Mr Clarke said each card would cost £93 to produce but owners would not pay the full amount.
That sentence should probably finish, "up front". Clarke is anticipating that the cost of the scheme can be met by a combination of registration fees, compliance fees, fines and charges to the private sector, and that by spreading it around a bit we won't notice.
But as we all know, the full cost invariably finds its way back to the customer (and probably a bit more to cover "admin costs" in the organisations involved). Expect an "NIR check surcharge" to be levied on their customers by commercial organisations using the system.