The National Identity Scheme will produce just 50,000 cards between the launch this November and April 2009.

It has also been revealed that the government has yet to appoint a commissioner for the scheme, or finalise a budget for his or her work.

Home secretary Jacqui Smith outlined the 50,000 figure in response to a parliamentary written question from Liberal Democrat shadow home secretary Chris Huhne.

The figure is much lower than the previous number of foreign nationals expected to get cards during the period.

"Volumes will rise rapidly thereafter and will depend on the speed of implementation and the nature of the immigration categories brought into the scheme," said Smith.

The post of identity cards commissioner, created by the Identity Cards Act 2006 to oversee the scheme, had not been filled because the government has not finished outlining the job requirements.

Identity minister Meg Hillier said in response to a parliamentary question asked by Labour MP Lynne Jones: "The precise definition of the role of his or her office is still being finalised and, as a result, the budget has yet to be finalised."

A spokesman for the Identity and Passport Service said: “We are committed to appointing the commissioner before the National Identity Register becomes operational in 2009 as we start issuing the first identity cards to critical workers at airports.”

The second batch of ID cards, available from late 2009, will be rolled out to those employed in "sensitive roles or locations", according to current government plans.

From 2010 identity cards will be available on a voluntary basis to young people.