~Author: Bhavya Nahar, Palak Tak, Pratyaksh, Zaina, Rishita Sabharwal

Overview of the Public Distribution System (PDS)

The Public Distribution System (PDS) is one of India’s most extensive food security initiatives, designed to provide subsidized food grains to vulnerable sections of the population. It began during World War II as a wartime rationing mechanism and evolved into a welfare-oriented program after independence. Its primary aim is to combat hunger and stabilize food prices. In 1997, the Targeted Public Distribution System (TPDS) was launched to enhance efficiency by categorizing households into Below Poverty Line (BPL) and Above Poverty Line (APL). A significant shift came with the enactment of the National Food Security Act (NFSA), 2013, which legally entitled nearly 67% of the Indian population to food grains at subsidized rates—5 kg per person per month at Rs. 3/kg for rice, Rs. 2/kg for wheat, and Rs. 1/kg for coarse grains. The Act also strengthened existing nutritional schemes such as the Integrated Child Development Services (ICDS) and the Mid-Day Meal (MDM) scheme, especially targeting children and pregnant/lactating women. While the central government handles procurement and pricing, state governments oversee identification of beneficiaries, intra-state distribution, and monitoring. Some states like Kerala and Chhattisgarh have implemented significant reforms such as digital beneficiary records, biometric authentication, and community kitchens, showing positive impacts on food security.

Metrics of PDS Efficiency

Efficiency of the PDS is gauged through a combination of qualitative and quantitative metrics:

1. • Coverage and Reach: High-efficiency states demonstrate extensive coverage with accurate targeting, minimizing exclusion and inclusion errors.
   • Quality and Quantity of Grains: Availability of safe, nutritious, and adequate quantities is essential for impact. States like Tamil Nadu provide additional items such as pulses and fortified oils.
   • Transparency Mechanisms: Measures like grievance redressal systems, social audits, and public distribution dashboards improve trust and accountability.
   • Technological Interventions: Tools such as ePoS machines, Aadhaar-based seeding, GPS-tracked grain transport, and online ration card management systems have significantly reduced pilferage and improved transparency.

These metrics not only define the operational success of PDS but also correlate with improved hunger and nutrition indicators in states with robust implementation.

Indicators of Hunger and Malnutrition

Hunger and malnutrition are assessed through key indicators like the Global Hunger Index (GHI), which measures undernourishment, child wasting, child stunting, and child mortality. According to the 2023 GHI, India ranked 111 out of 125 countries, indicating a “serious” level of hunger (Global Hunger Index, 2023). Despite economic progress, India’s poor performance reflects deep-rooted nutritional challenges.Child malnutrition remains a critical issue. The National Family Health Survey (NFHS-5, 2019–21) reported that 35.5% of Indian children under five are stunted (low height-for-age), 19.3% are wasted (low weight-for-height), and 32.1% are underweight (low weight-for-age). These indicators reveal chronic and acute undernutrition among children.Micronutrient deficiencies, particularly anemia, further reflect malnutrition. NFHS-5 data show that 57% of women aged 15–49 and 67.1% of children aged 6–59 months are anemic, indicating widespread iron deficiency. This “hidden hunger” can impair physical and cognitive development, especially in young children and women of reproductive age.Overall, India faces a double burden of undernutrition and micronutrient deficiencies, requiring urgent multi-sectoral interventions, including improved dietary diversity, access to healthcare, and targeted public health nutrition programs.

Malnutrition in India: A Comparison Between High and Low Performing States

Introduction

Malnutrition remains a critical public health challenge in India, despite significant economic growth. While some states have made remarkable progress in reducing malnutrition, others continue to struggle with high rates of stunting, wasting, and underweight children. This paper examines the disparities between high-performing states (such as Kerala and Tamil Nadu) and low-performing states (such as Bihar and Uttar Pradesh), analyzing the factors contributing to these differences.

