While addressing a joint session of Parliament,
President Pranab Mukherjee said “in due course the direct benefits transfer
system will also cover wages and subsidies on food.”
The enthusiasm for routing the food subsidy in the form
of cash transfers has severe political advantages but at the same time has
serious fallout in the fight against hunger and malnutrition. The political
advantage was spelled out by Rahul Gandhi the other day when he made it abundantly clear that cash transfers
could win them not only 2014 but also the 2019 general elections. The entire
academic euphoria over the proposed aggressive rollout of Aadhar-based cash (electronically generated unique identification
number UID) therefore is simply overbearing and needs to be seen in the light
of political bias. In fact, the visible trend in the ongoing national debate is
more towards being seen as politically correct.
A World Bank working paper, entitled: “Conditional Cash
Transfers, Political Participation and Voting Behaviour,” studied the voting
behaviour for a conditional cash transfer programme launched in Colombia just
before the 2010 elections. Subsequently, a 2011 study of an unconditional cash
transfer programme in Uruguay clearly established that cash transfers did help
the ruling party get a large share of the votes, and thereby helped the party
to romp home at the back of cash transfers. In India, the political urgency and
the aggressiveness with which the massive cash transfers are expected to cover
the entire country by April 2014 is therefore quite obviously aimed at bringing
electoral benefit to the ruling party.
The unconditional direct cash transfer programme that was
proposed to be launched from Jan 1 in three phases started with 43 districts
involving a cash provision of Rs 20,000-crore*. Eventually, all forms of
subsidies to the poor, including food and fertiliser, will be in the form of
cash flow, and would add up to Rs 300,000- crore annually. I fail to understand
how and why such a massive cash outflow pipeline will reach the beneficiaries
without first putting up a fool-proof delivery system in place. The Mahatma
Gandhi National Rural Employment Guarantee Act (MNREGA) too was envisioned with
a lot of expectations but has miserably failed to deliver. Several studies have
pointed to nearly 70-80 per cent leakages, and yet somehow the impression is
that MNREGA has transformed the rural economics.
With only 40 per cent of the population having access
to banks, and with the over ambitious target of reaching the remaining
population through banking correspondents – who will be operating like the
village postmen except they will now be equipped with portable handheld machines
acting like micro-ATMs – we are perhaps expecting too much from the most
important human link between the technology and the money delivery. So far,
there are only 70,000 banking correspondents and the experience has not been
very encouraging. In the next one year, the number of banking correspondents
will have to increase ten-fold to reach a staggering figure of 7 lakh.
Knowing that the entire rural and agricultural banking
operations are rooted in corruption, I wonder how we have accepted that the banking
correspondents will not be swayed by corrupt practices. If 60 per cent of the
beneficiaries have to be reached through an army of banking correspondent, who
will be handling over Rs 150,000- crore by any conservative estimate, the
delivery mechanism is certainly fraught with over-confidence stemming from
political urgency. This is where I think the policy makers and bureaucrats have
failed to rise above assumptions. This is where I think the aadhar-based cash-for-vote will end up
being no different than the hype generated at the time of launching MNREGA.
Nevertheless, what worries me more is when cash
transfers move to the next phase, and that means meeting food entitlements
directly with cash. Thanks to the concerns raised by the civil society, the
government has deferred cash-for-food for the time being. It was more because
of the fear that the cash-for-food programme could go completely out of
control, and therefore could negate the political advantage that the ruling
party is hoping to garner, that it has been kept in abeyance. At a time when
the proposed National Food Security bill is pending introduction before the
2014 elections, any tampering without a proper evaluation could backfire.
But still, the hawks are keen to push it through as
early as possible. The government has already announced that cash-for-food will
begin in union territories in about a month’s time.
It is true that more than 60 per cent of the food that
is channelized through the public distribution system is either wasted or siphoned
off in transit and the entire system is mired in corruption. What reaches the
poor beneficiaries is often not even fit for consumption. The answer however
does not lie in dismantling the Public Distribution System (PDS), but reforming
the world-largest food delivery system to riddle it of corruption, and make it
more effective. This is certainly possible, but given the extent of political
meddling in the allotment of ration shops to transportation of grains, it has
never been attempted in right earnest.
