Department of Health and Human Services 
OFFICE OF 
INSPECTOR GENERAL 
BIRTH CERTIFICATE 
FRAUD 
JUNE GIBBS BROWN 
Inspector General 
SEPTEMBER 2000 
0EI-07-99-00570  OFFICE OF INSPECTOR GENERAL 
The mission of the Office of Inspector General (OIG), mandated by Public Law 95-452, as 
amended by Public Law 100-504, is to protect the integrity of the Department of Health and 
Human Services programs as well as the health and welfare of beneficiaries served by them.  This 
statutory mission is carried out through a nationwide program of audits, investigations, 
inspections, sanctions, and fraud alerts.  The Inspector General informs the Secretary of program 
and management problems and recommends legislative, regulatory, and operational approaches to 
correct them. 
Office of Evaluation and Inspections 
The Office of Evaluation and Inspections (OEI) is one of several components of the Office of 
Inspector General.  It conducts short-term management and program evaluations (called 
inspections) that focus on issues of concern to the Department, the Congress, and the public.  The 
inspection reports provide findings and recommendations on the efficiency, vulnerability, and 
effectiveness of departmental programs. 
OEI's Region VII, Kansas City office prepared this report under the direction of James H. Wolf, 
Regional Inspector General, and Brian Pattison, Deputy Regional Inspector General. 
Principal OEI staff included: 
REGION  HEADQUARTERS 
Deborah Walden, Team Leader
 Linda Hall, Program Specialist

Mike Craig, Program Analyst
 Barbara Tedesco, Technical Support Staff

Tricia Fields, Program Analyst

Linda Paddock, Program Analyst

Dennis Tharp, Program Analyst

Elander Phillips, Program Inspection Assistant

To obtain copies of this report, please call the Kansas City Regional Office at (816) 426-5959. 
Reports are also available on the World Wide Web at our home page address: 
http://www.hhs.gov/oig/oei/  E X E C U T I V E   S U M M A R Y  
PURPOSE 
To provide an update on the nature and extent of birth certificate fraud. 
BACKGROUND 
Legitimate birth certificates provide vital information about the person whose name 
appears on the certificate.  Issuing birth certificates is the responsibility of State vital 
records registrars and numerous local issuing entities.  While originally intended for the 
sole purpose of birth registration, birth certificates are now used extensively for 
employment purposes and to obtain benefits or other documents used for identification. 
Over the last 25 years, a number of studies have addressed problems related to false 
identification and the misuse of birth certificates.  These studies conclude that false 
identification is a major factor in crime, and that most, if not all, Federal fugitives and drug 
trafficking crimes are associated with false identification.  They also conclude that stolen, 
counterfeit, and altered birth certificates are often used as breeder documents that allow 
the holder to obtain documents needed to create new identities.  The Office of Inspector 
General has conducted three inspections focused specifically on birth certificate fraud that 
identified a number of vulnerabilities in birth certificate processes.  Because so many 
Federal and State agencies rely on birth certificates to assist them in determining eligibility 
for services and benefits, it is important that these agencies have current information on 
the nature and extent of birth certificate fraud to assist them in the proper assignment and 
protection of benefits. 
This inspection was initiated at the request of the Department of Health and Human 
Services to provide information which the Department could use in responding to 
responsibilities placed on it as a result of the Illegal Immigration Reform and Immigrant 
Responsibility Act of 1996. 
We used two mechanisms to gather information.  We gathered general information 
regarding vital records policies and procedures from 53 primary vital records registrars 
using mail surveys.  We also collected more in-depth information through personal 
interviews with State registrars, fraud investigators, and local and State vital records, 
Passport Services, Immigration and Naturalization Services, Social Security 
Administration, and public assistance staff in five States and New York City.  We also met 
with the Center for Disease Control and Prevention (CDC), National Center for Health 
Statistics, staff who provided us with comments on the draft of this report. 
FINDINGS 
Fundamental, Irreconcilable Conflicts Surround Birth Certificate Purposes 
and Uses 
A certified copy of a birth certificate is proof only that a birth occurred and was recorded. 
For that purpose, it may be desirable that the public be allowed easy access to them. 
However, the agencies and organizations that use birth certificates as proof of 
i 
Birth Certificate Fraud  OEI- 07-99-00570  identification for employment purposes, to obtain benefits or other documents 
(e.g., drivers licenses, Social Security cards, and passports), and to assist them in 
determining eligibility for public assistance and other benefits, may have concerns with 
how easily certified copies of birth certificates can be obtained.  These conflicting 
perspectives are at the very heart of the birth certificate controversy. 
Birth Certificates Continue to be Used as Breeder Documents and are Easy to 
Obtain 
Virtually all Federal and State agencies agree that fraudulent birth certificates are used as 
breeder documents to obtain the genuine documents needed to create new identities, 
and that fraudulent birth certificates are easy to obtain.  Factors which contribute to their 
use as breeder documents include the following: 
S	 currently, 6,422 different entities issue birth certificates.  This large number of 
State, county, city, township, and other entities that issue birth certificates 
increases opportunities for fraud, theft, bribery, and other methods of illegally 
obtaining birth certificates; 
SS	 thirteen States allow open access to birth records, which allows virtually anyone 
to purchase copies of any birth certificates on file; and 
SS	 birth certificates can be purchased without identification from some vital records 
offices and issuing entities. 
Birth Certificate Fraud is Hard to Detect 
Many altered or counterfeit birth certificates and genuine birth certificates held by 
imposters may go undetected.  The reasons why these fraudulent birth certificates are hard 
to detect include the following: 
S  over 14,000 different versions of birth certificates are in circulation; 
S  nearly 4 million United States births were registered in 1999; 
S	 security features contained in the paper used to issue birth certificates, as well as 
formats and signatures, vary among State vital records offices and the many local 
entities issuing them; 
S	 technological advances in the Internet, scanners, color printers, and copiers make 
it easier to obtain genuine birth certificates and create counterfeit ones; 
S	 between 85 and 90 percent of the birth certificate fraud encountered by the 
Immigration and Naturalization Services and Passport Services staff is the 
result of genuine birth certificates held by imposters -- the most difficult fraud to 
detect; and 
S	 Federal and State agency staff report receiving only limited training focused on 
the detection of fraudulent birth certificates. 
ii 
Birth Certificate Fraud  OEI- 07-99-00570  State Practices Create Opportunities for Fraud 
It was the consensus of those we interviewed that a number of State practices create 
opportunities for fraud.  Those practices include the following: 
S	 delayed, amended, and midwife birth registrations that are based on affidavits of 
personal knowledge, include no documentary evidence, and are not often marked 
or overlaid accordingly; 
S	 delays in matching death and birth records can make the identities of many 
deceased persons easy to assume between the time the person dies and the time the 
death and birth records are matched; 
S  questionable physical security situations that create opportunities for fraud; and 
S  limited oversight of local issuing entities by State vital records offices. 
Birth Certificate Fraud is Seldom Prosecuted 
Virtually all of the Federal and State agency staff we talked with indicate birth certificate 
fraud is seldom prosecuted unless it can be linked to large dollar losses or other punishable 
crimes.  Most staff also indicate that many prosecutors are reluctant, or refuse to take 
birth certificate fraud cases in which the only charge is attempting to obtain another 
individuals birth certificate, or counterfeiting or altering a birth certificate.  At the same 
time, misconceptions exist surrounding the security and integrity of birth certificates. 
CONCLUSIONS 
Birth Certificates Alone do not Provide Conclusive or Reliable Proof of Identity 
Many agencies and organizations request that individuals provide their birth certificates to 
receive a benefit or service, or to support the issuance of other documents often used for 
identity purposes (e.g., drivers license).  However, agencies who rely on birth certificates 
as a means of establishing identity must understand the limitations of accepting a birth 
certificate as proof of age, citizenship, or identity.  For example, genuine documents 
obtained with counterfeit birth certificates can be used to obtain genuine birth certificates. 
Thus, it is inherently illogical to require someone to prove their identity using potentially 
fraudulent identity documents spawned by false birth certificates in order to obtain a birth 
certificate. 
Further, it would be Impractical to Redesign Birth Certificates to Make them 
Reliable Identification Documents in and of Themselves 
Efforts to make the birth certificate into a reliable identity document are complicated 
by the more than 14,000 different legitimate versions in existence, and the more than 
6,000 entities which issue them and the processes they use to do so. Efforts are also 
complicated by the ease with which birth certificates can legitimately be obtained and 
counterfeited, and the fact that the majority of fraud is now being committed by imposters 
iii 
Birth Certificate Fraud  OEI- 07-99-00570  using genuine birth certificates.  Also, any changes to the birth certificate itself will take 
essentially a lifetime to become effective. 
Some Efforts to Redesign Birth Certificates Might Even be Undesirable 
The primary purpose for which birth certificates were created -- to document and record 
births -- is served well by the large number of entities that issue them and the technology 
which makes them readily and quickly available.  Because redesigning birth certificates 
could jeopardize their availability, to do so might be undesirable.  Unfortunately, that 
availability contributes to fraud and the unreliability of birth certificates as identification 
documents. 
Nevertheless, Since Birth Certificates can Play an Important Role in Establishing 
Identity, Their Integrity Should be Improved 
When used in combination with other documents, birth certificates can add to the level of 
proof in establishing eligibility and identity.  As noted previously, many agencies use them 
in this way.  Therefore, it is important that the processes used to issue birth certificates be 
standardized and recent advances in technology utilized to ensure birth certificate integrity 
parallels that of other identification documents.  It is also important that user agencies be 
vigilant in their detection of fraudulent documents and documents held by imposters.  We 
have included consensus suggestions for improving the birth certificate process and the 
detection of fraud in the body of the report. 
In Addition, Federal and State Program Administrators Should Assess the Proofs 
of Identity They Will Accept 
Even if their security is improved, birth certificates may still not be the best proof of 
identity.  For this reason, program administrators may not want to use birth certificates at 
all, or use them only with other documents, as noted above.  Agencies need to specify 
documents and methods of proving identity  (e.g., fingerprints, testimony of relatives) they 
will accept in determining eligibility for services.  Given what we have learned, if program 
administrators continue to include birth certificates in the proofs of identity they will 
accept, they should also reconsider what steps they will take to detect fraudulent 
certificates and to secure valid ones. 
iv 
Birth Certificate Fraud  OEI- 07-99-00570  T A B L E   O F   C O N T E N T S  
PAGE

EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  i

INTRODUCTION  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  2

FINDINGS 
Irreconcilable Conflicts Regarding Goals and Uses  . . . . . . . . . . . . . . . . . . . . . .  6

Certificates Used As Breeder Documents  . . . . . . . . . . . . . . . . . . . . . . . . . . .  7

Difficulty in Detecting Fraud  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  11

State Practices  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  14

Birth Certificate Fraud Seldom Prosecuted  . . . . . . . . . . . . . . . . . . . . . . . . . . .  18

Common Misconceptions  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  19

CONCLUSIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  20

APPENDICES 
A:  State and Local Birth Certificate Issuing Entities . . . . . . . . . . . . . . . . . . . .  24

B:  Paper Security Features . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  25

1 
Birth Certificate Fraud  OEI- 07-99-00570  I N T R O D U C T I O N  
PURPOSE 
To provide an update on the nature and extent of birth certificate fraud. 
BACKGROUND 
The Birth Certificate Process 
Legitimate birth certificates provide vital information about the person whose name 
appears on the certificate (i.e., legal proof of parentage, citizenship, date, place, and time 
of birth).  While originally intended for those purposes, their role has evolved to the point 
where they are now used extensively for employment purposes and to obtain benefits or 
other documents (e.g., drivers licenses, Social Security cards, passports, State 
identification documents).  The issuance of birth certificates in the United States is the 
responsibility of 57 State vital records registrars and numerous other entities assigned vital 
records responsibility. 
No Federal requirements exist regarding the reporting and collection of birth certificate 
information.  However, the 1992 Model State Vital Statistics Act and Regulations 
published by the National Center for Health Statistics within the Centers for Disease 
Control and Prevention (CDC) state that Even though the legal responsibility for the 
registration of vital records rests with the individual States, the States and the National 
Center for Health Statistics (the Federal partner) work together to build a uniform system 
that produces records to satisfy the legal requirements of individuals and their families and 
also to meet statistical and research needs at the local, State, and national levels.  The 
cooperation includes the development and promotion of standard certificates and 
reporting forms, training and quality control programs, and model legislation.  The 
information contained on birth certificates is the basis for the vital record information 
reported to the National Center for Health Statistics by State vital records registrars. 
States report vital records information without names to the National Center for Health 
Statistics for research and statistical purposes. 
Previous Reports on Birth Certificate Fraud 
Federal Advisory Committee on False Identification - Problems related to false 
identification and misuse of birth certificates have been addressed in a number of studies 
conducted over the last 25 years.  In 1974, the Federal Advisory Committee on False 
Identification (FACFI), commissioned by the Attorney General of the United States, 
recognized the criminal use of false identification documents.  In its 1976 report entitled 
2 
Birth Certificate Fraud  OEI- 07-99-00570  The Criminal Use of False Identification, the committee concluded that 100 percent of all 
Federal fugitives and 80 percent of all drug trafficking are associated with false 
identification.  They also reported that false identification is a major factor in crime, 
including illegal immigration and flight from justice, and that falsified or stolen vital 
statistics (i.e., birth certificates) are used as breeder documents.  (Breeder documents 
refer to documents that allow the holder to obtain other documents -- passports, drivers 
licenses, etc. -- and benefits, such as resident status, Social Security benefits, loans, and 
other government aid, including Temporary Assistance to Needy Families, Food Stamps, 
and Medicaid).  The Federal Advisory Committee also issued a supplemental report 
entitled A Plan for Reducing the Abuse of Birth Certification.  In 1984, the Laws at Work 
Task Force, co-chaired by top HHS officials, issued a report entitled A Report of the Task 
Force on Criminal Implications of False Identification.  These two reports on false 
identification have findings similar to the 1976 report. 
National Association for Vital Records - In 1995, the National Association for Vital 
Records and Health Statistics (now called the National Association for Public Health 
Statistics and Information Systems), issued a staff report identifying many of the same 
problems associated with birth certificate fraud.  They recommended uniformity and 
standardization of the forms and paper used to issue certified copies of birth certificates 
and further suggested that more resources be directed toward matching death and birth 
information. 
Office of Inspector General - The Office of Inspector General (OIG) conducted two 
inspections focused specifically on birth certificate fraud (Birth Certificate Fraud, 
OAI-86-02-00001, March 1988, and Birth Certificate Fraud Update - A Management 
Advisory Report, OEI-02-91-01530, December 1991).  The OIG also issued a third report 
(Citizenship and Alien Verification - Information, September 1996) in which birth 
certificates were discussed.  The first inspection identified vulnerabilities in the birth 
certificate process, the many forms of birth certificates in existence, and issuance 
procedures.  The report recommended both interstate and intrastate standardization of 
birth certificates, minimum security standards, and improvements in matching death and 
birth records, and further recommended that States work cooperatively with the Social 
Security Administration (SSA) to establish procedures to issue Social Security numbers to 
infants at birth.  The second inspection was conducted in response to a request from the 
Commissioner of the Social Security Administration and summarized SSAs efforts to 
control birth certificate fraud, which included verification of United States Virgin Island 
birth certificates and assignment of Social Security numbers at birth.  In this study, we 
found the nature and extent of birth certificate fraud relatively unchanged since 1988 and 
that major weaknesses continued to hamper the reliability of birth certificates as evidence 
of eligibility for program services and benefits, even though some incremental 
improvements had been made.  We reported the same problems and weaknesses in our 
1996 report. 
3 
Birth Certificate Fraud  OEI- 07-99-00570  This Inquiry 
This inspection was initiated at the request of the Department of Health and Human 
Services in the fall of 1999.  The Department requested that the OIG provide information 
that the Department could use in responding to responsibilities placed on it as a result of 
the Illegal Immigration Reform and Immigrant Responsibility Act of 1996.  More 
specifically, the Act requires the Secretary to submit a report to Congress on ways to 
reduce the fraudulent obtaining and use of birth certificates.  This inspection focuses on 
the processes of issuing and fraud associated with certified copies of birth certificates. 
The OIG was asked to provide this information because of our previous work in the area 
of birth certificate fraud at a time when the SSA was located within the Department, and 
because public assistance programs currently funded by the Department still rely on birth 
certificates as one proof of identification in determining eligibility.  Further, because so 
many State and Federal agencies rely on birth certificates in determining eligibility for 
services and benefits, we feel it is important that they have current information regarding 
the status of birth certificate fraud. 
METHODOLOGY 
We used two mechanisms to conduct this inspection.  We first solicited information from 
the 57 primary vital records offices (50 States, Guam, Puerto Rico, United States Virgin 
Islands, American Samoa, Commonwealth of the Northern Mariana Islands, New York 
City, and Washington, DC) using mail surveys.  This enabled us to quickly gather general 
information regarding vital records policies and procedures; security measures in place to 
protect against birth certificate fraud; coordination with other agencies; and enforcement 
penalties for committing identity fraud.  Of the 57 surveys mailed, 53 were completed and 
