Food Security in India: Gaps and Policy Response

Deepti Dutta

Research Scholar

Department of Economics, Gauhati University

1. Introduction:

India achieved self-sufficiency in food grains by the year 1976 through the
implementation of Green revolution by the Government of India (Mondol). But there are
millions of people in India, who are struggling for two meals in a day. According to FAO (2017),
there are 194.6 million undernourished people in 2014-16 (3 year average) which is 15.2 per cent
of the total population. Moreover, there are 109 kcal/capita/day depth of the food deficit (3-year
average during the same period.Further,47.9Per cent of children under 5 years of age are
underweight and stunted; 20 Per cent of children under 5 years of age affected by wasting and
43.5 Percent of children under 5 years of age are underweight in 2006.

Although, Average Protein Supply, Share of dietary energy supply, Average value of
food production etc. are increasing, agricultural land area are declined from 181413 thousand
Hectors in 1990 to 179600 thousand Hectors in 2014. On the other hand, GDP per capita
increases from $1773.1 in 1990 to$5438.6 in 2016 (PPP, constant 2011 international) (FAO,
2017). Therefore, the situation of food security is very complex in India, while the GDP is
increasing, self-sufficiency in food has been achieved, still there are millions of people who are
not able to have daily minimum nutritious foods. This paper is an attempt to address the problem
of food security in India, the gaps and what are the policy responses of Government of India.

The paper has been organized in the following way: Introduction in the first section is
followed by conceptual framework in the second section. Third section deals with the present
status of the food security in India and gaps in food security in India are presented in the fourth
section. Fifth section associated with the policy response to food security and the paper ends with
the conclusion of the paper in the sixth section.

2. Conceptual Background:

Food security is a situation where ‘all people, at all times, have physical social and
economic access to sufficient, safe, and nutritious food to maintain a healthy and active life’
(FAO and WHO, 1976). The interpretation of food security involves additional aspect of
sustainability, i.e., conditions necessary to produce food stuffs do not deteriorate and jeopardize
for the future generations.
 The three main pillars of food security are: availability, access and utilization or use.
Availability means food supply in the regional, national and international markets. Access in the
sense of physical and economic access; whether one has the purchasing power to buy the food or
not. The stability of the three pillars determines the strength of food security. Anything that
interrupts food supply and access or interferes with the utilization of food leads to food
insecurity.

3. Present Status of Food Security:

The present status of food security can be summarized under the following categories-

1. Demographics: Urban (419938.87 thousand persons ( 32.7%)) Rural (862451 thousand

persons (67.3%)) in 2015
2. Number of People Undernourished: 210.1 million in 1990-92 ( 3 year average) And
194.6 million in 2014-16 ( 3 year average)
3. Prevalence of undernourishment: 23.7% in 1990-92 (3 year average) and 15.2 % in
2014-16 (3 year average).

Food Availability:

4. Food Availability (Average Protein Supply): 55 (g/capita/day) in 1990-92 (3 year

average) 59 (g/capita/day) in 2009-11 (3 year average).

Food Availability (Average supply of protein of animal origin): 9 (g/capita/day)in 1990-92 (3

year average) and 12 (g/capita/day)in 2009-11 (3 year average).

5. Share of dietary energy supply derived from cereals, roots and tubers: 66% in 1990-
92 (3 year average) and 59% in 2009-11 (3 year average).
Average dietary energy supply adequacy (%) (3-year average): 105% in 1990-92 and
108 in 2014-16.
6. Average value of food production (constant I$ per person) (3-year average): 138 in
1990-92 and 186 in 2011-13.

Food Access:

The accessibility of food has been summarized under the following points:

1. Depth of the food deficit (kcal/capita/day) (3-year average): 165 in 1990-92 and 109 in
2014-16.
2. Domestic food price index (index): 4.91 in 2000 and 4.68 in 2014.
3. Gross domestic product per capita, PPP (constant 2011 international $): 1773.1 in 1990
and 5438.6 in 2016.
4. Road density (per 100 square km of land area): 60.8 in 1990 and 142.7 in 2011.

Food Utilization:
 1. Percentage of children under 5 years of age who are underweight, stunted (%):57.1% in
1992 and 47.9% in 2006
2. Percentage of children under 5 years of age affected by wasting (%):21.1% in 1992 and
20% in 2006
3. Percentage of children under 5 years of age who are underweight (%):50.7 in 1992 and
43.5% in 2006.
4. Access to improved water sources (%): 70.5 % in 1990 and 94.1 in 2014.

