Food Security and Governance in India
Governance
plays a central role in ensuring food security, particularly in a country like
India with vast geographic, social, and economic diversity. Recognizing the
chronic hunger and malnutrition in the country, especially among vulnerable
groups, the Indian government initiated several key intervention programs in
the 1970s aimed at improving access to food, reducing poverty, and addressing
nutritional deficiencies.
Among the
most significant government initiatives are the Public Distribution System
(PDS), Integrated Child Development Services (ICDS), and Sampurna
Posana programs. These interventions have been critical in operationalizing
the right to food, leading up to the enactment of the National Food Security
Act (NFSA), 2013.
Public
Distribution System (PDS)
The Public
Distribution System (PDS) is a major food security system in India.
Originally developed to manage food scarcity, it now distributes subsidized
food grains to the poor through a network of Fair Price Shops (FPS).
Under the Targeted Public Distribution System (TPDS) launched in 1997,
the focus shifted towards better targeting of the poor. The Central Government
procures, stores, and transports food grains, while State Governments handle
the identification of eligible families and distribution through FPS.
- APL (Above Poverty Line) and BPL
(Below Poverty Line) families, along with Antyodaya Anna Yojana
(AAY) beneficiaries, are covered.
- States issue ration cards, regulate food
grain quantities, and supervise FPS operations.
Major Issues in the Implementation of Food Security Schemes in India
1. Problems in Targeting
Under the
Targeted Public Distribution System (TPDS), households were classified as Below
Poverty Line (BPL) or Above Poverty Line (APL) based on income and asset
ownership. BPL households qualified for subsidized food grains, while APL
households—those possessing assets like televisions, fans, vehicles, or
land—were excluded. However, this classification was often flawed, as many APL
households remained food insecure.
A
significant issue was the lack of reliable household income data, which
led to exclusion errors—genuine BPL households were denied ration
cards—and inclusion errors—relatively better-off families obtained
benefits. Moreover, the inaccurate targeting worsened the problem of fake
ration cards (Comptroller and Auditor General of India (CAG), 2015).
In 2015,
the CAG audit reported that 49% of the intended beneficiaries were
still not identified. In response, Aadhaar-based authentication became
mandatory under the National Food Security Act (NFSA) from February 2017 to
eliminate bogus ration cards and improve the efficiency of food distribution.
By January 2017, 73% of ration cards had been seeded with Aadhaar, and 100%
of ration cards were digitized (Press Information Bureau, Government of
India, 2017).
2. Inadequate Storage Capacity
India’s
total food grain storage capacity in 2017 was 788 lakh tonnes. The Food
Corporation of India (FCI) accounted for 354 lakh tonnes, and state
agencies had a capacity of 424 lakh tonnes. However, according to the CAG
report (2015), the storage facilities were inadequate compared to the food
grain allocations under NFSA. It was also noted that for four consecutive years
(2010–2015), the Centre’s food grain stock exceeded the storage capacity of
the FCI, leading to concerns over food wastage and quality deterioration
(CAG, 2015 Performance Audit Report).
3.
Corruption in Scheme Implementation
Corruption
remains a significant challenge. The CAG report (2015) highlighted that
states diverted Rs. 123.29 crores earmarked for the Mid-Day Meal
Scheme. Cases of food grain diversion, supply cuts, and wastage were
widespread.
Furthermore,
a 2019 report by the Ministry of Human Resource Development (MHRD)
revealed that 52 complaints of corruption in the mid-day meal scheme
were received over three years. Among the states, Uttar Pradesh recorded 14
complaints, followed by Bihar with 7 complaints (MHRD Annual Report,
2019).
How does the National Food Security Act empower?
The National Food Security Act
(NFSA), 2013, empowers beneficiaries by transforming food security from a
welfare measure into a legal right. It ensures that entitled households have
access to food grains at highly subsidized prices and mandates both the central
and state governments to fulfill specific obligations to guarantee food
security.
Several technological and procedural innovations have been introduced to
improve transparency, reduce leakages, and enhance service delivery under the
Act:
1. Ration Card Management System (RCMS)
The Ration Card Management System (RCMS) is an online platform developed to
manage the life cycle of ration cards across all states and Union Territories.
It facilitates:
- Online application for new ration cards.
- Modification of existing ration cards.
- Deletion of duplicate or ineligible ration cards.
- Real-time tracking of applications.
RCMS helps in reducing fake or duplicate ration cards and ensures
accurate targeting of beneficiaries. As per the Department of Food and
Public Distribution (DFPD), Government of India, the RCMS is an integral part
of the end-to-end computerization of the Targeted Public Distribution System
(TPDS) (DFPD, Government of India, 2024).
2. eKYC of Each Beneficiary
To enhance the accuracy of the
beneficiary database and eliminate duplication, electronic Know Your
Customer (eKYC) through Aadhaar authentication has been made mandatory.
eKYC ensures:
- Correct identification of genuine beneficiaries.
- Prevention of fraud and misuse.
- Seamless portability for beneficiaries, especially
under schemes like One Nation One Ration Card (ONORC).
According to a press release by the Ministry of Consumer Affairs, Food
& Public Distribution (March 2024), over 96% of ration cards have been
Aadhaar-seeded through eKYC processes (Ministry of Consumer Affairs, 2024).
3. Doorstep Delivery to Aged and Infirm
To cater to the most
vulnerable sections of society, such as elderly, disabled, and infirm
persons, many states have introduced doorstep delivery of food grains.
This measure ensures:
- Food security for those unable to physically reach
Fair Price Shops (FPS).
- Respect for the dignity and rights of aged and
infirm citizens.
States like Odisha and Andhra Pradesh have implemented doorstep delivery
models, ensuring compliance with Supreme Court orders on the right to food (Right to Food Campaign
India, 2023).
4. Distribution through Electronic Point of Sale (ePoS) Devices
The use of Electronic Point
of Sale (ePoS) devices at Fair Price Shops has been promoted to improve
transparency and accountability in food grain distribution. ePoS ensures:
- Real-time biometric authentication of beneficiaries.
- Automated recording of transactions.
- Reduction in leakages and diversion of food grains.
As per government data, over 5.4 lakh FPSs are now equipped with
ePoS devices across India (DFPD Annual Report, 2023-24).
The deployment of ePoS has significantly helped in creating an efficient
and transparent distribution mechanism under the Public Distribution System
(PDS).
FAQs
Q1. What are the NFSA’s entitlements for food grains?
- Priority households receive 5 kg/person/month; AAY
households receive 35 kg/household/month at subsidized prices (₹3/kg rice,
₹2/kg wheat).
Q2. How does the NFSA ensure transparency?
- Through ePoS devices for biometric authentication,
RCMS for digitizing ration cards, and ONORC for portability.
Q3. How does the NFSA empower women?
- Pregnant/lactating mothers receive cash benefits and
meals. Women are often designated as ration card holders, enhancing their
decision-making role.
Q4. What provisions exist for vulnerable groups?
- Doorstep delivery ensures the elderly and infirm
receive grains without visiting FPS.