings for gov-
ernment agencies and businesses. For example, most government services in
Singapore can be accessed completely online; this includes registering a birth
via the LifeSG application. It has also boosted the resilience of Singapore, as evi-
denced by the ability of the government to quickly develop new products for the
public health and economic response to the COVID-19 pandemic.

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE 45

 There has been a significant reduction in process steps required for some
transactions. For example, Myinfo (enabled by APEX) has reduced the number
of “clicks” to open a bank account—in other words, the number of steps in the
process—by almost 100 in some cases. This has a direct impact on customers
and financial service providers, as customers are more likely to complete the
process, and the overhead cost for the provider is greatly reduced. According
to GovTech, Myinfo has resulted in an average decrease of up to 80 percent in
application time for users, with businesses reporting up to a 15 percent higher
approval rate, due to better data quality and significant cost savings in their
customer acquisition process.

4.4 Example Use Cases

4.4.1 Easy Customer Onboarding — Instant e-Know Your
Customer (eKYC)
Financial services are a high-value use case for national digital identity (NDI) in
any country. GovTech has worked closely with the central bank, the Monetary
Authority of Singapore (MAS), to create an enabling environment for financial
institutions to adopt Singpass. Myinfo enables financial service providers to
carry out instant and consent-based onboarding of new customers, satisfying
customer due-diligence requirements of MAS. The introduction of Identiface has
provided additional authentication assurance, further reducing risks for financial
service providers.

Figure 4.4.1   Example of How Myinfo Can Be Used to Apply for a Credit Card Instantly

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE

46
Policy guidance changes to the financial sector were made by MAS in 2018 to
support the use of Singpass as a non-face-to-face verification measure, includ-
ing making it clear that financial institutions would not be expected to separately
obtain physical documents or a photograph if they used Myinfo for their KYC
process.14 However, this was not necessarily needed; in the first instance, financial
institutions saw the opportunity to make improvements to their productivity and
customer acquisition soaring as a result of access to automated identity verifi-
cation and trusted data obtained directly from government sources.

4.4.2 Digital Government Services — LifeSG and Birth

Registration
Singpass and APEX work together to respectively support the front- and back-end
processes of LifeSG, Singapore’s integrated digital government services applica-
tion. Singpass enables account creation, while APEX facilitates the exchange of
information that allows the user experience, including notifications and services
offered on LifeSG, to be personalized.

A good example of this is how birth registration is managed end-to-end online

through the LifeSG application and is subsequently integrated with support for
new-borns provided by the government, including a baby bonus, the opening of
a Child Development Account (CDA), and a free library membership. In 2022, the
Immigration and Checkpoints Authority (ICA) launched digital birth (and death)
certificates, which can be downloaded at the end of the process. The digital cer-
tificates contain a digitally signed QR code that can be easily verified through ICA.

4.4.3 COVID-19 Response — SafeEntry and TraceTogether

When the COVID-19 pandemic triggered the need for contract tracing in early
2020, countries across the world scrambled to develop digital systems that
would support checking into and out of venues and public spaces efficiently,
inclusively, and in a privacy-preserving manner. In Singapore, GovTech was
able to leverage several elements of the Singapore Technology Stack (SGTS),
including Singpass, to develop the SafeEntry system. Initially, SafeEntry was an
application that allowed venues to scan the barcode or QR code on the back of
National Registration Identity Cards (NRICs) and other ICs.

SafeEntry gradually evolved to become an ecosystem based on citizens and

residents scanning unique QR codes to check into and out of venues, first as a
feature in Singpass and then through the new TraceTogether contact-tracing
application. GovTech also leveraged Corppass to enable businesses to easily

14
Monetary Authority of Singapore. 2022. AMLD 01/2018: “Use of Myinfo and CDD Measures for Non Face-to-Face
Business Relations.” https://www.mas.gov.sg/regulation/circulars/circular-on-use-of-myinfo-and-cdd-measures-
for-non-face-to-face-business-relations

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47
 log in to the SafeEntry portal to generate their QR code. For citizens and residents
without a smartphone or the corresponding TraceTogether app, a TraceTogether
token was also made available, which could be worn and scanned by an agent
at the venue in a manner similar to the app.