Background and Literature Review

Malnutrition in India is a complex issue influenced by socioeconomic, cultural, and policy-related factors. According to the National Family Health Survey-5 (NFHS-5, 2019-21), 35.5% of children under five are stunted, 19.3% are wasted, and 32.1% are underweight (Ministry of Health and Family Welfare, 2021). Research indicates that states with better healthcare infrastructure, female literacy, and effective public distribution systems (PDS) perform better in combating malnutrition (Smith, 2020). Studies highlight that Kerala’s success in reducing malnutrition is linked to high female literacy, strong healthcare systems, and community participation (Menon et al., 2018). In contrast, Bihar’s high malnutrition rates are attributed to poverty, poor sanitation, and low awareness of nutritional needs (Kumar & Singh, 2019).

Case Studies

1. 1. Kerala: A High-Performing State : Kerala has consistently outperformed other states in nutritional indicators. With a decentralized healthcare system and high female literacy (94%), the state has effectively implemented programs like the Integrated Child Development Services (ICDS). Community kitchens and nutrition education have further reduced malnutrition (Nair, 2020).

1. 1. Uttar Pradesh: Challenges in a Low-Performing State : Despite being India’s most populous state, Uttar Pradesh struggles with malnutrition, with 40% of children stunted (NFHS-5). Poor implementation of ICDS, gender disparities, and food insecurity contribute to these challenges (Patel, 2021).

Summary 

The disparity in malnutrition rates between Indian states underscores the need for targeted interventions. High-performing states demonstrate that investments in education, healthcare, and women’s empowerment yield positive outcomes. In contrast, low-performing states require stronger policy implementation and community engagement to bridge the gap. Addressing malnutrition demands a multi-sectoral approach tailored to regional challenges.

Role of Technology in Improving the Public Distribution System (PDS) in India

India’s Public Distribution System (PDS) is a vital mechanism for ensuring food security, especially for the economically vulnerable. However, it has historically been plagued by challenges such as corruption, leakage, and beneficiary exclusion. In recent years, the integration of technology has emerged as a powerful tool in reforming the PDS and making it more efficient, transparent, and citizen-friendly.

Background and Literature Review

The traditional PDS model was largely paper-based and prone to corruption and inefficiency. Studies by Khera (2011) and Dreze and Khera (2017) highlighted that nearly 30–40% of grains did not reach the intended beneficiaries due to pilferage and misidentification. With the introduction of technology—such as Aadhaar-based biometric authentication, digitization of ration cards, and end-to-end computerization—states have reported significant improvements in service delivery.The Government of India’s Integrated Management of Public Distribution System (IM-PDS) and One Nation, One Ration Card (ONORC) scheme aim to create a unified digital platform to ensure portability of food entitlements across states (MoCAF, 2021). States such as Chhattisgarh and Andhra Pradesh have emerged as leaders in implementing tech-based reforms effectively.

Case Studies

Case Study 1: Chhattisgarh’s End-to-End ComputerizationChhattisgarh was one of the first states to digitize its PDS completely. From GPS tracking of trucks to SMS alerts for beneficiaries and online grievance redressal systems, the state used technology to plug leakages and reduce ghost beneficiaries. According to Singh (2020), the leakages dropped from 40% in 2005 to less than 10% by 2018 (p. 11).                                                                                                                                              Case Study 2: Andhra Pradesh’s Biometric AuthenticationIn Andhra Pradesh, all Fair Price Shops (FPS) are equipped with ePOS (Electronic Point of Sale) devices linked to Aadhaar. This has ensured that food grains are distributed only to verified beneficiaries. An evaluation by NITI Aayog (2021) showed that exclusion errors dropped significantly, and customer satisfaction increased (p. 19).                                                                                                                                              Case Study 3: One Nation, One Ration Card (ONORC)Launched in 2019, ONORC enables migrant workers to access their PDS entitlements from any location in India. Bihar and Maharashtra have seen positive results from this, especially during the COVID-19 lockdown, where portability helped maintain food security for migrant families (Verma, 2022).

Summary

The infusion of technology into the PDS has yielded measurable benefits in improving transparency, accountability, and access. While infrastructural gaps and digital illiteracy remain in certain regions, the progress in states like Chhattisgarh and Andhra Pradesh demonstrates that tech-based reforms can significantly curb inefficiencies. Going forward, scaling up these innovations nationwide with localized support can make the PDS more robust, inclusive, and responsive to citizens’ needs.

