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Implementation of Reforms in Public Distribution System (PDS): A Case
Study of Sonbhadra District of Uttar Pradesh
Article in Asian Journal of Research in Social Sciences and Humanities · January 2015
DOI: 10.5958/2249-7315.2015.00244.0
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al Science, Gur
GhasidasVishwa
Asian Research Consortium dyalaya,
Chhattisgarh,
Asian Journal of Research in Social Sciences and Humanities
Koni, India.
Asian Journal of Research in Social Sciences and
Humanities **Professor &
Vol. 5, No. 11, November 2015, pp. 16-27.
Head, Departme
ISSN 2249-7315 of Political
Science, Guru
GhasidasVishw
Implementation of Reforms in Public dyalaya,
Distribution System (PDS): A Case Chhattisgarh,
Study of Sonbhadra District of Uttar Koni, India.
DOI NUMBER
Pradesh 10.5958/2249-
7315.2015.0024
0
Amit Kumar Gupta*; Dr. Anupama Saxena**
Abstract
* The present
D paper focuses
e
on the
implementation
p
of reforms in
a
Public
r Distribution
t System (PDS)
m in Sonbhadra
e District of Uttar
n
Pradesh. In
2009, due to
t
leakages, black-
marketing and
o corruption in
f
PDS, Uttar
Pradesh
government has
P taken certain
o decision for
l
improving the
distribution
i
system of ration
t
for PDS such as
i providing
c information
16
through Short Message Service (SMS) on mobile phone to the
customers regarding the delivery of ration through fair price shops(for
monitoring the delivery system under PDS).The authors have also
tried to examine that to what extent SMS based monitoring scheme
has helped to improve delivery system of PDS.
Keywords: Public Distribution System, SMS monitoring system,
ICT in Public Service Delivery System, South-Eastern Uttar Pradesh.
Introduction
The targeted public distribution system (TPDS) is perhaps the largest
ration delivery system of its type in the world with a network of 5.15
lakh local fair price shops ( also known as ration shops)[Planning
Commission, 2002-2007]. Public distribution has been retained as a
deliberate
17
Gupta & Saxena (2015). Asian Journal of Research in Social Sciences and Humanities,
Vol. 5, No.11, pp. 16-27.
social policy by India in 1951. The targeted public distribution system was launched in „poor in all
areas‟ by Prime Minister Deve Gowda in January 1997. Under this system, entitled households can
purchase subsidized food-grains, kerosene and other essential commodities from their local ration
shops(FPSs). This programme gives emphasis to provide benefits to the poorest section of the
society. Therefore, beneficiaries have been categorized in two sections, on the basis of income:
above poverty line (APL) and below poverty line (BPL). In 2000, the Antyodaya Anna
Yojana(AAY) scheme was launched for one crore poorest of the poor, these AAY beneficiaries
have been identified as poorest of the poor households amongst the BPL households, that had been
covered under TPDS. Under TPDS, the center and states governments share their joint
responsibilities to identify the entitled households, to procure essentials commodities and to deliver
food-grains to the households. TPDS is central government‟s scheme but is implemented by the
state government. The central government allocates food-grains for 6.52 crores BPL families
(including 2.43 crores AAY families) and about 11.52 crore APL families with a network of 5.15
lakh local ration shops across the country[Lok Sabha, 2013]. Recently Indian Parliament has
enacted „Food security Act‟ on 10 September 2013, with the objective of providing legal
entitlement to the poor households for receiving sufficient quantity of quality food-grains at
affordable prices to live a life with dignity [The Gazette of India, 2013]. It provides a coverage of
up to 75 per cent of the rural population and up to 50 per cent of the urban population. It stipulates
an entitlement of 5 kg of food-grains per person per month for priority households and 35 kg per
households per month for Antyodaya Anna Yojana(AAY) at subsidized prices[The Gazette of
India, 2013].
While the goal of reducing food insecurity has wide support, there are serious concerns
about diversion and black-marketing of food-grains in TPDS. Kotedars * get undue advantage by
selling food grains in black market at a price fixed by them, whichis more than the price fixed by
FPS. Targeted public distribution system(TPDS) was extremely criticized for its failure of
implementation and also to serve the poorest section, its urban bias, negligible coverage in the state
with the major concentration of the rural poor and lack of transparent and accountable systems for
delivery[Planning Commission, 2002-2007]. In this background, the government tried to
streamline public distribution system during the ninth five-year plan period (1997-02) by issuing
ration cards to BPL families and selling essential commodities through fair price shops under
TPDS at specially subsidized prices with effect from June 1997 [Planning Commission, 2002-07].
