STRATEGY FOR ENSURING FOOD SECURITY IN INDIA
Dr. Narayan G. Hegde
BAIF Development Research Foundation, Pune
Food Security: Major Challenge in Rural India
While India has made significant progress in the areas of Science and Technology and industrial development, food security for the rural poor continues to be a cause of concern. Major reasons which still keep India a developing nation, are growing population, over dependence of rural population on agriculture, decreasing growth in agricultural production due to depleting natural resources and poor implementation of development programmes intended to promote sustainable development. Among these problems, food security is the most crucial as it hampers the development of the people as well as the nation.
Increase in agricultural production through active involvement of small farmers and weaker sections of the society can empower the rural poor to earn their livelihood and improve their quality of life. Hence, agricultural development deserves priority.
Problems of Food Production
Small and fragmented land holdings, heavy soil erosion resulting in depletion of soil productivity, inefficient use of water resources, out-dated agricultural production technologies, un-availability of agricultural credit and lack of infrastructure for post harvest management and marketing of agriculture produce, are responsible for lower yield and income.
Livestock has been another source of income particularly for small farmers and landless families in rural India. However, over the years, there has been severe genetic erosion which has led to further neglect of feeding and health care. As a result, livestock which was supposed to be an asset by contributing to income and food security, has turned into a liability. When the yields of crop and livestock are low, farmers earn lower income and naturally, the employment opportunities in the farming sector are also reduced.This leads to reduction in farm wages, seasonal employment, malnutrition and migration.
Strategy for ensuring Food Security in India. Concept Paper. Special Presentation at the National Advisory Council Meeting chaired by Mrs. Sonia Gandhi, New Delhi. May 23.
Water is a critical input for food production and better quality of life. Neglect of water resources will not only affect the agricultural production and employment opportunities, but also affect the supply of clean potable water. Presently, 70% of the water used for drinking in rural India is not safe as per the WHO standards and this has an adverse effect on the health of rural communities. Unemployment leads to poverty, ill-health, neglect of women, high infant mortality and illiteracy. Lack of corrective action well in time, leads to chronic poverty. Therefore, it is essential to break this vicious cycle. Improvement in agricultural production, can address this challenge.
Indian Green Revolution for Food Security
While control on population growth is a slow process, the immediate action to be taken is to increase the food production. Realising this, the Government of India had launched the Green Revolution programme in a mission mode in the late sixties, with various services for backward and forward integration, through coordination among various organisations engaged in agricultural development.
Major components of Indian Green Revolution were:
•Use of High Yielding Varieties of Crops
•Expansion of irrigation infrastructure and double cropping
•Timely supply of inputs
•Farm mechanisation
•Intensive use of chemical fertilisers and pesticides
•Increased access to farm credit
•Creation of marketing infrastructure
•Minimum support price for select farm commodities
•Emphasis on Agricultural Research, Education and Extension
This strategy worked very well particularly in Punjab, Haryana and parts of Uttar Pradesh and Rajasthan, where lands were well developed, fairly fertile water for irrigation was available in plenty and farmers were looking foran opportunity to increase their income. Their major focus was on paddy, wheat and maize crops as high yielding hybrid varieties developed by a consortium of International Research Institutes were readily available for promotion in India. As the Government provided generoussupport to develop necessary infrastructure for individual farmers as well as for creating common infrastructural facilities, the area under crop production increased from 115.58 million ha in 1960 to 127.84 million ha in 1990 as presented in Table 1.
Table 1: Impact of Green Revolution
1950 / 1960 / 1970 / 1980 / 1990 / 2000 / 2010Cropped Area
(million ha) / 97.32 / 115.58 / 124.32 / 126.67 / 127.84 / 126.7 / 125.73
Food grain
production
(million tons) / 50 / 82 / 108.4 / 129.06 / 176.4 / 201.8 / 241.56
Population
(million) / 360 / 439 / 548 / 683 / 846 / 1000 / 1150
There was a significant increase in the production of staple food crops. While the yield of rice increased by 200%, wheat by 225% and oilseeds by 229%, the yield increase was only 131% in pulses. However, there wasno significant increase in the yield of coarse cereals which are mostly grown in the rain-fed areas, by small farmers. It is because of Green Revolution that the country became self-sufficient and prosperous. The food grain production also increased from 82 million tons in 1960 to 176.4 million tons in 1990 and to 241.56 million tons in 2010. The increase in total production of different crops during the last 60 years is presented in Table 2. It generated employment for landholders as well as landless while ensuring food security for the country. The positive impacts of Green Revolution continued for over 30 years till the 1990’s. In the1990s, the growth in the agricultural sector started facing stagnancy. There was a gradual decline in the growth of agricultural production, which dropped from 10-12% during the peak of the Green Revolutionto 4.7% in the 90’s(Eighth Five Year Plan Period). The growth in production further reduced to 2.5% during the Ninth Plan Period and to 2.3% during the Tenth Plan Period (Government of India, 2011)*.