For several decades now, the international emphasis has
been to force India to dismantle the PDS. The first attempt was made at the
time of the infamous Arthur Dunkel draft during the primitive years of world
trade negotiations. WTO aimed at curtailing the PDS role, and wanted markets to
ensure food security. Strong opposition from India, cutting across political
lines, forced the WTO to eventually withdraw that clause. Subsequently, in the
name of decentralisation of food procurement and storage system, an attempt was
made during the tenure of former Prime Minister Atal Bihari Vajpayee to divest
the Centre of its onerous responsibility of procuring foods for the central
pool, and leave it to the States to manage grain procurement, storage and
distribution.
Several chief ministers had opposed the
decentralisation move thereby forcing the government to retreat. For several years now, the emphasis has once again been
on discarding food procurement. Allowing Food Corporation of India (FCI) to
increasingly take on a commercial role by shifting focus from its sovereign
role of ensuring domestic food security to looking for opportunities for grain
exports, and finally to engage in future trading in wheat so as to offload and
earn profits from the mounting surplus it carries. This has also to be seen in
conjunction with the proposal to cap food procurement to the country’s buffer
stock needs, and thereby deprive farmers of getting benefit of the assured
price of wheat and rice. At present, FCI is under an obligation to purchase the
surplus grains flowing in to the mandis
(market yards) at the Minimum Support Price. Once this role is withdrawn,
farmers would be left at the mercy of trade.
Providing cash in the hands of poor beneficiaries means
less emphasis on the PDS ration shops. The idea is to provide coupons or
provide food entitlements in the form of cash, and leaving it to the people to
buy their quota from the market. Whether the money provided would be used
primarily to buy liquor, junk foods or other consumer goods is an important
issue, but what is more important is to understand how it is aimed at dismantling
the food procurement system. This subtle way, very cleverly designed, would
undo the gains of food self-sufficiency so assiduously achieved after the
advent of Green Revolution.
The underlying objective is very clear. Once the direct
cash transfers begin, the ration shops would be gradually phased out. Once the
PDS shops are removed, the cap in food procurement that is being suggested for
FCI will come into play. With food procurement limited to meet the buffer
requirements, which is somewhere between 14 to 22 million tonnes a year (against
82.3 million tonnes stocked with the FCI in June 2012), wheat and rice farmers
would no longer get the benefit of the minimum support price. Farmers would be
left to face the vagaries of the trade, and as has been the experience in those
States which do not have a robust system of mandis
and thereby unable to provide farmers with assured prices, distress sale will
become a norm.
Withdrawal of food procurement system will have an
impact on food production. This would help farmers to abandon farming, and
migrate to the urban centres. This is exactly what the World Bank has been
proposing for several years now. The 2008 World Development Report had called
for land rentals and providing farmers with training opportunities so that they
can be absorbed in the industry. The government, as directed, made budgetary
provisions for setting up 1000 industrial training institutes across the
country. It is therefore obvious that the government had wanted to withdraw
from food procurement and distribution for quite long now, following the
dictates of the World Bank/IMF. Cash-for-food will facilitate the process and make
it easy. Food requirement will then have to be met from imports, and there is
already a dominant thinking within the government which advocates importing
subsidised food off-the-shelf from the western countries rather than spending
more on growing food within the country.
FDI in retail comes at a time when contract farming is
receiving greater attention. The idea is to link the farmers growing cash crops
with the supermarkets. This will help the government from doing away with the
system of announcing the minimum support price and thereby reduce the subsidy
outgo. This is exactly what the World Trade Organisation (WTO) had wanted
several decades ago. The process to dismantle food procurement, a highly
emotive issue in India, actually began in mid 1990s. It is now receiving the
final touches.
Prime Minister Manmohan Singh had repeatedly said that
the country has 70 per cent more than what is required. Cash-for-food will
provide the smokescreen needed to accomplish what the WTO/World Bank/IMF have been
telling India for long. It is only when of the farming population is moved out
of the villages that the agribusiness can find a stronghold in India. The
predominant economic thinking is that the population in agriculture has to cut
back drastically for any country to grow economically. Cash transfers will
deliver to the bigger promise of igniting country’s economic growth. #
Source: Governance Now, May 1-15, 2013. Vol 04 Issue 07