Introduction

Food security is ensuring that all people, at all times, have physical and economic access to sufficient safe and nutritious food that meets their dietary needs and food preferences for an active and healthy life. Achieving this requires not only adequate production of food but also its equitable distribution.

To strengthen production, the Government launched the National Food Security Mission (NFSM) in 2007–08. Its objectives were toincrease the production of rice, wheat and pulses through area expansion and productivity enhancement,restoring soil fertility and productivity, creating employment opportunities andenhancing farm level economy. In 2014–15, NFSM was expanded to include coarse cereals, continuing its focus on productivity, soil health, and farmer income. In 2024–25, it was renamed the National Food Security & Nutrition Mission (NFSNM), with a dual emphasis on food production and nutrition. Under NFSNM, States and Union Territories provide farmers with support such as crop production and protection technologies, cropping system based demonstrations, production & distribution of certified seeds of newly released varieties/hybrids, integrated nutrient and pest management techniques, capacity building of farmers through trainings during cropping season etc.

While NFSM/NFSNM ensures higher foodgrain production for the Central Pool, the National Food Security Act (NFSA), 2013 guarantees their equitable distribution. NFSA legally entitles up to 75% of the rural population and 50% of the urban population to subsidized (presently free of cost) food grains through the Targeted Public Distribution System (TPDS), ensuring that vulnerable households receive adequate food and nutrition.

Together, NFSM/NFSNM and NFSA form the backbone of India’s food security framework, one driving production, the other ensuring distribution, thereby combining productivity gains with inclusive growth, sustainability, and nutritional security.

National Food Security Act and TPDS

The National Food Security Act (NFSA), 2013, aims to supplement the food requirements of up to 75% of the rural and up to 50% of the urban population, which at Census 2011 comes to 81.35 crore persons.

While Antyodaya Anna Yojana (AAY) households, which constitute poorest of

the poor are entitled to 35 kg of foodgrains, per household per month, Priority Households (PHH) are entitled to 5 kg of foodgrains per person per month at uniform subsidized prices specified in Schedule-I prices (presently free of cost) of the Act.

The Central Government had decided to provide food grains free of cost to AAY households and PHH beneficiaries, beginning from 1st January 2023 under the NFSA. The period for distribution of free foodgrains has been extended for five years from 1^stJanuary 2024, with an estimated financial outlay of Rs 11.80 lakh crore, fully funded by the Central Government.

As of October 2025, 78.90 crore beneficiaries are receiving free of cost foodgrains under the Act.

Under NFSA, the eligible households are entitled to receive foodgrains through the Targeted Public Distribution System (TPDS).

The Act provides food and nutritional security in human life cycle approach, by ensuring access to adequate quantity of quality food at affordable prices to people to live a life with dignity. The Act provides for coverage of up to 75% of the rural and up to 50% of the urban population, i.e. about two-thirds of the total population of the country, for receiving foodgrains i.e. rice/ wheat/ coarse grains at prices specified in Schedule-I of the Act. In addition to this, the Act provides that pregnant women and lactating mothers and children in the age group of 6 months to 14 years are entitled to meals as per prescribed nutritional norms under Integrated Child Development Services (ICDS) and PM-POSHAN schemes. Higher nutritional norms are prescribed for malnourished children up to 6 years of age. Pregnant women and lactating mothers are further entitled to receive cash maternity benefit of not less than Rs. 6,000 to partly compensate for the wage loss during the period of pregnancy and also to supplement nutrition. In order to improve the nutritional standards in targeted beneficiaries, the Government has revised the nutritional norms specified in Schedule-II of the Act, vide notification dated 25.01.2023.

Role of the Targeted Public Distribution System (TPDS)

To ensure that the benefits of the NFSA reach the intended population efficiently, the Targeted Public Distribution System (TPDS), serves as the primary delivery mechanism for subsidized foodgrains. It operates through the joint responsibility of the Central and State/UT governments:

• The Central Government is responsible for the procurement, allocation, and transportation of foodgrains to designated depots of the Food Corporation of India (FCI).
• The State and UT governments manage intra-state allocation and distribution, identify eligible beneficiaries, issue ration cards, and supervise the functioning of Fair Price Shops (FPSs) to ensure efficient delivery.

This framework ensures access to highly subsidized foodgrains for eligible households, particularly the poor and vulnerable, through the TPDS.

The Act recognizes two categories of households for entitlements:

• Antyodaya Anna Yojana (AAY) households:  These households constitute the poorest of the poor. AAY households are entitled to 35 kg of food grains per household per month.
• Priority Households (PHH): These households are entitled to 5 kg of food grains per person per month.