returned.  We received completed surveys from vital records registrars in each of the 50 
States, and New York City, Washington, DC, and Puerto Rico.  We did not receive 
completed surveys from American Samoa, Commonwealth of the Northern Mariana 
Islands, Guam, or the United States Virgin Islands. 
We selected six locations -- five States (California, Florida, Massachusetts, New Mexico, 
and Texas) and New York City -- for additional data collection.  Of these States, 4 were 
among the 11 States included in the 1988 and 1991 OIG inspections, as was 
New York City.  The original 11 sites were selected because they represent states with 
large cities, cities that serve as major ports, or cities along the United States-Mexico 
border where birth certificate fraud was more concentrated.  Because we believe this 
premise remains valid, we included some of these same States in this study.  We included 
New Mexico based on information obtained from State registrars, the Immigration and 
Naturalization Service, and the National Center for Health Statistics during preinspection. 
The locations selected represent a mix of States with open and restricted (limited) 
public access to records, and include various geographic regions. 
4 
Birth Certificate Fraud  OEI- 07-99-00570  In the six locations, we collected more in-depth information about the coordination 
between agencies, matching death registration and birth certificates, security measures, 
enforcement, and the effects of new technology on birth certificate fraud.  This 
information was obtained through personal interviews with State registrars, fraud 
investigators, local and State vital records agency staff, and local and State Temporary 
Assistance for Needy Families agency staff.  We also collected information from the 
Departments of Motor Vehicles and Food Stamps staffs who require birth certificates as 
proof of eligibility for program services or benefits, and officials from SSA, Immigration 
and Naturalization Service, and State Departments Passport Services.  We also met with 
the Center for Disease Control and Prevention, National Center for Health Statistics staff 
who provided us with comments on the draft of this report 
We conducted this inspection in accordance with the Quality Standards for Inspections 
issued by the Presidents Council on Integrity and Efficiency. 
5 
Birth Certificate Fraud  OEI- 07-99-00570  F I N D I N G S  
In conducting this inspection, we heard many stories of people whose lives have been 
adversely affected by birth certificate fraud -- people who were personally victimized by 
stolen identities and suffered financial ruin.  Others stories were more far-reaching, 
describing the criminal use of fraudulent birth certificates to evade law enforcement for 
crimes already committed, commit bank or credit card fraud, or obtain services and 
benefits for which individuals were not entitled.  We also heard stories about fraudulent 
birth certificates used by terrorists and drug traffickers to acquire passports for 
international travel, and by illegal aliens attempting to avoid detection and deportation. 
The common threads running through each of these stories are 1) fraudulent birth 
certificates were involved, 2) most false identity crimes go undetected, 3) once detected, 
few false identity crimes are successfully prosecuted, and ultimately, 4) each one of us is 
affected by birth certificate fraud every day. 
Recent Congressional and media attention on the subjects of identity theft and the sale of 
false identification documents via the Internet, and the statements of State and Federal 
staff with whom we spoke, reflect concerns regarding the fraudulent use of birth 
certificates.  Virtually everyone with whom we spoke indicated that they believe birth 
certificate fraud is increasing, and 34 State registrars responded in the survey that birth 
certificate fraud has increased in the last 10 years. 
To this end, the primary focus of this report and the majority of our findings address the 
status of birth certificate fraud.  However, one of our most striking findings is related to 
the disconnect between the intended purposes of birth certificates and the purposes for 
which they are used. 
Fundamental, Irreconcilable Conflicts Surround Birth 
Certificate Purposes and Uses 
A Birth Certificate is Proof Only that a Birth Occurred and was Recorded.  It is 
important to recall the intended purpose of a birth certificate -- to certify that a birth was 
documented and recorded.  For that purpose, it is not unreasonable that State laws allow 
public access to these records.  Efforts to restrict access to birth certificates would 
diminish their value for the purpose they were originally designed to serve. 
However, Birth Certificates are Used as Proof of Age, Citizenship, and Identity. 
Birth certificates are widely recognized as proof of age, place of birth, and identity.  They 
are also used extensively for employment purposes, to obtain benefits or other documents 
(e.g., drivers licenses, Social Security cards, and passports), to assist in determining 
eligibility for public assistance and other benefits, to enroll children in school, and as proof 
of age eligibility for sports and other age restricted activities.  However, because 
6 
Birth Certificate Fraud  OEI- 07-99-00570  they were never designed to provide sole proof of identity, and because a birth certificate 
cannot be positively linked with an individual, their use for that purpose is questionable. 
Concerns about Birth Certificates are Largely the Result of Conflicting 
Perspectives.  The key to understanding the conflicts between the goals of State and local 
entities who register births and issue birth certificates and agencies and organizations that 
rely on birth certificates as proof of identification is understanding and interpreting 
individual perspectives.  For example, those seeking access to public records may look 
favorably on vital records offices efforts to make it easier to request and obtain birth 
certificates, while those using birth certificates for identity purposes may have concerns 
with how easily certified copies of birth certificates can be obtained. 
These varying perspectives are at the very heart of the birth certificate controversy and 
should be kept in mind as you read the following findings related to birth certificate fraud. 
Birth Certificates Continue to be Used as Breeder 
Documents and Are Easy to Obtain 
As we previously reported in 1988, 1991, and 1996, birth certificates continue to be used 
as breeder documents from which other supporting documents can be secured to alter 
identities and fraudulently obtain services and benefits.  Virtually all Federal and State 
agencies agree that fraudulent birth certificates are used to obtain genuine documents, and 
in concert with other fraudulent documents, to create new identities.  The perpetrator 
usually begins with a purchased, stolen, counterfeit, or altered birth certificate.  The birth 
certificate is then used as the basic evidence of age, citizenship, and identity to seek and 
obtain other documents and/or benefits. 
Birth Certificate o Social Security Card o Drivers License 
= 
Services/Benefits/Credit/Crime 
The following two instances demonstrate how birth certificates have provided the basis for 
improper program payments. 
A joint investigation conducted by the Assistant U.S. Attorney for the Southern 
District of Texas in cooperation with the Immigration and Naturalization Services, 
Social Security Administration, public assistance, Food Stamps, U.S. Postal 
Service, and Secret Service identified 100 cases in which fraudulent birth 
certificates had been used to obtain public assistance, Food Stamps, and Medicaid 
benefits totaling $514,741.1 
1 
Source: Texas Department of Human Services, Office of Inspector General
7 
Birth Certificate Fraud  OEI- 07-99-00570  In another case, fraudulent birth certificates found at the scene of an automobile 
accident were linked to $1 million in public assistance and Food Stamps fraud. 
Some of the birth certificates used to obtain these services were genuine 
documents that had been sold by the persons whose names appeared on them. 
Others were counterfeit documents printed on genuine birth certificate banknote 
paper used by one States vital records office, which investigators suspect were 
acquired as part of an inside job.  Staff interviewed in a public assistance agency 
referred to the children created to obtain these services as paper babies because 
they exist only on paper, for the sole purpose of fraudulently obtaining benefits.2 
The first step in understanding why birth certificates are easy to obtain, thus making them