4.4.4 Enabling Data Infrastructure — Singapore Financial

Data Exchange (SGFinDex) and Singapore Trade Data
Exchange (SGTraDex)
Developed by the Monetary Authority of Singapore (MAS) and the Smart Nation
and Digital Government Group (SNDGG) in collaboration with The Association of
Banks in Singapore and seven participating banks, SGFinDex tackles the prob-
lems associated with financial information for individuals spread across multiple
institutes and government agencies.

Using Singpass to correctly identify individuals, SGFinDex provides a centrally-

managed online consent system that can be utilized by multiple providers. The
user can then access their financial information held across different govern-
ment agencies, as well as financial institutions, through secure apps, thereby
consolidating and simplifying their finances.

Users access SGFinDex by first connecting to their bank online or through the
MyMoneySense service (a financial planning digital service jointly developed by
the Ministry of Manpower (MOM) and GovTech (figure 4.4.4). Once logged in,

Figure 4.4.4   Accessing Financial Data with MyMoneySense

and SGFinDex

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48
users can opt to approve the connection of the bank to SGFinDex, enabling the
secure retrieval of financial information from the bank and Myinfo.

Since its inception on December 7, 2020, SGFinDex has spurred financial planning
among participating bank customers with over 150,000 unique user sign-ups,
290,000 bank accounts linked, and 620,000 data retrievals made.

Similarly, the Singapore Trade Data Exchange (SGTraDex) is a public-private

initiative that seeks to address inefficiencies in supply chain documentation and
information flows for international trade.

This initiative has highlighted a number of key use cases in which digital technol-
ogy can provide efficiencies. These include:

▶ Strengthening Trade Finance and Converging Efficiencies

▶ Container Flow Node Decongestion
▶ Bunker Optimization
▶ Green and Sustainable Trade Finance
▶ Ship Supplies and Lighterage Optimization
▶ Demurrage Management and Optimization

To solve these key supply chain issues and create a stronger and more robust
supply chain ecosystem for international trade flows, SGTraDex provides a
common data infrastructure and easy-to-use digital tools for shippers, traders,
logistics Operators, financial institutions, and associated organizations, such as
regulators and associations.

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49
 THE FUTURE OF
5 SINGPASS AND API
EXCHANGE (APEX)

5.1 Decentralization and Alternative Trust Anchors

GovTech is actively exploring the potential of federated and decentralized iden-
tity models for Singpass. How they could be accommodated by Singpass in the
future will undoubtably influence future iterations of Singapore’s national digital
identity (NDI) ecosystem. Alternative trust anchors may also be considered, par-
ticularly for a decentralized model where user data may not be obtained directly
from an application programming interface (API), but more likely shared by the
user directly with a service.

5.2 Authorization
Currently, Singpass is used for onboarding. GovTech will soon offer businesses
the opportunity of using Singpass as a means for their customers to remotely
authorize transactions based on the strong user authentication and verification
provided by the NDI. An example might be a push notification from a banking
application to authorize a payment.

5.3 Expanding the Digital Wallet

Currently, there are plans to expand the number of digital documents that can
be held in the Singpass wallet. Each of these would be implemented in a similar
manner to the digital ID card (IC), driving license, and COVID-19 tests and vacci-
nation certificates, including the ability to selectively disclose information and to
provide adequate security controls to prevent duplication.

Likely candidates for inclusion are as follows:

▶ Identity-related cards, such as government-issued driving credentials

and military identification cards
▶ Vocation-related cards, such as commercial driving credentials and
medical practitioner certifications
▶ Benefits-related cards, such as those issued for healthcare subsidies or
for the elderly

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 5.4 Delegation
Individuals do not just interact with the government and businesses for them-
selves. They may also need to act on behalf of others, such as elderly parents and
family members with less digital literacy. Through user research, GovTech found
that families would address this by pragmatically passing around the password
and hardware token of the individual who they were transacting for. GovTech is
exploring ways of integrating ‘digital delegation’ into Singpass, so that there can
be easier ways for users to more securely delegate trusted family members to
transact digitally on their behalf.