 

The Central Government had decided to provide food grains free of cost to AAY households and PHH beneficiaries, beginning from 1st January 2023 under the NFSA. The period for distribution of free foodgrains has been extended for five years from 1^stJanuary 2024, with an estimated financial outlay of Rs 11.80 lakh crore, fully funded by the Central Government.

 

 

Process of Identification of Beneficiaries under TDPS

Under the TPDS Control Order, 2015, the identification of NFSA beneficiaries is a continuous process led by State and Union Territory governments. This involves removing ineligible, fake, or duplicate ration cards to ensure that only rightful households receive benefits. By maintaining an updated beneficiary list and regulating the supply of foodgrains, the NFSA ensures that vulnerable and needy populations are effectively supported. This process also strengthens food security, helps stabilize market prices, and improves the targeting of eligible beneficiaries across the country.

Key Government initiatives Ensuring Food Security

Pradhan Mantri Garib Kalyan Anna Yojana (PMGKAY)

The PMGKAY was launched with the specific purpose of ameliorating the hardships faced by the poor and needy due to economic disruptions caused by the COVID-19 outbreak in the country. The scheme was operational in seven phases. Phase VII of the PMGKAY was in operation up to 31.12.2022.

The Central Government, in order to remove the financial burden of the poor beneficiaries and to ensure nationwide uniformity and effective implementation of the programme for support of the poor, had decided to provide food grains free of cost to Antyodaya Anna Yojana (AAY) households and Priority Households (PHH) beneficiaries, beginning from 1st January 2023 under the PMGKAY. The period for distribution of free of cost foodgrains has been extended for five years from 1st January, 2024, with an estimated financial outlay of Rs. 11.80 lakh crore totally to be borne by Central Government.

Rice Fortification Initiative

Ensuring food security and improving micronutrient intake for its people has always been a priority of the Government of India. The Department of Food & Public Distribution is committed to the cause and is putting efforts into improving the overall nutrition scenario.

• One of the key interventions initiated by the department includes the Rice Fortification Initiative

• Fortification of staples with essential micronutrients has been one of the globally recognized, safe, cost-effective, and evidence-based intervention that is a complementary strategy to reduce the burden of micronutrient deficiencies.
• Since rice is a staple to about 65% of India’s population, the Government of India launched a pilot program on Rice Fortification in 2019. On the occasion of India’s 75th Independence Day in 2021, Prime Minister Shri Narendra Modi announced the provision of fortified rice by 2024 to the poorest and most vulnerable sections of the population through the government’s food-based schemes in a phased manner.
• Fortified rice is made by blending extruded Fortified Rice Kernels (FRK) with rice in the ratio of 1% by weight. These FRK contain rice flour and three major micronutrients, namely Iron, Folic Acid, and Vitamin B12, they resemble milled rice in size, shape, and color and have the same aroma, taste, and texture as normal rice.
• The decision to implement rice fortification in India went through a complete project lifecycle involving piloting, standardizing, creating the required ecosystem, implementing, and then scaling up. 
• The scheme was scaled up in a phased manner. Phase I (2021-22) covered ICDS and PM POSHAN Scheme, and Phase II (2022-23) covered ICDS, PM POSHAN, and TPDS in 269 aspirational and high-burden districts on stunting. Phase III (2023-24) further included the rest of the districts under TPDS.
• By March 2024, 100% of the rice supplied under all the central government schemes like PMGKAY, ICDS, PM-POSHAN, etc. in all states/UTs has been fortified.
• Recently the Cabinet has approved to continue the universal supply of fortified rice under all central government schemes until December 2028, with 100% funding (Rs 17082 Cr) by the Government of India as part of PMGKAY.

 

Direct Beneficiary Transfer (DBT)

The National Food Security Act (NFSA) introduced several key reforms in the Targeted Public Distribution System (TPDS), one such reform has been the implementation of Direct Benefit Transfer (DBT) for food entitlements. The government notified the 'Cash Transfer of Food Subsidy Rule, 2015' in August 2015, aiming to reduce the physical movement of food grains, provide beneficiaries with greater autonomy in food selection, enhance dietary diversity, minimize leakages, improve targeting, and promote financial inclusion.

Implementation of Cash Transfer Food Subsidy Rules, August, 2015

• • Scheme is optional for States/UTs.
  • Operates in "Identified areas" with written State Government consent.
  • Traditional TPDS foodgrain distribution continues in non-covered areas.

Implementation of Direct Cash Transfer in Food

• September 2015: Chandigarh and Puducherry (UTs).
• March 2016: Part of DNH&DD.
• In these UTs, NFSA operates in cash transfer mode:
  • Cash equivalent of subsidy transferred directly to bank accounts of beneficiaries.
  • Enables eligible households to purchase foodgrains from the open market.