useful as breeder documents, is to understand how they are issued.  It is also important

to know that the issuance of birth certificates varies from State to State and can vary

within States.  Factors which contribute to the continued use of birth certificates as

breeder documents, and that remain relatively unchanged since our earlier reports are as

follows. 

Currently, 6,422 Entities Issue Birth Certificates.  The majority of States use a

decentralized approach for issuing birth certificates, relying on local offices over which

they have limited control.  In 39 States and Puerto Rico, birth certificates are issued by a

number of local vital records registrars and other officials (e.g., county clerks, justices of

the peace, mayors) in county, city, and township offices in addition to the State vital

records office.  Only 11 States, Washington, DC, and New York City use a centralized

operation for issuing birth certificates.

The large number of locations issuing birth certificates potentially increases the

opportunities for fraud, theft, bribery, or other methods to illegally obtain birth

certificates.  In total, the registrars responding to our survey report 6,417 different

locations where birth certificates can be issued.  The National Center for Health Statistics 

indicates an additional five entities issue birth certificates within the jurisdictions of the

four primary vital registrars that did not respond to our survey.  A chart outlining the

reported number of locations where birth certificates are issued in each State,

New York City, Washington, DC, and Puerto Rico is located in Appendix A.

Most State and county issuing offices are located within the auspices of their respective

health departments.  The sale of birth certificates serves as source of revenue for States

and the only source of revenue for some State health departments, thus creating no

disincentive for issuing birth certificates.  The sale of birth certificates can serve also as a

major source of revenue for many local offices.  For these departments and offices,

restrictions on the issuance of birth certificates could adversely affect revenues. 

2 
Source: Kansas Department of Health and Environment, Center for Health and Environmental Statistics, Office of Vital Statistics
8 
Birth Certificate Fraud  OEI- 07-99-00570  Some States Allow Open Access to Birth Records.  In 36 States, New York City, 
Washington, DC, and Puerto Rico, access to birth records is considered restricted.  In 
these locations only the person listed on the birth certificate and others designated for 
access by State or local governments (e.g., parent, child, sibling, grandparent, or others 
who demonstrate a direct and tangible interest) can obtain certified copies of a birth 
certificate.  However, in 14 States, public access to birth records is open at the State or 
local level, and virtually anyone can review birth records or purchase a copy of any birth 
certificate from issuing entities as long as they know the name and birth date of the person 
listed on the birth certificate.  There are 2,375 such open access locations in these 
States, which account for 37 percent of the 6,422 issuing offices nationwide. 
C	 Ten of the 14 States allow open access at both the State and local levels and 
treat requests for birth certificates the same in all locations. 
C	 Two States allow open access at the State level, but allows only restricted 
access in all local offices within the State. 
C	 Two States allow only restricted public access to birth records at the State level, 
but open at the local level.  They allow birth registration indexes and/or actual 
birth certificates to be openly viewed in local offices and thus provide enough 
information to request copies of certificates from the State registrars office. 
We have identified open access at both the State and local level, and the number of

issuing offices in each of those States, in the following chart.

.