5.5 Cross-Border Interoperability

Singapore has been working with a number of countries to explore cross-bor-
der use cases for digital identity. Digital identity is a part of the digital economy
agreements signed with Australia and the United Kingdom, and in June 2022, the
Singaporean Ministry of Trade and Industry (MTI) collaborated with the Associa-
tion of Southeast Asian Nations (ASEAN) Secretariat to convene Southeast Asia’s
first regional digital identity workshop.

5.6 Expanding APEX for the Private Sector

APEX users are currently government agencies; however, there is increasing
demand to support government-to-citizens (G2C) and government-to-busi-
ness (G2B) use cases. APEX has started exploring such use cases with the advent
of the APEX Cloud Pilot, which will also include access to APIs for private sector
service providers. During the pilot phase, these businesses will be invited by
government agencies to participate. It is expected that the eventual rollout and
widening of access to government data is likely to be met with great interest in a
country where digital services are already accepted as the norm.

5.7 APEX Moving to the Cloud

The APEX API gateway will move from a virtual machine (VM) based architecture
to a containerized design in the cloud in the next version of APEX. The current
on-premises, hosted VM-based architecture has grown to over 700 VMs, which
requires significant cost and effort to maintain. The cloud-based version aims to
reduce this issue.

The cloud version of APEX is planned to go live in March 2023, starting with a
pilot for external businesses and three major agencies in July 2022. The pilot
will feature APIs fronted by the APEX Cloud gateway and published on the API
marketplace, for whole-of-government (WOG) and select private sector service
providers. Meanwhile, the on-premises system will remain active to support con-
fidential APIs that cannot be shared beyond central government services.

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52
6 SUCCESS FACTORS
AND LESSONS

National digital identity (NDI) and government data sharing platforms, just like
any digital government solutions, rarely map directly from one country to the
needs of another country. Each country has its own particular ways of working,
including institutional arrangements, legal frameworks, attitudes towards data
protection and privacy, and requirements for ID form factors (such as smart-
cards, mobile, digital credentials, etc.). In other words, there is no one-size-fits-all
approach.

Singapore is a small and prosperous country with a strong, well-funded tech-

nology capability at the heart of government: GovTech. Many countries are not
in this position, which may make it more difficult to implement similar solutions
to Singpass and API Exchange (APEX). However, it should be recognized that
GovTech, similar to the Singpass and APEX products, has taken several years to
mature and has solved many of the problems that other countries will encounter,
such as technology choices, user adoption, and working with the private sector.
GovTech has been keen to share its experiences and takeaways related to build-
ing digital government, which will benefit many other countries.

Any country wishing to build their own NDI and government data sharing plat-
form should consider their own domestic requirements and circumstances and
then adapt or learn from the experience of Singapore and other countries. They
should not directly replicate any other approach. Equally, key building blocks for
success should always be observed, such as ensuring that critical legislation
is in place for enabling new systems and for data protection; that government
agencies have the relevant skills and coordination to manage implementa-
tion effectively and efficiently; clearly identifying the risks and putting in place
mitigation measures; and understanding the needs of vulnerable populations,
including those on the fringes, and acting on that understanding.

This section summarizes some of the key success factors and lessons from the
Singpass and APEX experience to date.

NATIONAL DIGITAL IDENTITY AND GOVERNMENT DATA SHARING IN SINGAPORE 53

 6.1 Evolution
An underlying characteristic of the approach taken in Singapore with regard to
Singpass and APEX is one of achievability. There has not been a rush to imple-
ment multiple capabilities in one huge implementation, but instead a measured
approach has been taken, starting with Singpass as a sign-in to government
services, followed by development of application programming interface (API)
gateways, enabling access to authoritative sources of data (for example, Myinfo),
and then the steady addition of new products for citizens and residents, such as
document signing, face verification, and the soon-to-come remote authorization
of transactions.

Lessons have also been learned along the way, thereby improving the usability
and security of Singpass. For instance, the username could initially be set by
users until, problems arose with regard to users remembering their username.
As a result, the username was shifted to the National Registration Identity Card
(NRIC) number or Foreign Identification Number (FIN).