A study of the planning commission 2005 had made the following estimate on the PDS system -
“For every Rs 3.65 spend by the Government of India on the public distribution system, Only Rs 1
reaches the beneficiaries[PEO, 2005].” Similar study estimated that during the period 2004-05 the
leakages of food-grains was highest - 54% of food-grains under PDS but during 2007-08, the
leakage of food-grains was decreased that to 44% across the country, this was the improvement
over previous year[Khera, 2011a].The independent evaluation of performance by the Programme
Evaluation Organization (PEO) initiated by the Planning Commission and Ministry of Consumer
Affairs, Food and Public Distribution in 2005, found that the intensity of problem of leakage of
*
Kotedar means a person and includes a cooperative society or a corporation or a company of a
State Government or a Gram Panchayat or any other body in whose name a shop has been licensed
to distribute essential commodities under the PDS [PDS (Control) Order, 2001].
17
subsidized grains issued from the central pool is very high (i. e. 50% to 75%) in Uttar Pradesh, in
which leakage at FPS level is 25%- 50% and leakage through ghost card is 10%-30% [PEO, 2005].
To deal with this issue of corruption the government tried to integrate ICT into [Link] was assumed
that the Information and communication technology could play an important role in TPDS for
improving delivery system and to enhance knowledge of poor people regarding public delivery
system. In 2009, government of Uttar Pradesh took innovative decision for reforming the PDS by
integrating ICT into it, which included –provision of a Toll-free helpline for PDS, SMS based
information regarding Off-take of food-grains and digitization of ration cards. This paper deals with
SMS services that was launched on 26th April, 2010 in Uttar Pradesh.
Review of Literature
There is a debate regarding the functioning of TPDS. TPDS has been criticized for failure of its
delivery mechanism encouraging a section of academicians to demand that TPDS system should be
replaced by cash transfer so that to check the leakages of subsidized grains. Acash transfer system
has the potential to reduce the leakages of grainsin conventional PDS [Muralidharan et al, 2011]. A
Cash transfer and coupons system has also been considered in the National Food Security Act [The
Gazette of India]†. Similarly KripaSanker has raised point that it does not help to facilitate access of
food security to vulnerabletribals of south-easternUttar Pradesh because of the absence of assured
regular income and he has suggested that ample income opportunities should be created in these
areas [Shanker, 2002].
On the other hand, some reformists have a different view. They suggest toextend the coverage
and improve conventional public delivery service.A survey has been taken place at 1227
households from the nine states suggesting that the TPDS has made positive and substantive
improvement. In the findings, Khera has shown that 84%-88% of BPL households receive their
entire entitlement, with only 12%-18% of the BPL households not receiving their entire entitlement
at all. The state, which is having near universal coverage is in good position for the delivery
system[Khera, 2011b].
There has been various challenges in the implementation of conventional PDS, due to bogus
ration cards, leakages in the delivery system, corruption, black-marketing of food-grains, no
efficiency in delivering entitlements to the poor and no feedback mechanism. Uttar Pradesh
government has implemented reforms to address gaps in implementation, i.e., Toll-free helpline for
PDS, SMS based information regarding Off-take of food-grains and digitization of ration cards.
Recently, using household survey data from Uttar Pradesh,Nagavarapu&Sekhre, 2014 have
demonstrated importance of improving the conventional delivery system in PDS because without
improving monitoring and enforcement in conventional PDS, Kotedars get undue advantage by
selling food grains in black market at a price fixed by them, which is more than the price fixed for
FPS.[Nagavarapu&Sekhri, 2014].
†
National Food Security Act†, which was enacted on 10 September 2013
Objectives of Study
The objective of this paper is to examine the implementation of reforms in Targeted Public
Distribution System (TPDS) in South-Eastern Uttar Pradesh. In 2009, due to leakages, black-
marketing and corruption in PDS, Uttar Pradesh government has taken certain decision for
improving the distribution system of ration for TPDS such as providing information through SMS
on mobile phone to the customers regarding the delivery of ration through fair price shops (for
monitoring delivery system under PDS). The authors have also tried to examine that to what extent
SMS based monitoring scheme has helped to improve delivery system of PDS.
Methodology
The study is based mainly on survey methodology though the data have been collected by both
primary and secondary sources.
1.1. Secondary Sources: Data have been collected from secondary sources-Government‟s
Official Websites, Government‟s Orders, Research Papers of the various Scholars, and
Reports.