 

Integrated Child Development Schemes

• The scheme is run by the Ministry of Women and Child Development under Wheat-Based Nutrition Programme (WBNP) and Scheme for Adolescents Girls
• Supplementary Nutritious food to children aged 6 months to 59 months, pregnant & lactating women and adolescent girls aged 14-18 yrs   is provided through ICDS in form of hot cooked meals and /or Take- home rations
• Allocation from DFPD for FY 24-25: 26.46 LMT of Rice, Wheat & Coarse Grains

 

PM POSHAN (POshan SHAkti Nirman) Scheme

• The PM POSHAN (POshan SHAkti Nirman) Scheme is a crucial national initiative designed to enhance education and combat hunger by improving the nutritional status of children in Government and Government-aided schools, thereby encouraging regular attendance among disadvantaged students. Under this scheme, one nutritious hot cooked mid-day meal is provided to all primary students up to age of 14 years. By ensuring mid-day meals that meet nutritional standards, it supports better health, enhances school attendance, and improves learning outcomes among children, while also promoting social equity and community participation.
• Allocation from DFPD for FY 24-25: 22.96 LMT of Rice & Wheat.

One Nation One Ration Card (ONORC)

The ONORC scheme, successfully implemented across all 36 States/UTs, empowers approximately 81 crore beneficiaries to lift their entitled food grains from any FPS in the country using their existing ration card/Aadhaar card with biometric authentication on an e-PoS device. ONORC is particularly beneficial for migrant labourers and prevents the duplication of ration cards. Since inception, around 191 Crore portability transactions (inter-State and intra-State) have been recorded as on October 2025.

Bottom of Form

Public Distribution System (PDS) and Open Market Sales Scheme (Domestic)

The Public Distribution System (PDS) evolved as a system of management of scarcity through distribution of foodgrains at affordable prices. Over the years, PDS has become an important part of Government’s policy for management of food economy in the country. Efficiency, transparency, and accountability in the PDS have been significantly enhanced through technology-driven reforms, resulting in 100% digitization of ration cards/beneficiary databases, 99.9% Aadhaar seeding of ration cards, and the automation of nearly 99.6% (5.41 Lakh out of 5.43 Lakh) Fair Price Shops (FPSs) using ePoS devices for transparent, biometric/Aadhaar-authenticated distribution of subsidized foodgrains. Furthermore, surplus food grains (Wheat & Rice) are sold through the Open Market Sales Scheme (Domestic) [OMSS(D)] to increase market availability, control inflation, and ensure affordability for the general public.

This helps to:

• Increase availability of foodgrains in the market
• Control inflation by stabilizing prices
• Ensure food security
• Make foodgrains more affordable for the general population

 

In addition, Bharat Atta and Bharat Rice were launched to provide wheat flour and rice to general consumers at subsidized rates under the Open Market Sale Scheme Domestic (OMSS-D) policy.

Procurement, Storage and Allocation of Food grains under NFSA

The procurement of wheat and rice is carried out by State Government agencies and the Food Corporation of India (FCI) at the Minimum Support Price (MSP), ensuring that grains meet Fair Average Quality (FAQ) standards. These procured grains are stored in the Central Pool and distributed under the National Food Security Act (NFSA) and other welfare schemes (OWS).

Before each marketing season, the Procurement takes place through two systems:

1. Decentralized Procurement System (DCP) – State Governments directly purchase, store, and distribute paddy/rice and wheat under NFSA and other welfare schemes. Any stocks exceeding State allocations are handed over to FCI.
2. Centralized Procurement System (Non-DCP) – FCI or State agencies procure foodgrains and hand them over to FCI for storage and distribution within the State or transfer to other States.

Both systems ensure adequate availability of foodgrains for public distribution while supporting farmers’ incomes.

To ensure food security and effective distribution across the country, the Government maintains a Central Pool of foodgrains that serves as the backbone of the Public Distribution System (PDS). As on 1^stJuly 2025, the central pool had 377.83 Lakh metric tonne (LMT) of rice and 358.78 LMT of wheat against stocking norms of 135.40 LMT and 275.80 LMT respectively. These stocks first meet annual allocations under NFSA/PMGKAY, Other Welfare Schemes, and additional needs for calamities or festivals. Surplus foodgrains are disposed of through the Open Market Sale Scheme-Domestic (OMSS-D), while humanitarian aid to deserving countries is provided as full grant via the Ministry of External Affairs.