Open Access to Vital Records 
Issuing Entities  Total 
State  Local  Number of 
State  Level  Level  Issuing Offices 
California     63 
Iowa    101 
Kentucky    1 
Maine     498 
Massachusetts     352 
Minnesota     98 
New Jersey     566 
North Carolina    102 
Ohio     144 
South Dakota     65 
Tennessee    28 
Vermont     248 
Washington     34 
Wisconsin     75 
2,375 
9 
Birth Certificate Fraud  OEI- 07-99-00570  Copies of birth certificates can be obtained from primary vital records offices and local 
entities by using a variety of methods.  With the exception of California, all of the 
responding primary vital records registrars indicate birth certificates can be obtained from 
their offices on a walk-in basis.  All 53 State vital records offices and local offices in 
34 States also issue birth certificates in response to requests they receive in the mail. 
Thirty-eight primary offices and an unknown number of local offices in seven States also 
allow credit card purchases of birth certificates based on telephone requests.  Birth 
certificates can also be purchased through the Internet in 29 States, and from an unknown 
number of local offices. 
Proof of Identification Is Not Always Required to Obtain Copies of Birth 
Certificates.  Proof of identification is required for walk-in requests in only 30 primary 
vital records offices and local offices in 19 States. In addition, only 11 States require 
persons to provide proof of identification when requesting copies of birth certificates by 
mail.  Local offices in fewer States (7) require proof of identification for mail requests. 
Even fewer primary and local offices request proof of identification for Internet and 
facsimile requests as indicated in the following chart. 
Number of Vital Records Offices Accepting Type of Request 
and Proof of Identification Required 
State  Local 
Type of Request  Accept/Require ID  Accept/Require ID 
Walk-in  52/30  39/19 
Phone/Credit Card  38/7  10/1 
Mail/Check or Money Order  53/11  34/7 
Mail/Credit Card  22/2  8/2 
Internet/Credit Card  29/5  3/2 
Facsimile/Credit Card  41/9  10/2 
When asked what they consider acceptable forms of identification, the registrars 
interviewed said they would prefer a drivers license or State issued identification card as 
proof of identity, but some indicated they would also accept identification documents with 
any type of control number (e.g., employment badges, library cards, bus passes) or 
utility bills as proof of identification.  We also learned the laws in one open access State 
(California) prohibit issuing offices from asking for identification.  As long as the person 
requesting the birth certificate can provide the required information (i.e., name, date of 
birth), he or she can obtain a certified copy of a birth certificate.  In addition to the lack of 
identification documents, 43 States also have no limits on the number of copies of birth 
certificates that can be purchased, and 31 States have no restrictions on the age of persons 
to whom they will sell birth certificates.  The lack of restrictions make it easier to 
perpetrate systematic fraud. 
10 
Birth Certificate Fraud  OEI- 07-99-00570  Fraudulent Birth Certificates are Hard to Detect 
With the exception of detection by highly trained Immigration and Naturalization Services 
and Passport Services staff, information we obtained indicates many altered or counterfeit 
birth certificates and genuine birth certificates held by imposters may go undetected. 
Officials who use birth certificates to determine eligibility for services and benefits say they 
fail to detect many fraudulent documents, and the ones they do detect are only the tip of 
the iceberg.  In attempting to identify fraudulent birth certificates, SSA, public assistance, 
Department of Motor Vehicles, and some Immigration and Naturalization Service staff 
indicate their efforts to detect fraudulent birth certificates focus only on obvious 
alterations, such as erasures, smudges, white-out, misspelled words, offset margins, poor 
seals, dates that do not match, or photocopies.  However, information we obtained 
indicates birth certificates are vulnerable to fraud beyond the obvious in the following 
areas. 
The Large Number of Legitimate Birth Certificates in Circulation Make Fraud 
Detection Difficult.  Staff at the Immigration and Naturalization Services Forensics 
Document Laboratory3 estimate more than 14,000 different versions of legitimate birth 
certificates currently exist.  The number of different versions is the result of the more than 
6,000 entities issuing birth certificates using different formats, types of paper, and different 
signatures (e.g., State registrars, county registrars, or clerks, mayors, and justices of the 
peace).  Once a birth certificate is issued, it never expires, meaning that security features 
added to new birth certificates will offer no protection against fraud in previously issued 
birth certificates.  The National Center for Health Statistics reports that 3,957,829 United 
States births were registered in 1999. 
In addition, responses to our survey revealed State vital records offices currently issue 113 
different types of certified copies of birth records.  This number does not account for the 
number of variations in local office issuance.  Fifty-one of the 53 primary vital records 
offices issue certified photocopies of actual birth records, 37 issue certified copies of 
computerized abstracts of birth records, 17 issue wallet-sized birth certificates/cards, and 8 
issue commemorative birth certificates, each with their own unique security features and 
signatures.  In addition, survey respondents report that, in 20 States, local entities issue 
full photocopies of actual birth records, 16 States local entities issue certified copies from 
computerized abstracts, 17 States local entities issue wallet-sized certificates, and 4 
States local entities can issue commemorative birth certificates. 
Differences in Paper, Security Features, Formats, and Signatures Make Fraudulent 
Birth Certificates Hard to Detect.  All State vital records offices issue birth certificates 
on security paper, but the security features vary from State-to-State.  Some local offices 
3 
The Forensics Document Laboratory provides a wide variety of forensic document analysis and law enforcement services for the
Immigration and Naturalization Services and other Federal, State, and local law enforcement agencies. It also develops and presents 
training programs in the detection of fraudulent documents, assists in identifying fraudulent documents, and acts as a liaison in promoting 
common efforts to combat international document fraud. 
11 
Birth Certificate Fraud  OEI- 07-99-00570  also issue birth certificates on security paper, but in 14 of the local offices with local 
issuance they use different security paper than the State vital records office.  (One local 
office we visited issues birth certificates on plain white bond paper.)  The security features 
most often used by both State and local offices are serial numbers, watermarks, and micro-
line printing.  Other paper security features used include intaglio and steel-engraved 
borders, ultraviolet ink, security threads, substrate paper or ink, hidden voids, and latent 
images.  A chart outlining the security features contained in the paper used by State vital 
records registrars is located in Appendix B. 
Adding to the potential number of different types of valid birth certificates in existence is 
the unknown number of changes in paper used to issue birth certificates, the number of 
different formats used, and the number of different registrars signatures that have 
appeared on birth certificates since the birth registration began in most States in the early 
1900's.  State registrars interviewed estimate periodic changes in paper and/or formats 
occur every 8 to 10 years, and that registrar signatures could change more frequently, 
especially when registrars are local elected officials (e.g., county clerks, mayors).  States 
and local offices also make changes in the vendors from whom they purchase their security 
paper.  Some change vendors annually because State laws require that they purchase from 
the lowest bidder.  Local offices also make periodic changes in the vendors from whom 
they order their security paper, and many order paper based on State issued specifications, 
but not from the same vendor used by the State. 
Technological Advances Make Counterfeit Birth Certificates Easy to Create and 
Hard to Detect.  Advances in communication (e.g., the Internet) and technologies 
(e.g., scanners, color printers and copiers) make it easier to obtain genuine birth 
certificates fraudulently or to create fraudulent birth certificates.  These technological 
advances render the once standard methods of detecting fraudulent documents generally 
ineffective.  With the exception of one public assistance office, which requires every 
applicant to be fingerprinted, virtually everyone we talked with says technology has made 
birth certificate fraud more likely.  This is supported by the 27 primary vital records 
registrars responding to our survey who also say that technology has created new 
opportunities for fraud. 
Our discussions also reveal that technology has made birth certificates the path of least 
resistance because, as other departments and agencies have increased the security 
features in their documents (e.g., Social Security cards, drivers licenses, and immigration 
documents), less secure birth certificates have been targeted for counterfeiting.  As 
previously noted, counterfeit birth certificates are then used to obtain genuine Social 
Security cards, drivers licenses, and, ultimately, new identities.  With each genuine 
document acquired, a persons new identity becomes harder to detect. 
Information available through the Internet poses a significant security risk to the integrity 
of birth certificates.  Not only are birth certificates available through the Internet, but the 
vital statistics necessary to request some birth certificates can be found using the Internet 
as well.  Some vital records offices also post indexes, containing the names and birth dates 
of people for whom they have registered births, on their websites. 
12 
Birth Certificate Fraud  OEI- 07-99-00570  At least one local vital records office, at one time, posted scanned copies of actual birth 
certificates on their website.  Many hospitals also have established websites where they 
post newborn information, and independent companies offer websites that allow parents to 
share their newborns vital records information with anyone who accesses the site.  We 
found many websites offering information to assist in creating new identities and websites 
offering novelty fake identification (many of which include birth certificates, Social 
Security cards, and drivers licenses).  Federal and State staff we spoke with said the price 
on-the-street for a new identity, which includes a birth certificate, and often a drivers 
license and Social Security card, is between $500 and $1,200. 
Most Birth Certificate Fraud is Committed Using Genuine Documents.  An alarming 
fact is that most of the fraudulent documents identified by Immigration and Naturalization 
Services staff are genuine documents held by imposters, the most difficult frauds to detect. 
For example, staff in the El Paso Intelligence Center4 indicate that 90 percent of the false 
claims cases they see involve bonafide birth certificates held by imposters.  Passport 
Services staff report parallel statistics, stating that 85 percent of the birth certificate fraud 
they encounter also is the result of genuine birth certificates held by imposters.  Further, 
vital records registrars responding to our survey indicate they have encountered persons 
impersonating others to obtain genuine copies of those persons birth certificates, 
individuals who had purchased birth certificates from the persons named on the birth 
certificate, and persons who had stolen or acquired stolen birth certificates. 
Federal and State agency staff say genuine documents held by imposters are difficult to 
detect.  They also note that increased customer service is impacting their abilities to detect 
fraudulent documents and say serving a large number of customers with limited resources 
leaves little time to examine identification documents.  We highlight our discussions with 
them below. 
S	 Public Assistance and Food Stamps agency staff say they detect virtually no birth 
certificate fraud. 
S  SSA staff report detecting only limited attempts at birth certificate fraud. 
S	 Immigration and Naturalization Service regional office staff indicate they may 
only be detecting common alternations and obvious counterfeits. 
