Report of the Working Group on Public Distribution System and Food Security for the Tenth Five Year Plan (2002-2007)

Abstract

The Report of the Working Group on Public Distribution System and Food Security for the Tenth Five-Year Plan (2002-2007) addresses the challenges of ensuring adequate food availability and access for India’s population in the context of substantial surplus foodgrain stocks. While the country does not face scarcity of cereals, the accumulation of rice and wheat in Food Corporation of India godowns, driven by minimum support prices set above market-clearing levels, highlights the need for efficient management of these surpluses. The report examines food security from the dual perspectives of availability and distribution of cereals, and the purchasing power of vulnerable populations, emphasizing that hunger arises not merely from shortage but also from lack of income and access. It analyzes changes in food consumption patterns since the Green Revolution, noting a declining trend in cereal intake, even among the poor, with rice and wheat increasingly replacing coarse cereals, and greater consumption of milk, meat, vegetables, and fruits, reflecting dietary diversification. Regional variations in consumption and expenditure patterns are highlighted to improve targeting of subsidies. The report also evaluates the role of the Public Distribution System (PDS) in transferring foodgrains to remote, backward, and tribal areas, discussing measures to reform the system through decentralization, reduction of diversion, stabilization of foodgrain prices, and innovative mechanisms such as food-for-work programs and community grain banks. By integrating these approaches, the report seeks to strengthen food security, ensure equitable access to nutrition, and optimize the functioning of the PDS as an essential instrument of national economic and social planning.