1.2. Primary Sources: The field work was carried out in the Dudhi block of Sonbhadra district
of Uttar Pradesh. Uttar Pradesh was selected because of efforts of the government in
reforming the implementation of PDS by use of ICT.
In Dudhi 31.1 percent (with 41.8 percent rural population of ST‟s Total population) population is of
Schedule Tribe (ST) community[Census of India, 2011]. 6-gram panchayatsJharu Kala, Majhuli,
Katoli, Dhuma,But-berahawa, and MedaniKhar‟s gram panchayats were purposively selected.A
survey has been carried out in March, 2015 .The selection of respondents was done [Link]
were selected on the basis of possession of digitized cards in the categories of AAY, BPL and APL.
In these 6 gram panchayats, total 111households were interviewed. The data was collected using
structured questionnaire prepared for the collection of information from households,who are
benefitted from the PDS. Open ended and Closed-ended both questions have been used to get
further insights on the implementation of reforms in PDS. Data collected through the survey has
been analyzed by using SPSS.
Findings of Survey
Profile of Households
Table [Link] of households on the basis of Gender and Caste
Gram Type of Ration Cards Gender Caste
Panchayat AAY BPL APL Total Male Female Total SC ST OBC General Total
name
7 8 6 21 14 21 3 10 6 21
Jharo Kala 7 (20) 2 (28.6)
(16.7) (22.2) (18.2) (18.9) (18.4) (18.9) (13.6) (21.7) (16.7) (18.9)
6 6 6 18 14 4 18 3 9 6 18
Dhuma 0 (0.0)
(14.3) (16.7) (18.2) (16.2) (18.4) (11.4) (16.2) (13.6) (19.6) (16.7) (16.2)
8 5 6 19 12 7 19 0 14 4 19
Majhauli 1 (14.3)
(19.0) (13.9) (18.2) (17.1) (15.8) (20.0) (17.1) (0.0) (30.4) (11.1) (17.1)
But 6 6 6 18 14 4 18 9 0 8 18
1 (14.3)
Berahawa (14.3) (16.7) (18.2) (16.2) (18.4) (11.4) (16.2) (40.9) (0.0) (22.2) (16.2)
6 6 6 18 12 6 18 4 2 12 18
MedaniKhar 0 (0.0)
(14.3) (16.7) (18.2) (16.2) (15.8) (17.1) (16.2) (18.2) (4.3) (33.3) (16.2)
9 5 3 17 10 7 17 3 11 0 17
Katolli 3 (42.9)
(21.4) (13.9) (9.1) (15.3) (13.2) (20.0) (15.3) (13.6) (23.9) (0.0) (15.3)
Total 42 36 33 111 76 35 111 22 46 36 7 111
Note: Figures in brackets indicates percentage
Sources: Survey Data
The above table gives a brief profile of the sampled households. Out of 111 selected respondent, 42
households belonged to AAY, 36 households to BPL and 33 households to APL. Out of total
household representatives interviewed, 76 were male and 35 were female. Simultaneously, 22
belonged to Schedule Caste (SCs), 46 to Schedule Tribes (STs), 36 to other backwards class
(OBCs) and 7 to General categories.
Table2. Qualification of respondents on the basis of Type of Ration Cards,
Gender and Caste
Ration Card Gender Caste
Qualificatio
Femal Genera
n AAY BPL APL Total Male Total SC ST OBC Total
e l
25 22 10 29 57 10 32 13 57
57
Illiterate (59.5 (61.1 (30.3 (38.2 28 (80) (51.4 (45.5 (69.6 (36.1 2 (28.6) (51.4
(51.4)
) ) ) ) ) ) ) ) )
Under 1 1 2 4 4 2 1 1 4
4 (3.6) 0 (.0) 0 (.0)
Primary (2.4) (2.8) (6.1) (5.3) (3.6) (9.1) (2.2) (2.8) (3.6)
6 4 3
Primary Pass/ 10(9.0 7 10 2 3 10
(14.3 0 (.0) (12.1 3 (8.6) (13.6 2 (28.6)
Middle Fail ) (9.2) (9.0) (4.3) (8.3) (9.0)
) ) )
8 6 7 18 21 4 6 10 21
Middle Pass/ 21
(19.0 (16.7 (21.2 (23.7 3 (8.6) (18.9 (18.2 (13.0 (27.8 1 (14.3) (18.9
Matric Fail (18.9)
) ) ) ) ) ) ) ) )
5 5 11 6
1 11 11 2 2 (4. 11
Matric (13.9 (15.2 (14.5 0 (.0) (16.7 1 (14.3)
(2.4) (9.9) (9.9) (9.1) 3) (9.9)
) ) ) )
1 1 2 3 4 3 4
Intermediate 4 (3.6) 1 (2.9) 0 (.0) 0 (.0) 1 (14.3)
(2.4) (2.8) (6.1) (3.9) (3.6) (6.5) (3.6)
2 2 2 2 2
Graduate 0 (.0) 0 (.0) 2 (1.8) 0 (.0) 0 (.0) 0 (.0) 0 (.0)
(6.1) (2.6) (1.8) (5.6) (1.8)
Post 1 2 2 1 1
0 (.0) 1 (3) 2 (1.8) 0 (.0) 0 (.0) 0 (.0) 2 (1.8
Graduate (2.8) (2.6) (1.8) (4.5) (2.8)
Total 42 36 33 111 76 35 111 22 46 36 7 111
Note: Figures in brackets indicates percentage
Sources: Survey Data
In all 6gram panchayat, 51.4% of 111 selected respondent were illiterate. 80 % out of 35 female
respondent were illiterate. 69.6 % out of 46 STs and 45.5% out of 22 SCs respondent were
illiterate. 59.5% out of 42 AAY respondent were illiterate, 61.1% out of 36 BPL respondent were
also illiterate. The above data demonstrates that majority of households were illiterate, especially
among STs, belonging to AAY households.