*Government of India, 2011. Faster, Sustainable and More Inclusive Growth – An Approach to the XII Five Year Plan, Planning Commission. 146 pp.
Table 2: Growth in Food Grain Production in India
Year / Food Crop Production (million tons)Rice / Wheat / Coarse
Cereals / Pulses / Total food
grains
1950-51 / 20.58 / 6.46 / 15.38 / 8.41 / 50.82
1960-61 / 34.58 / 11 / 23.74 / 12.7 / 82.02
1970-71 / 42.22 / 23.83 / 30.55 / 11.82 / 108.43
1980-81 / 53.63 / 36.31 / 29.02 / 10.63 / 129.59
1990-91 / 74.29 / 55.14 / 32.7 / 14.26 / 176.39
2000-01 / 84.98 / 69.68 / 31.08 / 11.07 / 196.81
2010-11 / 95.32 / 85.93 / 42.20 / 18.09 / 241.56
The increase during the first 30 years of Green Revolution was mainly due to increase in the area under crop production and introduction of improved varieties with recommended cultivation practices. The increase in food production during 1990 to 2010 can be attributed to improved efficiency and increased use of inputs, particularly agrochemicals which also enhanced the cost of production. The increase in the yield of major food crops during the period 1970 to 2011 is presented in Table 3. By and large,India wasimmensely benefitted from Green Revolution. The country which was dependent on imported food grains to meet the day-to-day food requirement of the common people,was transformed into a food exporter.
Table 3: Improvement in Indian Agricultural Productivity
Crops / Av. Yield (Kg/ha)1970-71 / Av. Yield(Kg/ha)
1990-91 / Av. Yield (Kg/ha)
2010-11
Rice / 1123 / 1740 / 2240
Wheat / 1307 / 2281 / 2938
Pulses / 524 / 578 / 689
Oilseeds / 579 / 771 / 1325
Sugarcane / 48332 / 65395 / 68596
Cotton / 106 / 225 / 510
The cultivation of high yielding varieties demanded higher doses of chemical fertilisers, pesticides, more diesel and electrical power to pump water from wellsfor irrigation. The cost of these three inputs contributed to 15% of the total cost of inputs in 1970, which increased to 55% in 1994 and over 80% in 2005. Hence, although the yields of certain crops increased significantly, it was mainly due to increase in the quantity of inputs, which had a negative impact on the profitability and the environment. Furthermore, as the Green Revolution areas of Punjab and Haryana were already surplus in food grains, there were no local buyers for commodities such as paddy and wheat. Hence, they were unable to sell the produce at a remunerative price which necessitated the Government to buy at a minimum support price. At the same time, the poor people who could not earn their livelihood in other areas, were unable to purchase food from the market.
Impact of Slow Growth in Agricultural Production
Reduction in the rate of growth in food production had several adverse effects on the farmers, particularly the poor. As can be seen in Table 4, the per capita availability of food grains declined after 1990. While the availability of rice and wheat marginally declined, there was a drastic reduction in the availability of coarse cereals and pulses. This had a direct impact on the supply of protein and minerals, which accelerated the incidences of malnutrition particularly among pregnant women and children.
Table 4. Per Capita Availability of Food Grains in India
(Kg per capita per year as in July 2009)
Year / Rice / Wheat / OtherCereals / Pulses / Foodgrains1951 / 58.0 / 24.0 / 40.0 / 22.1 / 144.1
1961 / 73.4 / 28.9 / 43.6 / 25.2 / 171.1
1971 / 70.3 / 37.8 / 44.3 / 18.7 / 171.1
1981 / 72.2 / 47.3 / 32.8 / 13.7 / 166.0
1991 / 80.9 / 60.0 / 29.2 / 15.2 / 186.2
2001 / 69.5 / 49.6 / 20.5 / 10.9 / 151.9
2010 / 64.0 / 53.0 / 19.7 / 15.3 / 159.2
Stagnation in agricultural production has also been suppressing the employment opportunities in this sector. As a result, contribution of agriculture to the national GDP has come down drastically from 58% in 1951 to 35% in 1991 and to 17% in 2009. However, the population dependent on agriculture in the country reduced marginally from 70% in 1951 to 60% in 2009. This hasbeen affecting the income of the rural families and their capacity to purchase food. Thus, the per capita food consumption in rural India has been decreasing significantly over the last 25 years, as presented in Table 5.
