THE RIGHT TO FOOD AND THE STRUGGLE WITH THE PDS

THE CONTEXT: Recent reports from Jharkhand and Odisha in 2023 revealed that a substantial number of households were removed from the Public Distribution System (PDS) rolls. This issue extends to Bihar, where marginalized communities, particularly the Musahars, face acute challenges with the PDS, including a lack of active ration cards and biometric verification problems.

THE ISSUES:

• • Exclusion from PDS: According to a report by Wada Na Todo Abhiyan, over 90 million eligible people have been excluded from PDS entitlements. This exclusion stems from the use of 2011 Census data to determine coverage, which has led to the exclusion of at least 12% of the population. In 2021, the National Human Rights Commission noted that biometric issues deprived eligible individuals of their food rights. In states like Jharkhand, Odisha, and Bihar, substantial numbers of households have been removed from PDS rolls without clear justification.
  • Supply and Distribution Problems: A study reveals 28% leakage in the PDS, leading to an annual loss of ₹69,108 crore. The Comptroller and Auditor General (CAG) has highlighted serious shortfalls in the government’s storage capacity, leading to food grain spoilage. Beneficiaries report receiving poor quality “Usna” rice instead of the entitled mix of rice and wheat.
  • Documentation Challenges: States like Bihar, Jharkhand, and Uttar Pradesh demand caste, income, and residence certificates for PDS enrollment despite no legal basis in the National Food Security Act (NFSA) 2013 or PDS Control Order 2015. The push for online applications disadvantages those without digital literacy or resources.
  • Systemic Exploitation: Unscrupulous middlemen charge vulnerable communities, particularly the Musahars in Bihar, over ₹3,000 for ration card processing. Reports indicate that some dealers distribute only 4kg of grain per person instead of 5kg.
  • Administrative Delays: Applications often remain pending for 4-18 months, exceeding the 30-day timeline stipulated in the 2015 order. The Supreme Court has criticized such delays, imposing costs on state governments for administrative lethargy.

BROADER CHALLENGES

• • Targeting errors: The Tendulkar Committee (2009) estimated that 61% of the eligible population was excluded from the BPL list, while 25% of non-BPL households were included.
  • Nutritional impact: The National Family Health Survey (2019-21) found that 89% of children aged 6-23 months do not receive a “minimum acceptable diet,” and anemia prevalence has increased across all population groups.
  • Monocropping: Over-reliance on rice and wheat in the PDS limits crop diversity and impacts agricultural sustainability.

THE WAY FORWARD:

• • Universal Coverage and Simplified Enrolment: The Shanta Kumar Committee Report (2015) recommends implementing universal PDS coverage in high-poverty states to ensure no household is excluded due to targeting errors. Simplify enrollment by removing unnecessary documentation requirements like caste, income, and residence certificates, which align with the National Food Security Act (NFSA) provisions, 2013. Use self-declaration affidavits for enrolment, as practiced in Tamil Nadu, which has achieved near-universal PDS coverage.

• • Strengthening Technology Integration: Scale up the Scheme for Modernization and Reform through Technology in the Public Distribution System (SMART-PDS) (2023–26) to include offline biometric authentication for areas with poor connectivity. Integrate end-to-end supply chain management systems, such as the Warehouse Inventory Network and Governing System (WINGS) and Vehicle Location Tracking System (VLTS), for real-time tracking of food grains. Expand Point-of-Sale (PoS) devices at Fair Price Shops (FPS) with Aadhaar-enabled authentication while providing alternatives like OTP-based systems for those unable to use biometrics.

• • Addressing Corruption and Leakages: Implement social audits under Section 28 of the NFSA, allowing community participation in monitoring distribution at FPS. Introduce blockchain technology for transparent tracking of food grain movement from procurement to distribution. Strengthen grievance redressal mechanisms by setting up district-level helplines and mobile apps for real-time reporting of irregularities.

• • Improving Nutritional Security: Distribute fortified rice, pulses, and edible oils through PDS to address malnutrition, as per the Fortified Rice Scheme under the PM Poshan Abhiyaan. Expand the scope of the Antyodaya Anna Yojana (AAY) to provide additional nutritional support to vulnerable groups like pregnant women and children.

• • Reducing Administrative Delays: Mandate strict adherence to the NFSA provision requiring ration card issuance within 30 days of application. Establish State Project Implementation Teams (SPIT) under SMART-PDS for real-time monitoring of application processing times. Penalize officials responsible for delays under service delivery guarantee laws adopted by states like Madhya Pradesh.

• • Policy Reforms for Inclusive Governance: Conduct periodic beneficiary surveys using tools like Socio-Economic Caste Census (SECC) data to identify gaps in coverage. The transition from targeted subsidies to Direct Benefit Transfers (DBT) or food vouchers where feasible, ensuring flexibility for beneficiaries while reducing administrative costs. Increase state-level autonomy in implementing PDS reforms tailored to local needs, as seen in Odisha’s decentralized model that provides rice at lower-than-central prices.

• • Create a Dedicated “Marginalized Communities Cell” under Food Departments: Form a Marginalized Communities Cell in each State Food Department. This cell would coordinate with local bodies, NGOs, and caste/community associations. The Cell would conduct periodic door-to-door surveys to detect exclusion errors promptly, especially focusing on communities like the Musahars.
  • Establish “Nutritional PDS Corridors” Complementing Mid-Day Meal and ICDS: Prioritize districts with high stunting/wasting among children for ‘Nutritional PDS Corridors.’ A “Fortified Rice Distribution” was successfully piloted in select States under the Food Corporation of India (FCI) guidance.
  • Promote Community-Based Co-operative FPS and Remove Middlemen Exploitation: Encourage women self-help groups (SHGs) and other community collectives to manage FPS outlets, ensuring local accountability and profit-sharing that reinvests in community welfare. The M.S. Swaminathan Committee recommended exploring cooperative models within the PDS to improve grassroots food security.

THE CONCLUSION:

Address both immediate challenges (like exclusion errors and corruption) and systemic issues (like structural inequalities and nutritional deficits). By integrating constitutional provisions (Article 21), judicial directives (PUCL vs Union of India), expert recommendations (NITI Aayog), and best practices from states like Tamil Nadu, Odisha, and Chhattisgarh, these measures provide a holistic roadmap for transforming India’s Public Distribution System into an inclusive, efficient, and accountable framework.

UPSC PAST YEAR QUESTION:

Q. What are the major challenges of Public Distribution System (PDS) in India? How can it be made effective and transparent? 2022

MAINS PRACTICE QUESTION:

Q. Critically analyze the limitations of PDS in ensuring equitable access to food for marginalized communities. Suggest innovative reforms to make the system more inclusive, transparent, and efficient.

SOURCE:

https://www.thehindu.com/opinion/op-ed/the-right-to-food-and-the-struggle-with-the-pds/article69077387.ece