You may consider partnering with cell phone carriers and/or couple the issuance protocol with having a confirmed local telephone number? Somewhat similar to the upcoming Icelandic AuroraCoin...http://auroracoin.org except it seems the government is the issuer or partners with the issuers and will be using access to gov data to airdrop coins to the entire population.....http://auroracoin.org/airdrop.php