S	 Passport Services staff note fraudulent birth certificates are getting harder to 
detect and that imposters are almost impossible to detect once they have obtained 
a genuine passport. 
4 
The El Paso Intelligence Center is staffed by the Drug Enforcement Agency, Immigration and Naturalization Services, 
and 13 other agencies to collect information on drug trafficking, immigration violations, and other crimes. 
13 
Birth Certificate Fraud  OEI- 07-99-00570  Agencies Receive Little Training Focused on the Detection of Fraudulent Birth 
Certificates.  Staff who depend on birth certificates as proof of citizenship and eligibility 
for services or benefits report receiving little training focused on the detection of 
fraudulent birth certificates, and that training received is focused on obvious attempts at 
counterfeiting.  As such: 
S	 SSA district and field office staff, and Department of Motor Vehicles office 
employees indicate they receive only limited training focused on the identification 
of fraudulent birth certificates. 
S	 Public Assistance and Food Stamps agency staff note receiving little or no training 
to assist them in detecting fraudulent birth certificates. 
S	 Immigration and Naturalization Service staff receive internal training to assist 
them in the identification of fraudulent birth certificates, but it is limited. 
S	 Passport Services Staff in regional offices and the National Passport Services 
Center are responsible for issuing passports and receive training focused on birth 
certificate fraud.  However, the over 4,500 acceptance agents located primarily in 
Post Offices and State and Federal Courts receive little training in the identification 
of fraudulent birth certificates. 
State Practices Create Opportunities for Fraud 
Delayed, Amended, and Midwife Birth Registrations Provide Opportunities for 
Fraud.  State and local vital records staff say birth certificates issued based on delayed 
and amended birth registrations are more likely to be fraudulent.  They also say they 
consider births registered by midwives, and other home births, to have a high potential for 
fraud. 
Delayed birth registration occurs when a certificate of birth is not filed within the time 
specified by State law.  Delayed birth registrations are sometimes the result of unattended 
home births, midwife births, and other out-of-hospital births.  The Model State and Vital 
Statistics Act and Regulations require delayed certificates to be issued for births not filed 
within 1 year.  Based on our survey responses, the State median time frame for filing 
delayed registrations is 1 year, but varies from State-to-State and ranges between 10 days 
and 4 years. 
Federal and State staff alerted us to problems with delayed birth registration.  These 
problems arise from the lack of evidence required to file a delayed birth in some States. 
Not all States include information with birth certificates about the documentary evidence 
they accept as proof a birth occurred, and upon which delayed registrations are allowed, 
with delayed birth certificates.  Likewise, the documentary evidence required to register 
delayed births is inconsistent among States.  Forty-seven States accept affidavits of 
14 
Birth Certificate Fraud  OEI- 07-99-00570  personal knowledge as proof a birth occurred, and 14 include no abstract of documentary 
evidence when issuing delayed birth certificates. 
Amended birth registration occurs when changes are made to the vital information 
contained on the original birth registration.  While we did not specifically address amended 
birth registrations in our survey, they were identified as problematic in our discussions 
with Federal agency and State vital records office staff.  The overall concern surrounding 
amended registrations is similar to that of delayed registrations in that some States do not 
require substantial evidence to amend birth registrations and that birth certificates issued 
based on amended registrations are not clearly marked as having been amended.  One 
State registrar also noted a growing problem in which adults are adopted by other adults, 
usually for inheritance purposes.  In these cases, the adopted person undergoes a legal 
change of name and their birth record is altered, but the fact that the adoption took place 
is never recorded in any way on the original or amended birth certificate. 
Midwife birth registrations were also identified as an area of concern.  Midwives provide 
a valuable service in insuring the healthy delivery of children and accurate registration of 
births.  However, out-of-hospital births attended by midwives have raised concerns. 
Sixteen State registrars indicate they have encountered problems specifically linked to 
midwife birth registration.  Our discussions with Federal, State, and local staff during our 
onsite visits indicate that problems associated with midwife registrations are concentrated 
along the United States-Mexico border.  In fact, midwife registration has become such a 
problem in one border city we visited that they now require a police officer to be called to 
the scene shortly after any midwife delivery to verify that the birth actually occurred in the 
United States.  All 41 States that allow midwives to register births have procedures and 
guidelines in place for such registration, but only 17 of those States require information in 
addition to or different from that required for hospital births.  The additional information 
required to register midwife births in these States can include attendant affidavits, prenatal 
and/or post-partum records, and notarized statements or other documentation verifying 
the birth took place.  In addition, some States require that midwives provide 
documentation that the mother lived in the State at the time the birth occurred. 
Delays in Matching Death and Birth Records Create Opportunities for Fraud. 
While our contacts all agreed that matching death and birth information is a strong 
deterrent to improper use of a genuine birth certificate, delays in matching those records 
present opportunities for fraud.  In our interviews, we heard many stories in which the 
identity of a deceased person was assumed by obtaining a copy of their birth certificate.  In 
these stories, imposters chose their new identities from names listed in newspaper obituary 
columns, from newspaper articles about individuals who had been murdered or killed in 
accidents, or from cemetery markers.  Others had assumed the identities of deceased 
friends or family members.  In each case, the imposter obtained a copy of the deceased 
persons birth certificate before it had been matched with the death registration. 
15 
Birth Certificate Fraud  OEI- 07-99-00570  With the exception of one State (Connecticut), primary vital records registrars responding 
to our survey say their offices match death and birth registrations and that they send 
information regarding deaths occurring in their State to the States in which the deceased 
individuals were born.  They indicate most death information is transmitted to other States 
by mail (47), but some States (12) also transmit information electronically, and 
1 State transmits death information to other States by facsimile. 
Forty registrars indicate the time between when a death is registered and the time the 
death is recorded on a birth record creates opportunities for fraud, and 24 registrars say 
they do not consider the receipt of death information from other States to be timely. 
Thirty registrars indicate that, on the average, they provide batched death notification to 
other States between 1 and 3 months after the death, 11 say between 3 to 6 months after 
death, 4 say between 6 and 12 months, and 4 say it takes them 12 months or longer to 
provide death information to other States.  The result is that, even though a State may 
send information to other States on a monthly basis, because of delays and batching of 
records, the deaths may have occurred many months before the death and birth records 
can be matched. 
Once received, limited resources have forced most States to establish priorities to 
determine which death and birth records will be matched, and, as a result, 40 States have 
established priorities for matching death and birth records.  As such, 20 States give 
priority status to matching death registrations for infants under the age of 1 year, and 
17 States assign priority status to deceased individuals under the age of 45. 
Adding to the problems associated with birth certificates of deceased individuals is the fact 
that five State registrars do not mark original birth records maintained in the State vital 
records office deceased, and six do not issue certified copies clearly marked deceased. 
In addition, birth certificates issued from computerized abstracts by those offices are not 
marked deceased in 3 of the 37 States that issue them.  When asked if they would 
attempt to gain additional information if the information provided to them was insufficient 
to provide a positive match between the death registration and a birth record, only 27 
registrars said yes. 
Physical Security Creates Opportunities for Fraud.  Despite the statements of 
registrars, we observed a number of questionable security situations during our onsite 
visits.  Fifty-two of the responding registrars say they keep the paper used to print birth 
certificates in secured areas (e.g., locked cabinets, vaults, safes, and locked rooms) outside 
business hours. During business hours however, we observed a number of instances where 
birth certificate information or the paper used to print birth certificates  were not secured. 
State registrars also indicate the number of vital records employees with access to birth 
certificate paper ranges between 3 and 60. 
16 
Birth Certificate Fraud  OEI- 07-99-00570  In our visits to local offices we also observed a number of situations we consider 
vulnerable.  For instance, in one local office: 
S	 certified copies of birth certificates ready for customer pick-up were kept in a box 
just inside the customer service counter, in plain view of the public, and well within 
arms-reach of anyone; 
S	 office copies of carbon-set applications used over the last several years to request 
copies of birth certificates (and containing all the information needed to obtain 
additional copies) were kept rubber-banded together and stacked in open boxes on 
the floor just inside the back door; and 
S	 several stacks of unclaimed birth certificates (some printed as far back as 1995) 
were kept on a shelf in a small locked closet. 
Destruction of Documents - The destruction of documents and tools also poses a security 
problem in some offices.  Some State registrars told us they are required to contract with 
the lowest bidder for destruction of unused or voided birth certificate paper, applications, 
microfilm, and embossing equipment.  In some States, vital records staff hand-shred 
documents and place them in open containers for pick-up and machine shredding at a later 
date.  In one State, paper slated for destruction was stolen or sold, and ultimately used to 
create fraudulent birth certificates.  In that same State, applications and voided documents 
are now hand-shredded and stored in boxes awaiting a new contract for the  destruction 
of documents. 
Employee Background Checks - In spite of the fact that 25 State registrars say that birth 
certificate fraud has been committed by vital records employees in their State, only 
14 States conduct background checks on vital records office employees. 
Use by Sports Teams - Another security issue and opportunity for fraud brought to our 
attention was the use of birth certificates by sports team coaches to prove age and 
eligibility of players.  Every day, thousands of certified copies of birth certificates are 
carried around on clip boards at ball parks across the country, and in one known instance, 
a coach discarded birth certificates in a trash container at the end of a season.  In other 
instances, birth certificates used for sports activities were alleged to have been sold across 
the border to assist illegal aliens to gain entry into the United States. 
Access to Computer Files - In our discussions with Federal and State staff, we noted a 
number of staff with direct access to vital records information via computer terminals. 
While such access allows SSA, public assistance, and Food Stamps staff to quickly verify 
birth record information online, it increases the number of people with access to that 
information.  In one office, the password to enter the system was printed on a piece of 
paper taped to the edge of the computer screen. 
17 
Birth Certificate Fraud  OEI- 07-99-00570  Limited Oversight of Local Offices Makes Them Vulnerable to Fraud.  Of the