Social and Economic Impact of the Public Distribution System (PDS) in India

The Public Distribution System (PDS) in India is a crucial food security initiative aimed at providing subsidized essentials like rice, wheat, and sugar to Below Poverty Line (BPL) and Antyodaya families. It plays a vital role in reducing food insecurity, improving health outcomes, and promoting social empowerment.

Food Security & Price Stability

PDS has significantly mitigated hunger, particularly in rural and tribal areas. By stabilizing market prices and curbing inflation through Fair Price Shops (FPS), it acts as a buffer during crises like the COVID-19 pandemic, when additional rations under PMGKAY prevented widespread starvation.

Health & Nutrition

PDS, along with schemes like ICDS, has helped reduce child malnutrition and maternal anemia by providing iron-fortified grains and take-home rations. States with efficient PDS implementation, like Tamil Nadu and Chhattisgarh, show better health indicators compared to others.

Empowerment & Poverty Reduction

The system economically empowers poor households by freeing up income for other necessities. It has reduced distress migration and crime linked to hunger. Issuing ration cards in women’s names and involving Self-Help Groups (SHGs) in monitoring has also fostered women’s empowerment.

Support to Farmers

By guaranteeing a Minimum Support Price (MSP) for crops, PDS aids in income stabilization for farmers. However, its overemphasis on rice and wheat has sidelined nutritious alternatives like millets and pulses, affecting dietary diversity.

Challenges & Gaps

Despite its benefits, the PDS faces critical flaws:

1. • Leakage & Corruption: A significant portion of grains is diverted to black markets. Ghost beneficiaries and under-weighing at FPS remain rampant.
   • Exclusion Errors: Aadhaar-linked systems, while reducing duplicates, have led to exclusion due to biometric failures.
   • Storage & Transport Issues: Poor warehousing and delayed deliveries, especially in tribal areas, cause grain loss and nutritional gaps.
   • Technological Barriers: ePoS failures due to poor internet and lack of grievance redressal undermine efficiency.
   • Policy Gaps: The calorie-focused National Food Security Act (NFSA) overlooks micronutrient needs, and monitoring remains weak due to poor community engagement.

Conclusion

To enhance the PDS, reforms are needed in transparency, technology access, nutritional diversity, and decentralized governance. Community participation and improved infrastructure can transform it into a truly inclusive and resilient welfare system.

Policy Interventions and Reforms

Introduction

The National Food Security Act (NFSA), enacted by Parliament in 2013, aims to ensure food security in India, primarily addressing the country’s significant undernutrition burden. While debated for its expenditure, its core feature is granting subsidized food grains to approximately two-thirds of the Indian population. The poorest 25 million households receive 35 kg of cereals monthly, while other beneficiaries get 5 kg per person at ₹3/kg for rice and ₹2/kg for wheat through the Targeted Public Distribution System (TPDS).Beyond food grains, NFSA strengthens supplementary nutrition schemes like Integrated Child Development Services (ICDS) and Mid Day Meal (MDM). It also proposes a direct cash incentive of ₹6,000 for pregnant and lactating women to improve dietary intake. The Act seeks to enhance efficiency, accountability, and transparency in the system.The Central Government’s role includes formulating rules, procuring and allocating food grains, managing storage, assisting states with transport, and monitoring. A 10% increase in annual grain allocation for TPDS was proposed for the initial three years, with ICDS and MDM allocations remaining consistent with existing norms.

State and NFSA

Kerala stands out for its technological innovations, including the digitalization of the Public Distribution System (PDS) with e-PoS machines and a “mark-based” system for beneficiary identification using colored ration cards. The state has successfully deployed biometric authentication and electronic weighing scales in Fair Price Shops (FPS), alongside computerization of beneficiary databases. Kerala’s official NFSA portal details schemes like Annapurna and Antyodaya Anna Yojana.                                                                                    Rajasthan, known for its spices, covers a significant population under NFSA. The state faces implementation challenges and proposes solutions, drawing inspiration from Chhattisgarh’s model, which includes centralized databases, computerized goods movement, doorstep delivery, and public grievance management. Rajasthan’s official food department website offers comprehensive data on NFSA, application statuses, and transaction reports.                              Uttar Pradesh, a populous and poverty-stricken state, has embraced technology to revolutionize its ration distribution. The UP government has implemented e-KYC, Aadhaar verification, and e-PoS machines, establishing Annapurna Bhawans as multi-service centers. Significant funds have been allocated to enhance delivery, emphasizing transparency and efficiency. Notably, Uttar Pradesh abolished the district-wise quota system for beneficiary allocation, aiming for more equitable coverage, particularly in backward districts.