Land;

1. Agricultural Area: 181413 thousand Hectors in 1990 and 179600thousand Hectors in 2014

2. Forest Area: 63939 thousand Hectors in 1990 and 70503.6thousand Hectors in 2014

3. Other Area: 51967 thousand Hectors in 1990 and 47215.4thousand Hectors in 2014

Economic and political stability

1. Per capita food production variability (I$ per person constant 2004-06): 4.4 in 1990 and
4.1 in 2013
2. Value of food imports over total merchandise exports (%) (3-year average) : 4 in 1990-92
and 5 in 2011-13.
3. Per capita food supply variability (kcal/capita/day): 58 in 1990 and 28 in 2011.
4. Political stability and absence of violence/terrorism (index): -0.91 in 1996 and -0.96 in
2013.

Cereals, total production: 18912 hundred tons in 1990 and 29841hundred tons in 2014.

Emissions:

1. Emissions (CO2 equivalent), Agriculture total; 502,459.82 in 1990 and 628,864.14 in

2014.
2. Emissions by sector (CO2 equivalent):

3. Gaps in Food security:

The initial thrust and foundation for the later evolution of the food security system were provided
by the green revolution in wheat and rice. The disconcerting feature of the system is that, it still
remains almost exclusively dependent on these two crops. This has been the source of mainly
weaknesses and distortions. The price support policy for rice and wheat which nurtured the green
revolution and promoted its spread is now in need of major revision Commission for Agricultural
Costs and Prices has been repeatedly pointing out in its reports instances of price support
mechanism remaining inactive in backward areas which do not contribute much to procurement
[Government of India]. Another major gap with the food security system is its highly centralised
and bureaucratised mode of operation. The very name of Food Corporation of India has become
a red rag to some critics. A little reflection would show that only a FCI-like organisation would
be able to operate a food security system based exclusively on rice and wheat. The surpluses of
these crops and, hence, their procurement are concentrated in a few states and. given the
minimum support prices which remain fixed for a crop year. Thus the farmers take the first
opportunity to deliver their produce when harvesting starts except when a substantial rise in
the price of grain is expected in the latter part of the season. The quantities of grains thus
mobilised have to be allocated to areas all over the country maintaining a steady flow of
monthly installments of grains supplied at a subsidised price.

In 2014-2015, India’s estimated foodgrain production stands at 257 million tones

with 103 million tones rice; 96 million tonnes wheat, 23 million tones maize and 18.4 million
tones of pulses. According to Ministry of Finanace (GOI), India’s foodgrains production is
targeted at 270.10mt in 2016-2017 which is higher than the estimated produced in 2015-2016
of 252.23 million tones. Though India has enough food crop production and exports are
continually rising yet millions of people remaining below the poverty line cannot afford to buy
food. This is because of lack of economic access. Asalready known all the states are not equally
efficient in foodgrain production due to various regional and climatic differences. While some
state like Uttar Pradesh in 2014-15 produced 42472 million tones of foograins per 1000 tonnes
Maharashtra accounted for only 10334(per 1000) for the same period. This definetly points out
differences in food production region wise. Moreover , though self sufficiency has been tried to
achieved in terms of food security yet accessibility of it has not been percolated to all the
sections of the society. In fact, the poor has been the most vulnerable section in this regard
because the Targeted Public Distribution System(TPDS) has not been targeted to help the poor
people. These gaps in food security in terms of economic, social and physical has created
various problems in proper implementation of adequate food for all sections.

4. Policy Response:

India has faced serious problem on its food front right from the independence and food
deficits persisted upto mid 1970s. The Government of India has attempted to move
towards the goal of food security by making significant attempts at food security through
the food based social security interventions. Moreover, mention can be made of the Food
Security Bill and the Mid-day meal schemes which can be termed as strong policy
response with regard to Food Security. Each of them are discussed below in details-

(a) Public Distribution System(PDS) : PDS is one of the major policy initiatives in this
regard . Public Distribution of at affordable prices has been the key element of food
security in India . It represents the direct interventions of Indian state in food market
to ensure food security . PDS is operated under the joint responsibility of the Central
and State Governmnent. The Centarl Government through Food Corporation of India
(FCI) has assumed the responsibility for procurement, storage, transportation and
bulk allocation of foodgrainsto the State Governments. PDS has more than 400 Fair
Price Shops ( FPS) in all over the country and it distributes each year commodities
worth more than Rs 15,000 crore to about 16000 families. Thus,it serves the dual
purpose in providing subsidized food to the consumers as well as providing price
support to farmers . It supplements the policy of Buffer stock under which the effect
of raising prices on account of supply constraints is modulated by market
intervention.