42 States with local issuance, State vital records staff conduct monitoring visits to the

local offices in their States on an annual basis in only 18 States and biannually in only

3 States.  However, we question some States abilities to conduct monitoring of between

300 and 500 local offices annually or biannually.  In 10 other States, registrars say they

also conduct monitoring visits to local issuing offices, but do so only on an as needed or

occasional basis.  There are 2,767 local issuing entities in States where monitoring is done

as needed or occasionally. 

State registrars say the activities conducted during onsite visits can include auditing

records, reviewing laws and regulations with issuing staff, providing onsite training, and

reviewing security procedures and issues.  Many local offices have never been visited by

State vital records staff.  Staff in those offices that have been visited say the visits are

usually nothing more than quick audits of their financial records related to the sale of birth

certificates.  In another State, the large number of local offices prohibits visiting all of

them, so a self-assessment form is used to gather information about security in those

offices.  By completing this survey, the State vital records office not only gains

information about the local offices, but it also educates local office staff regarding security

measures.

Very few state vital records staff are assigned responsibility for the detection of fraud, and

only 24 States employ someone responsible for fraud activities.  However, in 

16 States, registrars indicate staff designated responsibility for fraud activities devote less

than 25 percent of their time to birth certificate fraud.  Other State registrars say their lack

of funds prohibits them from employing someone designated responsibility for birth

certificate fraud.

In addition, Immigration and Naturalization Service and Department of Motor Vehicles

office staff say they experience difficulty in obtaining the information they need to verify

questionable birth certificates in a timely manner.  As such, Immigration and

Naturalization Service staff described situations in which they have detained individuals

with suspect birth certificates for which they need immediate vital information, but were

unable to get the information quickly.  Passport Services staff say they also have

encountered problems verifying birth certificate information in a timely manner.  In

addition to contacting State vital records offices directly, they contact the SSA office in

Baltimore, MD, for information to assist them in determining whether or not a birth

certificate presented by a passport applicant is valid.  However, they are limited in the

number of such requests they can make, and are forced to prioritize their requests,

choosing which questionable or suspect applications they pursue.

Birth Certificate Fraud is Seldom Prosecuted 
The False Identification Crime Control Act of 1982, Public Law 97-398, amended Title 18 
of the United States Code to provide penalties for certain false identification related 
crimes. 
18 
Birth Certificate Fraud  OEI- 07-99-00570  Section 1028 of that law addresses fraud activity in connection with identification 
documents.  This law makes it a crime to knowingly produce, transfer, or possess false 
identification documents with the intent to defraud the United States.  Punishment for an 
offense under this Act is a fine of up to $25,000 and/or imprisonment for up to 5 years. 
Many State statutes also address identity fraud, but it is considered a felony in only 
23 States.  In 28 States, birth certificate fraud remains a misdemeanor. 
However, virtually all of the Federal and State staff we talked with indicate birth 
certificate fraud is seldom prosecuted unless it can be linked to large dollar losses or other 
punishable crimes.  Most staff also indicate that many prosecutors are reluctant, or refuse 
to take birth certificate fraud cases in which the only charge is attempting to obtain 
another individuals birth certificate, or counterfeiting or altering a birth certificate. 
Further, State registrars indicate they receive information about potential fraud cases from 
Passport Services, SSA, Department of Motor Vehicle offices, and law enforcement. 
However, most indicate they receive little feedback regarding cases they refer for 
prosecution. 
Misconceptions Exist Regarding the Security and Integrity of 
Birth Certificates 
During the course of our study, we found that many misconceptions exist surrounding the 
security and integrity of birth certificates.  We also found that a lack of education exists 
regarding the importance of securing vital records information.  Misconceptions include 
the following: 
C  a birth certificate insures the identity and citizenship of the person holding it; 
C	 birth certificates can be obtained only by the individual listed on the certificate or 
appropriate family members; 
C  if a birth certificate contains a crimped seal, it is real; 
C	 birth certificate information is always safeguarded when provided to user agencies 
or entities (e.g., sports managers); and 
C  lamination improves the integrity of birth certificates. 
19 
Birth Certificate Fraud  OEI- 07-99-00570  C O N C L U S I O N S  
Birth Certificates Alone do not Provide Conclusive or Reliable Proof of 
Identity 
However, agencies who rely on birth certificates as a means of establishing identity must 
understand the limitations of accepting a birth certificate as proof of age, citizenship, or 
identity.  While the agency has a need or requirement for establishing identity, the issuing 
entity most likely does not. 
A related point is that genuine documents obtained with counterfeit birth certificates can 
be used to obtain genuine birth certificates, which in turn are used to obtain additional 
identification documents.  This vicious cycle enables persons establishing false identities to 
acquire the documentation and proof of identity necessary to open bank accounts, 
establish credit, and evade law enforcement.  Thus, it is inherently illogical to require 
someone to prove their identity using potentially fraudulent identity documents spawned 
by false birth certificates in order to obtain a birth certificate. 
Further, it would be Impractical to Redesign Birth Certificates to Make 
them Reliable Identification Documents in and of Themselves 
The birth certificate does not provide positive proof of identity of the holder.  Efforts to 
make the birth certificate into a reliable identity document are complicated by the more 
than 14,000 different versions of legitimate birth certificates currently in existence, and the 
more than 6,000 entities that issue them and the processes used to do so.  Efforts are also 
complicated by the ease with which birth certificates can be obtained in open States, 
through the mail, and via the Internet.  In addition, technology has made birth certificates 
easier to counterfeit, and the majority of birth certificate fraud is now being committed by 
imposters using genuine birth certificates. Finally, because birth certificates do not expire, 
currently valid birth certificates will remain valid until an individuals death, meaning that 
changes to the birth certificate itself will take essentially a lifetime to become fully 
effective. 
Some Efforts to Redesign Birth Certificates Might Even be Undesirable 
The primary purpose for which birth certificates were created -- to document and record 
births -- is served well by the large number of entities that issue them and the technology 
that makes them readily and quickly available.  It is through the many issuing entities and 
different issuing processes that we are afforded quick and easy access to our birth and 
other vital records information. 
20 
Birth Certificate Fraud  OEI- 07-99-00570  This intended purpose of birth certificates is also well served by the different types of birth 
certificates issued, which allows individuals to obtain information in formats most usable 
to them.  However, these are the very things that breed fraud and render birth certificates 
unreliable proof of identity. 
Nevertheless, Since Birth Certificates can Play an Important Role in 
Establishing Identity, Their Integrity Should be Improved 
When used in combination with other documents, birth certificates can add to the level of 
proof in establishing eligibility and identity.  As such, many agencies and organizations 
request that individuals provide birth certificates in order to receive a benefit or service, or 
to support the issuance of other documents used for identity purposes.  The SSA uses 
birth certificates as proof of age in assigning Social Security numbers, and as proof of age 
and citizenship in determining eligibility for Supplemental Security Income benefits. 
Passport Services considers birth certificates primary evidence of birth in the United 
States, and while they do not consider birth certificates evidence of identity, they do 
consider them a primary document in establishing identity.  In addition, public assistance 
agencies use birth certificates as proof of applicant age and relationship/parentage, and 
drivers license offices require them as proof of birth and age.  Many other State and 
Federal agencies also rely to some extent on birth certificates as part of the process to 
establish personal identity and eligibility for services and benefits. 
Given that birth certificates will undoubtedly continue to be an important element in 
determining identity, it is important that the processes used to issue birth certificates be 
standardized and that recent advances in technology be utilized to ensure birth certificate 
integrity parallels that of other identification documents.  In support of this conclusion, we 
provide the consensus responses we received for improving the birth certificate process 
and the detection of birth certificate fraud.  The suggestions include the following: 
State vital records offices and other entities that issue birth certificates may wish 
to consider 
S	 taking the steps necessary to reduce the number of legitimate birth certificates by 
substantially reducing the number of entities that issue birth certificates and 
different types of birth certificates issued; 
S  establishing national requirements for security paper; 
S	 placing a higher priority on matching death and birth records and the speed at 
which these records are matched; 
S	 reducing opportunities for fraud created as the result of delayed, amended, or 
midwife birth registrations by placing greater emphasis on the scrutiny of 
21 
Birth Certificate Fraud  OEI- 07-99-00570  supporting documentation allowed as verification to register delayed, amended, or 
midwife birth and marking delayed and amended birth registrations accordingly; 
S	 expanding the number of staff assigned responsibility for the detection and 
enforcement of birth certificate fraud; 
S	 introducing the use of biometrics (e.g., fingerprints or other individual physical 
identifier) into the birth certificate process, thus insuring positive links between 
birth certificates and the people presenting them as proof of identity; and 
S	 launching a national campaign to inform the general public and user agencies about 
the importance of safeguarding vital records and their vulnerability to fraud. 
In Addition, Federal and State Program Administrators Should Assess 
the Proofs of Identity They Will Accept 
Even if their security is improved, birth certificates may still not be the best proof of 
identity.  For this reason, program administrators may not want to use birth certificates at 
all, or to use them only with other documents, as noted above.  Agencies need to specify 
which other documents and methods of proving identity (e.g., fingerprints, testimony of 
relatives, employer information, background checks) they will accept in determining 
eligibility for services and benefits. 
Given what we have learned, if program administrators continue to include birth 
certificates in the proofs of identity their agencies and organizations will accept, they 
should reconsider how they use them, and what steps they will take to detect fraudulent 
certificates and to secure valid ones.  For example, they should remain vigilant in their 
detection of fraudulent documents and genuine documents held by imposters.  The nature 
of each individual program should dictate the level of proof the agency requires to 
establish identity, and acceptable documents determined accordingly. For instance, the 
same level of proof required to enroll a child in school may not be the same level of proof 
required to obtain a passport. 
In this vein, we provide consensus responses from persons surveyed and interviewed, 
which reflect longstanding suggestions for improving the use of birth certificates in 
establishing identity. 
Federal and State agencies who use birth certificates in determining eligibility for 
services and benefits may wish to consider 
S	 reassessing the documents they will accept as proof of identity and program 
eligibility; 
S	 accepting only birth certificates issued on security paper that meets current 
national standards; 
22 
Birth Certificate Fraud  OEI- 07-99-00570  S	 using biometrics (e.g., fingerprints, DNA, retinal scans) to assist the agencies in 
establishing proof of identity; 
S	 improving guidelines and procedures regarding the detection of fraudulent birth 
certificates, and make them readily accessible; and 
S	 providing staff with ongoing training to assist them in detecting all types of birth 
certificate fraud. 
23 
Birth Certificate Fraud  OEI- 07-99-00570  State and Local Birth Certificate

