This was my first thought. Feels like an NSA goal, to build a web of association for everyone in the country.
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That's what makes no sense at all: the CIA and NSA have been running social network graph systems for years; they know who talks to whom and what the social circles are. The only thing this does is answer who gets within proximity of another... something the NSA and others can probably do already with pervasive video surveillance and biometric identification. This project seems like a massive overreach and I won't be taking part, even if it means pulling the SIM from my iPhone and using a flip phone until sanity returns (or for the rest of my life).
I have several wrenches in my toolbox. But if someone is going to give me a new one, I'm gonna accept it.
That's the same idea here; sure, maybe the CIA and NSA already have the capability. But what's the harm in having it twice? There's actually benefits from the aspect of checking one against the other, not to mention one may reveal something the other doesn't.
I'm not saying this is what will happen. I'm simply saying that power seeks more power.