SMS Scheme
Information and communication technologies (ICTs), such as short message service (SMS) via
mobile phone, can relay to information regarding the lifting of food-grains form warehouse to the
fair price shops. The ICTs based SMS technology can play a significant role in the PDS.
Objective of the Programme
1. To provide information about the lifting of food-grains ‡ and kerosene relay to 10-15 mobile
phone users in the village or locality such as Gram Pradhan, up-Pradhan, one female, two
Scheduled Caste(SC), one Minorities and OBCs groups through SMS[Government of Uttar
Pradesh, 2010].
2. To improve efficiency, accountability, transparency, reduced leakages of food-grains and enhance
knowledge to poor for regarding public delivery service under PDS in both rural and urban areas.
Starting of the SMS Services
This service was initiated by State Government in Mayawati‟sregime in23 April, 2010.
• The SMS services in TPDS was initiated by IAS office RigzinSamphel. (then District
Magistrate of Jalaun)[Naidunia, 2010]
• It was initiated as a pilot project only for Jalaun and Baharaich district in 23 April, 2010. It is now
being extended across the state.
In August, 2014, a total of 1884702 registered mobile users were receiving SMS alerts. However,
there is a large amount of variation in successfully delivered massages across districts. For instance,
among the 75 districts for which SMS datadata is available, 3 districts have zero SMS massage
successfully delivered in August, 2014[Food and Civil Supplies Department, 2014].
Sample Message is as following
“Namaskar, ration delivered to FPS: ******, Gram Panchayat: Kewal, Block:Duddhi, District:
Sonbhadra on 30/12/2014; Kerosene= 1193 Ltr.”
‡
Lifting of food-grains is done by Roster System from block warehouses.
Table 3. Successfully sent SMS -from August to December, 2014
Month (2014) Successfully sent SMS, 2014-15
Gram
August September October November December
Panchayat
Jharo Kala 152 152 152 152 152
Dhuma 88 88 88 0 0
Majhauli 14 14 14 0 0
But Berahawa 26 26 26 0 0
MedaniKhar 11 11 11 0 0
Katolli 15 15 15 15 15
Sources: Government official side from Food & Civil Supplies Department, Govt of Uttar Pradesh§.
Table3 clearly shows that SMS service in the panchayats of Jharo Kala, and Katolihas been
consistent and performed well. Panchayats of But-berhawa, MedaniKhar, Dhuma and Majhaulidid
not get access of SMS service or had little access. There can be seen mix responses of SMS service
and gives no positive hopes.
Table [Link] with Ownership of mobile Phone and Capacity to use
SMS in English
Can you understand Do you have your own Do you Know how to send
Ration
English? mobile phone? and receive SMS?
Card Yes No Total Yes No Total Yes No Total
4 38 42 20 22 42 38 42
AAY 4 (22.2)
(20) (41.8) (37.8) (31.2) (46.8) (37.8) (40.9) (37.8)
6 30 36 23 13 36 29 36
BPL 7 (38.9)
(30) (33) (32.4) (35.9) (27.7) (32.4) (31.2) (32.4)
10 23 33 21 12 33 33
APL 7 (38.9) 26 (28)
(50) (25.3) (29.7) (32.8) (25.5) (29.7) (29.7)
20 91 111 64 47 111 18 93 111
Note: Figures in brackets indicates percentage
Sources: Survey Data
Table No. [Link] that majority of respondents do not know the use of SMS service provided
through the mobilephone. Only 18answered in affirmative in regard to understanding English SMS,
it gets worse when we come to know that only 64 out of 111 have their own cellphone.