Table 5: Per Capita Food Consumption in India
Year / Calories (kc) / Fats (gm) / Protein (gm)Rural / Urban / Rural / Urban / Rural / Urban
1983 - 4 / 2240 / 2070 / 63.5 / 58.1 / 27.1 / 37.1
1987- 8 / 2233 / 2095 / 63.2 / 58.6 / 28.3 / 39.3
1993 - 4 / 2153 / 2073 / 60.3 / 57.7 / 31.1 / 41.9
1999 - 0 / 2148 / 2085 / 59.1 / 58.4 / 36.0 / 49.6
2000 -1 / 2083 / 2027 / 56.8 / 55.3 / 34.6 / 46.1
2004- 5 / 2047 / 2021 / 55.8 / 55.4 / 35.4 / 47.4
While the urban people require 2100 calories per day, the rural people require 2400 calories to lead a normal life. However, the average calorie intake of urban peopleis below 2000 calories, while that ofthe rural people hasreducedto 2050 calories. This highlights the need for increasing the growth rate in agriculture at the earliest, across the country.
Strategy for Boosting Agricultural Production
Areas Benefitted from Green Revolution:
While focussing on the development in agricultural production across the country, it is necessary to categorise the areas which were benefitted through Green Revolution and the other areas which had very low impact. For areas like Punjab, Haryana, parts of Uttar Pradesh and Rajasthan where the growth in agricultural production is now stagnant andtheenvironment is deteriorating, the strategy should be to change the cropping pattern to rebuild soil productivity and increase the crop yields while reducing the cost of production and ill-effects of environmental pollution. This can be done through the following initiatives:
- Efficient water use: A shift from flood irrigation to micro-irrigation for efficient and judicious water use, which will conserve water as well as nutrients while increasing the crop production.
- Balanced crop nutrition: Judicious use of organic and inorganic nutrients in proper proportion, as required for different crops can improve crop yields. Presently, the farmers have been using higher doses of NPK without applying requisitequantities of farm yard manure, biofertilisers and micro-nutrients. Experiences in China have confirmed that it is only with the application of higher doses of organic manure, thatcrops will be able to utilise higher doses of chemical fertilisers. This would help in improving the crop yields while keeping the soil productivity high. Simultaneously, application of micro-nutrients and soil amendments as required, would further improve the crop yields. Use of eco-friendly inputs like bio-fertilisers and bio-pesticides should be encouragedto decrease the cost of agro-chemicals while reducing environmental pollution.
- Crop Diversification: Paddy and wheat rotation for over 35 – 40 years, is another reason for depletion of soil fertility and decreasing crop yields. Therefore, an alternative cropping pattern needs to be introduced at the earliest. Although, it may be difficult to completely shift from this rotation, there are opportunities for introducing new farming systems on a small scale. Among many such initiatives, hi-tech dairy farming is a promising opportunity wherefarmers aremaintaining 200-500 milking cows or buffaloes with intensive fodder production. Such dairy farms will not only reduce the demand on agro-chemicals and labour, but also produce high volume offarm yard manure which will be useful to maintain nutritional balance for crop production.
Development of Rain fed Areas:
With regard to areas which were not significantly benefitted from Green Revolution, greater attention is needed as most of the small farmers dependent on rainfed farming, are not able to earn their livelihood. Over 75% of the rural households in the country are marginal and small farmers, holding less than 2 ha and a majority of them are dependent on rain fed agriculture for their livelihood. However, due to depleting soil fertility, lack of assured moisture supply, un-availability of critical inputs and technical know-how, crop yields are low and over 40 - 45% of the families in rural areas are living in poverty. For ensuring food securityto them, it is necessary to improve agricultural production, while enhancing their employment generation opportunities.
Tridimensional Approach to Food Security: The programme should aim atincreasing food production by tapping all the unexploited resources, while creating employment opportunities for the target communities, with efficient monitoring and governance. The primary focus of the programme should be on food production through livestock husbandry and sustainable agriculture. The programme should introduce appropriate technologies for rain-fed areas, development of wastelands and hilly terrains. Efficient water resource management should be an integral part of this programme.