APPENDIX A 
Issuing Entities 
Number of Issuing Offices by Location 
State 
Central/State  County  City  Township  Other*  Total 
Alaska  3  0  4  15  0  22 
Alabama  1  67  0  0  1  69 
Arkansas  1  0  0  0  0  1 
Arizona  1  12  0  0  2  15 
California  1  58  4  0  0  63 
Colorado  1  63  0  0  0  64 
Connecticut  1  0  169  0  0  170 
Washington, DC  1  0  0  0  0  1 
Delaware  1  2  0  0  0  3 
Florida  1  67  0  0  0  68 
Georgia  1  159  0  0  0  160 
Hawaii  1  0  0  0  0  1 
Iowa  1  100  0  0  0  101 
Idaho  1  0  0  0  0  1 
Illinois  1  42  100  2  0  145 
Indiana  1  91  3  0  0  95 
Kansas  1  0  0  0  0  1 
Kentucky  1  0  0  0  0  1 
Louisiana  1  0  0  0  5  6 
Massachusetts  1  0  351  0  0  352 
Maryland  1  20  0  0  1  22 
Maine  1  0  22  475  0  498 
Michigan  1  83  27  0  0  111 
Minnesota  1  87  5  0  5  98 
Missouri  1  113  3  0  0  117 
Mississippi  1  0  0  0  0  1 
Montana  1  56  0  0  0  57 
North Carolina  1  98  0  0  3  102 
North Dakota  1  0  0  0  0  1 
Nebraska  1  1  0  0  0  2 
New Hampshire  1  0  13  222  0  236 
New Jersey  1  0  565  0  0  566 
New Mexico  1  9  0  0  0  10 
Nevada  1  2  0  0  0  3 
New York  1  4  100  1,000  400  1,505 
Ohio  1  88  55  0  0  144 
Oklahoma  1  1  1  0  0  3 
Oregon  1  35  0  0  0  36 
Pennsylvania  1  0  0  0  5  6 
Puerto Rico  1  0  0  84  0  85 
Rhode Island  1  0  39  0  0  40 
South Carolina  1  46  0  0  0  47 
South Dakota  1  64  0  0  0  65 
Tennessee  1  23  0  0  4  28 
Texas  1  278  587  0  0  866 
Utah  1  0  0  0  12  13 
Virginia  1  0  0  0  0  1 
Vermont  2  0  8  238  0  248 
Washington  1  33  0  0  0  34 
Wisconsin  1  72  2  0  0  75 
West Virginia  1  55  0  0  0  56 
Wyoming  1  0  0  0  0  1 
NY City  1  0  0  0  0  1 
Total  560  1,829  2,058  2,036  438  6,417 
*Includes villages, regional branch offices, and some State vital records satellite office. 
24 
Birth Certificate Fraud  OEI- 07-99-00570  APPENDIX B 
Types of Certificates Issued and Paper Security

Features Used by State Vital Records Offices

Type of Birth Certificate 
Full  Certified Copy  Birth Card or 
Photocopy  from  Wallet Sized  Commemor
of Birth  Computerized  Birth  ative Birth 
Record  Abstract  Certificate  Certificate 
Number of States

Issuing Type of Birth

Certificate  51
 37  17  8 
Number of States Using Specified Security Features 
Watermarks  27  25  6  3 
Intaglio  19  20  9  2 
Serial Numbers  35  34  15  7 
Steel Engraved  18  19  10  2 
Borders 
Ultraviolet Ink  9  13  2  1 
Security Threads  11  13  3  0 
Micro-Line Printing  25  28  7  1 
Substrate Paper or Ink  14  14  4  1 
25 
Birth Certificate Fraud  OEI- 07-99-00570