The procurement of major food grains—paddy and wheat—under the Minimum Support Price (MSP) mechanism is a fundamental pillar supporting food security in India, primarily by ensuring physical availability and enhancing the stability and economic access for farmers and consumers. Up to October 13th, 2025, paddy procurement in KMS 2024-25 reached 813.88 Lakh Metric Tonnes (LMT) valued at Rs. 1.9 lakh crore at MSP benefiting 1.15 crore farmers. In RMS 2024-25, 266.05 LMT of wheat was procured, valued at ₹60,526.80 crore, benefiting 22.49 lakh farmers. In RMS 2025-26 (up to 11.08.2025), 300.35 LMT of wheat was procured, valued at ₹72,834.15 crore, benefiting 25.13 lakh farmers.

To support the implementation of the National Food Security Act (NFSA) and ensure timely delivery of foodgrains, total annual allocation of food grains under NFSA stood at 18,498.94 thousand tons as of July 2025 for FY 2025-26 and for FY 2024-25 it was 55,493.044 thousand tons.

Key Measures for Transparency and Efficiency in the Public Distribution System (PDS)

The Government has undertaken multiple interventions to enhance Public Distribution System (PDS) reforms: -

• Digitization: Ration cards and the beneficiaries’ database have been fully (100%) digitized across all States and Union Territories (UTs).
• Transparency & Grievance Redressal: A transparency portal, online grievance redressal facility, and toll-free number have been implemented nationwide.
• Online Allocation & Supply Chain Management: Online allocation has been implemented in all States/UTs, except the UTs of Chandigarh, Puducherry, and urban areas of Dadra & Nagar Haveli, which have adopted DBT Direct Benefit cash transfer schemes. On the other hand, the Supply chain management has been computerized in 31 States/UTs.
• Aadhaar Seeding: Approximately 99.9% of ration cards are seeded with Aadhaar numbers at the national level.
• Automation of Fair Price Shops (FPS): Almost all FPSs are now equipped with ePoS devices, enabling biometric/Aadhaar-based authentication for electronic and transparent distribution of foodgrains under NFSA.
• One Nation, One Ration Card (ONORC): This initiative allows beneficiaries to access PDS benefits anywhere in the country, ensuring portability and convenience.
• Helpline number 1967/1800-State series number is operational in all the States/ UTs for contacting and redressal of the complaints in Public Distribution System and filing any type of complaints by the intended beneficiaries. As and when complaints, including corruption and embezzlement in the PDS, are received in this Department from any source, they are sent to State/ UT Governments concerned for inquiry and appropriate action.

Digital Reforms in Public Distribution System (PDS)

Mera Ration 2.0: To enhance transparency and convenience for beneficiaries under the Pradhan Mantri Garib Kalyan Anna Yojana (PMGKAY), the Department of Food and Public Distribution (DFPD) launched the Mera Ration 2.0 mobile application on 20 August 2024. The upgraded app provides real-time information to beneficiaries on their entitlements, withdrawal details, and the location of the nearest Fair Price Shop (FPS), along with a suite of new value-added features for a seamless, user-friendly experience. More than 1 crore downloads have already been recorded.

The Anna Mitra mobile app: The app empowers Public Distribution System (PDS) field functionaries by providing secure access to critical operational data. It is designed to streamline field-level monitoring, stock management, and compliance reporting for Fair Price Shop (FPS) dealers, Food Inspectors, and District Food Supply Officers (DFSOs).

Key Design Features of Anna Mitra:

• Streamlines field-level operations, stock tracking, and compliance reporting.
• Provides transaction summaries of ration cards, beneficiary management, and other stakeholder information.
• Includes inspection modules, feedback, and rating features.
• Enables stock-level management from the district to FPS level.

Benefits:

• Reduces bottlenecks and eliminates manual paperwork.
• Enhances decision-making through real-time data access.
• Improves transparency, speed, and efficiency by bringing all key PDS stakeholders onto a single secure digital platform.

Currently, the Anna Mitra app is operational in15 states— Assam, Meghalaya, Manipur, Mizoram, Sikkim, Andaman & Nicobar Islands, Lakshadweep, Nagaland, Goa, Jammu & Kashmir, Daman & Diu, Ladakh, Maharashtra, Punjab and Tripura —and is available in English and Hindi. Its rollout to other States and Union Territories is being implemented in a phased manner.

Conclusion

India’s food security architecture is anchored in a dual strategy of strengthening agricultural production and ensuring equitable distribution. At the same time, the National Food Security Act (NFSA), 2013, complemented by flagship programs like Pradhan Mantri Garib Kalyan Anna Yojana (PMGKAY), the Decentralized Procurement Scheme (DCP), and the Open Market Sale Scheme – Domestic (OMSS-D), guarantees affordable and inclusive distribution to nearly 81 crore people ensuring that they receive affordable food grains, price stability is maintained, and vulnerable households are protected from hunger and malnutrition.

References

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