The above activities can generate income for the land holders as well as the landless throughout the year. Apart from crop production and livestock husbandry, employment can also be generated through production of critical agricultural inputs such as vermicompost, biofertilisers, biopesticides, mushroom spawn, silkworm eggs, cattle feed, seeds of food and fodder crops, etc. Series of agro service centres as well as livestock breeding centres can be established, each covering 2 –5 villages, by training unemployed youth and supporting their business through banking institutions. Such Service Centres can also take up the distribution of inputs and organise collection and gradation of the farm produce, for direct marketing or processing. Decentralised agro processing units can also generate additional employment while reducing the cost of processing and handling. As the rural population is steadily increasing, the per capita landholding is decreasing, thereby making it extremely difficult for the youth to get on-farm employment. Thus, promotion of various off-farm activities such as production of housing material, textile and handicrafts, farm equipment and tools can open up new employment opportunities. There is also scope for service providers in the areas of agro-engineering, electrical repairs and fittings, automobile servicing, trade and tourism.
To ensure the success and sustainability of the programme, good governance is a critical input. This can be managed by the project implementing agencies, committed civil society organisations or farmers’ cooperatives operating in the project areas. These organisations should facilitate the establishment of strong people’s organisations and enable them to design suitable need-based activities and development of value chains. Capacity building of the members of the participant families, organising efficient distribution of food supply in close coordination with public distribution system and regular mentoring of the families for efficient implementation of the programme can also be organised by engaging committed civil society organisations. While facilitating the above activities, the immediate focus should be on the development of livestock, rain-fed agriculture, denuded and wastelands with efficient water resource management which can ensure both food security and income generation for the rural poor.
Priority Sectors for Food Security
- Livestock Development: Over 70 - 80% rural households in India, particularly small farmers, own different species of livestock as a source of sustainable income. However, over 80% of the livestock particularly cattle and buffaloes are uneconomical due to low milk yield. To address this problem, BAIF has demonstrated a unique approach of genetic improvement for producing high yielding cattle and buffaloes at the doorsteps of small farmers and 3 such milch animals can provide sustainable livelihood for a family. Initially, the programme has a gestation period of 3.5 to 4 years. Subsequently, the participant families will be able to earn about Rs. 35,000 - 40,000 per annum. They can earn additional income by selling surplus animals, which fetch Rs. 30,000 to 50,000 per cow. Indeed, this is a very unique programme where the poor start developing high value assets, which no other programme can facilitate.
Goat husbandry is another opportunity to provide supplementary income without increasing the herd size and burden on natural resources. This programme, focussing on breed improvement, health care, efficient feeding by use of available resources and direct marketing, could enhance the income by 4 - 5 times within a short span of 12 to 18 months. Piggery and poultry also have good opportunity in selected areas. Livestock development blended with agriculture, canfacilitate an efficient nutrient cycle to boost agricultural production.
BAIF is presently operating 3500 livestock development centres spread over 16 states covering 4.5 million families in 60,000 villages. The programme requires support from sponsoring agencies for an initial period of 4-5 years. While operating the programme, a nominal service fee can be collected and kept as a corpus. The programme can continue to operate without further assistance, by using the corpus and enhancing the service charges. Presently, over 1.0 million cows and buffaloes born from this programme, are able to contribute Rs. 3500 crores to the national GDP every year.
- Water Resources Management: Water is the mostcritical input for giving a boost to agricultural production. India is not a water poor country. On an average, the country receives an average rainfall of 1770 mm annually, but only 30-50% rainwater is utilised effectively, while the rest is contributing to soil erosion, floods, siltation of river beds and reservoirs. Most of our reservoirs are silted and there is a huge loss of water due to distribution. As a result, inspite of the potential to irrigate 140 million ha lands, only about 62 million ha is under irrigation. Out of this area, about 55% area is met from ground water and 45% from canals and tanks.
It is necessary to introduce efficient irrigation systems preferably by promoting micro-irrigation, while covering rain-fed areas under an efficient watershed development programme. Presently, the efficiency of surface water irrigation is only 35% and the ground water irrigation efficiency is 60-65%, because of excessive water use through flooding. This is because the farmers are charged on the basis of area covered under irrigation instead of the quantity of water used. Excessive use of water has not only reduced the irrigation efficiency but has also been turning good fertile lands into sodic wastelands. Free supply of power for pumping water is also contributing to depletion of soil fertility and ground water. Efficient storage of surface water, pricing of metered supply of water and promotion of micro-irrigation systems, can increase water use efficiency to 70 - 75% while bringing in additional cropping area under irrigation and reducing pollution of ground water. It is also necessary to restrict disposal of sewage and effluents into rivers and water bodies to improve the quality of water suitable for human consumption.