1. • Reforms for NFSA

1.Updating Socio-Economic Caste Census (SECC) data more frequently.

2.Using technology like data analytics and machine learning for beneficiary        identification.

3.Increasing budgetary allocations.

4.Strengthening grievance redressal mechanisms.

.         5.Improving coordination between agencies.

Community Involvement and Local Governance

Community involvement and local governance are crucial in addressing food security and malnutrition. Panchayati Raj Institutions (PRIs) play a vital role in monitoring and implementing nutrition and welfare schemes at the grassroots level. They ensure effective delivery of services like the Integrated Child Development Services (ICDS) and Mid-Day Meal (MDM) schemes. PRIs also support nutrition committees and anganwadi centres by supervising meal quality and beneficiary outreach (Ministry of Panchayati Raj, 2022).Self-Help Groups (SHGs), particularly women-led, are instrumental in mobilizing communities and improving access to nutrition. SHGs often assist in preparing meals for MDMs and community kitchens, managing local food supplies, and raising awareness on health and nutrition practices (National Rural Livelihoods Mission, 2021).Community kitchens have emerged as powerful tools in fighting hunger by providing cooked meals to vulnerable populations. Initiatives like Tamil Nadu’s Amma Unavagam and Kerala’s Kudumbashree community kitchens are examples of decentralized food security efforts that enhance local food access.Decentralization of food grain distribution through fair price shops and local governance structures improves transparency and efficiency. Involving communities in the Public Distribution System (PDS) helps curb corruption and ensures timely delivery of food grains. 

Impact on Malnutrition

Malnutrition: It is a serious condition that occurs when a person’s diet does not provide the right amount of nutrients needed for proper health and functioning. It’s not just about not eating enough; it can also result from eating too much, or from an imbalance of essential nutrients.

On children

Children under 5 are particularly susceptible. Inadequate nutrition during their rapid growth period can lead to stunting (low height for age) and wasting (low weight for height), impairing cognitive development and increasing susceptibility to illness (UNICEF, n.d.). These early childhood nutritional deficits can have irreversible long-term consequences on health and educational attainment.

Determinates of malnutrition in children

On women

Pregnant and lactating women are another critical group. Proper maternal nutrition is essential for a healthy pregnancy outcome and the development of the fetus. Malnutrition in mothers can lead to low-birth-weight babies and affect breast milk quality, impacting infant health and survival (WHO, n.d.). Recognizing this, the National Food Security Act (NFSA) in India includes provisions for cash incentives to support their dietary needs during these crucial periods.

The heavy burden of child and maternal malnutrition in India. It highlights how malnutrition in children, particularly low birth weight babies, leads to higher mortality rates and poorer developmental outcomes. It also emphasizes the intergenerational cycle where malnourished mothers give birth to malnourished babies, perpetuating the problem. The page further touches on the complexities of food preferences and distribution, and the importance of appropriate complementary feeding for young children.

On backwards groups

Scheduled Tribes (STs) and Scheduled Castes (SCs) often face higher rates of malnutrition due to historical socio-economic disadvantages, limited access to diverse foods, and inadequate public services (NFHS). Similarly, the rural poor are frequently caught in a cycle of poverty and malnutrition, exacerbated by livelihood insecurities and limited awareness of balanced diets.

Contributions for the Project

Bhavya-Overview of the Public Distribution System (PDS), Metrics of PDS Efficiency

Palak-Policy Interventions and Reforms, Impact on Malnutrition

Pratyaksh-Malnutrition in India: A Comparison Between High and Low Performing States, Role of Technology in Improving the Public Distribution System (PDS) in India

Zaina-Indicators of Hunger and Malnutrition, Community Involvement and Local Governance

Rishita-Social and Economic Impact of the Public Distribution System (PDS) in India, Challenges & Gaps

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