§
[Link]
70&finyr=2015-16&mnth=02&bcode=0007
Table 5. Awareness regarding the Information of SMS Service
Question Option
In Public Distribution System, have you heard about
Yes No. Total
SMS scheme?
40 42
AAY 2 (25.0)
(38.8) (37.8)
36
BPL 4 (50.0) 32 (31.1)
(32.4)
2 31 33
APL
(25.0) (30.1) (29.7)
Total 8 103 111
Note: Figures in brackets indicates percentage
Sources: Survey Data
It is clear from the above data that majority of respondents are unaware about the SMS service
regarding off-take of food-grains from warehouse through fair price shop dealers under PDS. Out
of 111, 103 respondents are unaware about SMS service. Out of 8 only 4 BPL Households have
ever heard about SMS service under PDS.
Table 6. No. of Respondents on the basis of Type of Ration Card who have
registered their Mobile Numbers to receive SMS Services
Question Option
Have you registered your mobile number
Not Total
to receive SMS regarding Off-Take of Yes No
Food-Grains? Applicable
2 0 40 42
AAY 33.3% .0% 38.8% 37.8%
3 1 32 36
BPL 50.0% 50.0% 31.1% 32.4%
1 1 31 33
APL 16.7% 50.0% 30.1% 29.7%
Total 6 2 103 111
Note: Figures in brackets indicates percentage
Source: Survey Data
It is clear that only 6 respondents out of 8 who have heard about SMS service under PDS have
registered their mobile number for SMS regarding off-take of food-grains. It is also clear from
above data that only 3 BPL households have registered their mobile number for receiving SMS
regarding off-take of food-grains.
Table [Link] of Information on the basis of Type of Ration Card regarding
availability of Ration
If not heard about SMS service, how do you receive information regarding
availability of ration in ration shops?
Through Total
Type of Ration Through the Through the Other such as fixed
SMS / Not
Cards local people Kotedar date of month
applicable
AAY 23 (34.3) 6 (46.2) 11 (50.0) 2 (22.2) 42 (37.8)
BPL 24 (35.8) 4 (30.8) 5 (22.7) 3 (33.3) 36 (32.4)
APL 20 (29.9) 3 (23.1) 6 (27.3) 4 (44.4) 33 (29.7)
Total 67 13 22 9 111
Note: Figures in brackets indicates percentage
Sources: Survey Data
Table [Link] the sources of information for receiving [Link] who are unaware about
SMS scheme they are getting information about availability of ration in fair price shops by different
sources. 67 out of 111 get information through local people, 13 are informed by kotedars, 22
receive information by personally visiting the shops on scheduled date, and 6 households receive
information through SMS. With the study of this data one interesting aspect is visible that even
after implementation of SMS schemepeople depend more on the conventional means of getting
information regarding availability of ration in the fair price shops.
Conclusion
The delivery mechanism of TPDS seems to be not successfully implemented. On the basis of this
research several inferences can be drawn. The government efforts to introduce the SMS scheme are
giving mix responses among various households. The objective of this scheme was to promote
transparency and accountability through the improvement of delivery service. This whole agenda is
defeated due to several factors like less awareness regarding the SMS scheme and people are more
inclined towards conventional means for getting information regarding availability of food grains.
At the same time the low literacy rates particularly among AAY and BPL are also affecting this
whole mechanism. Introducing SMS in English in a highly backward region of South-Eastern UP is
also impractical. People are not able to use SMS services due to illiteracy and low level of ICT
awareness. Hence whole agenda of social security is being challenged. Dudhi block of Sonbhadra
district, under the present study is located in a socio- Economically challenged region of India.
Hence any mechanism planned to be implemented in such region has to be full proof and as
according to the literacy level and understanding level of local people. Motivating people with the
help of local NGOs and cooperative societies have to be promoted. People‟s participation at ground
level has to be ensured to fulfill the agenda of better governance. All information should be
provided in their local languages. Organizing workshops to create awareness regarding such
schemes, with the advertisement in local newspapers and radio telecast will also be useful. Such
types of mechanism can help to improve delivery mechanism of TPDS and also encourage to
people for participate in public delivery mechanism.
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