This approach of solving a key problem, then constantly building on that platform
has improved confidence in users and relying parties (RPs).

6.2 Prioritizing User Experience and Understanding

the Needs of All Segments of Society
GovTech invests heavily in user experience across the development life cycle,
ingraining it not as a luxury, but as a prerequisite. All products and services are
tested with key stakeholder groups, including populations vulnerable to digital
exclusion, such as persons with disabilities and the elderly. Integrated into the
“Agile” process, it also ensures that products meet the needs of users through
user feedback. The result is very high usability and user-friendliness, as is evident
by the overwhelmingly positive feedback for the Singpass application on the
Google Play Store (a 4.7 average rating from 96k reviews) and iOS App Store (a
4.8 average rating from 3.8k reviews).15

6.3 Focusing on Use Cases and Value

The GovTech adoption strategy for Singpass has been to focus on specific sectors
that require high level of trust. The majority of the time, these sectors are regulated
and observe the greatest impetus to integrate with Singpass and digitally trans-
form their agencies and businesses. With the adoption and success of Singpass,
the focus will gradually expand to other sectors rather than trying to solve every
sector problem from the program’s initiation. Similarly, adoption of APEX has been
driven by demand for information from other government agencies.

15
Ratings as published by the Google Play Store and iOS App Store on August 2022.

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54
6.4 Identifying Authoritative Data
One of the key enablers for both Singpass and APEX was the exercise of develop-
ing the Government Data Architecture and identifying authoritative databases
as “single sources of truth” for each specific attribute. The Government Data
Architecture, in particular, created common whole-of government (WOG) stan-
dards and formats. This facilitates interoperability and data accuracy, as well
as greater privacy (as data is not replicated in multiple databases). However,
Singapore was able to accomplish this without causing any undue exclusion
because it has universal coverage of its foundational ID system, as well as
accessible mechanisms for citizens and residents to address any problems with
their data. It may be challenging for most other countries, particularly those with
larger populations and more complex conditions, to have a “single source of
truth” and thus, these countries may need to have more flexibility.

6.5 Foundational ID
Both Singpass and APEX benefit significantly from Singapore having a strong
foundational ID system. Singpass was a natural extension of the existing founda-
tional ID system. All citizens have an NRIC number from birth, and residents have
a FIN from arrival. It is also made easy by ICA and MOM to verify this information.
For many countries that do not have a foundational ID system, the basis for a
digital ID is much harder, as the identity proofing and onboarding processes
are more complex. This is the case in the UK and Australia, for example, where
multiple touchpoints are required to prove identity when creating a digital ID. This
can lead to friction and exclusion.

With respect to APEX, the NRIC number and FIN each provide a unique key
that facilitates the unique identification and matching of information across
databases.

6.6 Technology and Required Skillsets

GovTech and its predecessor, Infocomm Development Authority of Singapore
(IDA), have adopted technologies that promote interoperability and are, where
possible, open in nature—such as Open ID Connect for the authentication proto-
col of Singpass. Relying party services are therefore able to utilize any technology
or product they see fit in order to build their systems, as long as they are able to
make requests using Open ID Connect and process corresponding responses in
Singpass documentation.

APEX, including its gateway, was originally developed based on a commercial API
management platform, and while initially implemented on-premises, is currently
being redesigned for the cloud. This implies a strong internal capacity and skills
for secure hosting, as well as information security and cyber security expertise to
ensure the safety and assurance of cloud-based services.

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 6.7 Adopting Technologies Responsibly
Singapore has adopted new technologies and techniques as they become rel-
evant, rather than as they become available. An example of this is the current
approach of the Singpass application: It is not decentralised and does not rely
on distributed ledgers. It is a secure means of access to services that some may
argue takes control away from the user. However, in this case, that does not
appear to have happened, and the power of tools such as Myinfo, as well as their
rapid adoption, have attested to this.

It should also be noted that, although the Singpass team initially chose the cen-
tralized model with Myinfo, they are also constantly reacting to changing user
requirements and sentiments. For example, in response to the increasing need
for user privacy (that is, users not wanting the government to know which RPs
they share data with), the Singpass team is starting to explore a decentralized
model of data sharing and how that may function in the future.

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