The new BPL Survey 2011
Anti-poor Estimates
Anti-poor Methodology
Anti-poor Process
Targeted Public Distribution System & BPL Survey
• 1992 BPL Survey was used to initiate the TPDS system, which
was a departure from the Universal Entitlement system that
existed till then.
• The PDS was actually in a much better shape at that point of
time. Middle Class people too went to the Ration Shops to get
PDS Ration that included grain, sugar, edible oil and kerosene.
The PDS kept a check on open market prices. The MSP
provided support to farmers.
• In this background, the TPDS was initiated ostensibly to
reduce the subsidies spent by the government, but more
importantly to get more people to buy from the open market.
That was to make more space for private business.
• TPDS initiated differential prices for APL, BPL, and
subsequently, Antyodaya categories. This made permanent
BPL Cards necessary.
2002 BPL Survey Fiasco
• While 1992 BPL Survey was set in motion to initiate the TPDS, the
2002 BPL Survey was to further restrict the coverage of the public
distribution system.
• Thus the %age of households to be selected as BPL was reduced
from about 36% in the 1997 survey to about 26% planned for 2002
Survey. This would have opened up the consumption of three
quarters of the population to open market forces.
• Unfortunately for the government, this reduction was opposed
tooth and nail by many organisations including members of the
Right to Food Campaign which also went to the Supreme Court on
the matter.
• Subsequently, Planning commission estimates rise from 26% in
1999-2000 (55th round of NSSO) to 28% in 2004-05 (61st round of
NSSO). This exposed the fallacy of the estimates used for 2002.
2011 BPL Survey
• The agreement between the government and the right to food
campaign on lifting the stay in the Supreme Court Case on the 2002
survey, led to the appointment of the N C Saxena Committee.
Saxena committee recommended a selection methodology and also
recommended that at least 50% of rural households be brought
under BPL coverage.
• The government appointed the Tendulkar Committee and it gave a
revised figure for rural poverty of 41.8%. If we compare this to the
Saxena committee recommendation – it means reducing BPL
coverage by about 1.3 crore households.
• Subsequently, the government conducted a Pilot Survey with help
of different NGOs for testing a draft methodology. Government says
that the 2011 survey design is based on the outcome of the pilot
survey. But Pilot survey report has not been shared yet with anyone
– not even the participating NGOs nor the state governments.
• Based on the 2011 BPL survey the government is planning further
restriction of social security and livelihood support programmes –
for instance Kerosene and Fertiliser Subsidy.
Process of 2011 BPL Survey
• First, some Households are to be excluded
based on their satisfying some criteria such as
ownership of assets, nature of employment
and income level.
• Then some households are to be included
automatically as BPL, based on their belonging
to five different deprived categories.
• The rest of the households are to be surveyed
on a seven point deprivation scale based on 7
different deprivation indicators.
Proposed Automatic Exclusion Criteria
The points in red are departures from NC Saxena Methodology
• Motorized Two/Three/Four Wheelers/Fishing boats (which
require registration)
• Mechanized Three/ Four wheeler agricultural equipment such as
tractors, harvesters etc.
• Kisan Credit Card with the credit limit of Rs.50,000 and above
• Households with any member as Government Employee:
gazetted/ non-gazetted/ central/ state government/ PSU
Government-aided autonomous bodies and local bodies.
• Households with non-agricultural enterprise registered with the
Government
• Any member in the family earning more than Rs. 10,000 per
month
• Paying income tax or professional tax
Proposed Automatic Exclusion Criteria
The points in red are departures from NC Saxena Methodology
• Households with three or more rooms with all rooms having
pucca walls and pucca roof
• Owning Refrigerator
• Owning landline phones
• Households owning 2.5 acres or more irrigated land with at least
one irrigation equipment such as diesel/ electric operated bore
well/ tube well;
• 5 acres or more land irrigated for two or more crop seasons;
• Households owning 7.5 acres or more land with at least one
irrigation equipment such as diesel/ electric operated bore well /
tube well : Tribals who got Bore well/ tube well loan from
Government
Saxena Committee had recommended exclusion based on having double/
triple the land holding of the district average and had mentioned that STs
should not be excluded based on Land Criteria
Proposed Automatic Inclusion Criteria
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Households without shelter;
Destitutes/living on alms;
Manual scavengers;
Primitive Tribal Groups;
Legally released bonded labourers;
N C Saxena Committee had recommended further
groups to be brought under Automatic Inclusion
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Single Women
Households headed by disabled persons
Mahadalits
Minor Headed Households
Other Demands that were made
• HIV affected people
• SC / ST Households
The inclusion criteria leaves out some of the Automatic
Antyodaya categories identified by the Supreme Court
Ranking of Remaining Households using
Deprivation Indicators
1. Households with only one room with kutcha walls and
kutcha roof;
2. Households with no adult member between age 16 to 59;
3. Female headed households with no adult male member
between age 16 to 59;
4. Households with any disabled member and no able bodied
adult member;
5. SC/ST households;
6. Households with no literate adult above 25 years;
7. Landless households deriving the major part of their income
from manual casual labour.
Interest Groups: Who are the groups that might
suffer as a result of the planned BPL Methodology
• Fishing Community: The Motorised Boat Criteria
• Farmers: The landless labourer criteria, Fertiliser Subsidy
to be restricted to BPL and given in cash
• Weavers and other Artisans: The landless labourer
criteria, The one kutcha room criteria
• Dalit Christians / Dalit Muslims: The SC category
excluding Christians/Muslims
• Single Women: No automatic inclusion, Restricted
Priority
• Person with Disability: No automatic inclusion, Restricted
Priority
• SC / ST: No automatic inclusion
The Survey Process
• Along with Caste Census
• The use of Tablet Computers
• The lack of community participation during the survey
process
• Enumerator not to verify any answers and just feed it in.
• Household to certify that data entered is correct even if
they can not read the tablet computer properly.
• Definition of Room (2 metre long X 1.5 metre wide X 2
metre high)
• Definition of House: A shanty with polythene walls and
polythene roof considered as kutcha house and not as
homelessness
Our Position
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The Universalisation versus Targeting Debate
Whether PDS should be linked to BPL
The poverty Estimation Debate.
Tendulkar poverty line means 1776 calories for urban
poverty line (ICMR norms 2100 Calories) and 1999
calories for rural poverty line (ICMR norm 2400
Calories).
• This implies households which go to bed hungry two to
three days a week would be counted as non-poor.
• The new NSSO Survey, 66th round, is expected to bring
down government poverty estimates further from 37%
to 32%.
Action Points
• Advocacy
– Larger Civil Society Meeting
– Memorandums to decision makers.
– Meetings with such decision makers
• Grassroots Action
– Mobilisation
– Trial Run