The growth of PDS in India can be grouped into three different phases. These are –

a. From 1939 to 1965 where the PDS was seen as a mere rationing system to
distribute the scarce community and later it was seen as a fair price system in
comparison with the private trade . Rice and wheat occupied a very high share in
food grains distribution.
b. From 1965 to 1975 where it was decided to look much beyond the management of
scarce supplies in critical situation. The setting of Food Corporation of India(FCI)
and Agricultural Prices Commission(APC) known as Bureau of Agricultural Cost
and Prices Commission (BACPC) in 1965 marked the beginning of the phase. On
the basis of BACPC’s recommended prices the FCI procures the food grains to
distribute through PDS and a part of the procure quantity is kept as a buffer stocks
to meet any unforeseen crises situation. The food security during this period
evolved as an integral part of development strategies to bring about a striking
technological change to raise the productivity of selected food crops, especially
rice and wheat. It provided effective price and market support for farmers and
created a wide range of measures to generate employment.
c. From 1975 onwards there was a increase in food grain production in the country
.The Buffer stock accumulation increased substantially. The government
strengthened the PDS in this period so that it remains a permanent and a stable
feature of the strategy to control prices, to reduce fluctuation in them and achieve
equitable distribution essential consumer goods.
The PDS has substantially contributed to the containment of rise in food
grain prices and ensured access of food to urban consumers. However, the
analysis of TPDS reveals that there was inaccurate identification of households
and a leaking delivery system. Expert studies have shown that PDS suffers from
nearly 61% error of exclusion and 25% inclusion of beneficiaries,i.e.
,misclassification of poor as non poor nad vice versa. Another problem was the
 leakage of foodgrins during transportation to the ration shop and from the ration
shop itself into the open market.

2. National Food Security Bill( NFSA), 2013

The Government has notified NFSA Act ,2013 on 10 september 2013 with the objective to
provide food and nutritional security in human life cycle approach by ensuring access to
adequate quantity of quality food at affordable prices to people to live a life with dignity . The
act provides legal food security to 67% of population . The eligible person gets rice @Rs. 3 per
kg,wheat @Rs. 2per kg and coarse grains at @ Rs. 1 kg per month subject to maximum 5 kg per
month. The benefcieries covered under Antyodata Anna Yojana will keep receiving the 35 kg
per household per month at same rates .Further , this act covers infants, children and lactating
women with different entitlements for them.

The act provides for the creation of State Food Commission. The main function of the
state commission is to monitor and evaluate the implementation of the act, give advice to the
state government and their agencies and enquire into violations of entitlements .Thus, the Food
Security Bill covers its include all the programmes like Targeted Public Distribution
System(TPDS) Anatodaya Anna Yojana(AAY), Maternity benefits, Free meal to children and
food Security Allowances . This act. Therefore provides maternity benefit of Rs. 6000 .The act
provide coverage of upto 75% of the rural population and upto 50% of the Urban population for
receiving subsidized food grains under TPDS .

3. Mid Day Meal Scheme:

In 2001, the Supreme Court passed an order stating a basic entitlement of every child in every
government and government assisted primary school with a prepared mid-day meal with a
minimum content of 300 calories and 8-12 grams of protein each day of school for a minimum of
200 days. Mid-day Meal scheme is a school meal programme of the government of India
designed to improve the nutritional status of elementary school children nationwide.

The main objectives of the scheme is to improve the effectiveness of primary education
by improving the nutritional status of children thereby reducing malnutrition along with
attracting children especially girls from dalits and Adivasi tribes to school thereby increasing
attendance , reducing dropout rates and promoting women empowerment through literacy .The
receipient of Mid-day meal primarily consist of children from slum and tribal areas. In 2015-
2016, there was a revision in the daily ration cost under Mid Day Meal programme under which
of daily cost ration was made at Rs. 4.31 and Rs. 6.43 for the students of primary and upper
primary schools. On 28th feb,2017, notification was issued under Adhaar Act. 2016 for Mid day
Meal Scheme regarding benefits and entitlements to children in the age group of 6 to 14 years
and payment of honorarium to cook-cum helpers.
 Thus Mid Day Meal Scheme has evolved as a great policy response in regard to food
security . It has enabled in providing security in terms of food for the consumers.

4.Antodaya Anna Yojana:

It is an Indian government sponsored scheme for ten million of the poorest families
launched by the NDA government in December 2000. The objective of the scheme is to
ensure food security to the poorest of the poor by providing them 35 kg of rice and wheat at
Rs3 and Rs 2 per kg respectively. Originnaly at the time of introduction of AAY scheme
each beneficiary was given 25kg per month at the rate of Rs3 perkg which has been
increased to 35kg from 2006 onwards.

5. Annapurna Scheme:
It was launched by the Governmnet of India with effect from 1st April, 2000. It aims at
providing food security to meet the requirements of those Senior Citizens who though
eligible has remained uncovered under the National Old Age Pension Scheme
(NOAPS).Under this Scheme, 10kg of food grains per month re to be provided free of
cost to the beneficiary.the age of the applicant either male or female should be 65 years
or above.
6. Conclusion:
In this paper we have anlaysed the present status of food security in India by bringing
into light the various gaps and policy responses in this regard. Though food security has
been the key objective of India to ensure accessibility of food for all its consumers it has
not been succeful in a complete manner. However nobody can deny the fact that it has
helped in developing the extent of food securedness to a considerable extent.

Reference:

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Dec., 2016].
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