Introduction: The Fiscal Cost of Food Security
Food subsidy is one of India's
largest social-sector expenditures and an important instrument for protecting
household purchasing power, reducing hunger and maintaining food security.
However, its economic significance extends beyond the amount allocated in the
Union Budget. It raises a broader question: as poverty declines, should the
food subsidy bill also decline proportionately, and can the government reduce
this expenditure while simultaneously pursuing lower fiscal deficits? India's
experience over the last 12 years suggests that the relationship between
poverty reduction and food subsidy expenditure is not straightforward. Although
poverty estimates have improved, food subsidy remains a substantial fiscal
commitment because it covers a large population, provides subsidised foodgrains
under the National Food Security Act (NFSA), and absorbs the costs of
procurement, storage, transportation and distribution. The challenge is
therefore not simply to reduce subsidies, but to understand whether the burden
is reaching those who need it, whether its fiscal structure is sustainable, and
how much additional public expenditure could be directed towards education,
healthcare and human-capital development.
Food
Subsidy Over the Last 12 Years: A Substantial Fiscal Commitment
India's food subsidy expenditure has
undergone significant changes since 2014–15. The subsidy bill increased from
approximately ₹1.14 lakh crore in 2014–15 to around ₹2.87 lakh crore in
2019–20, before rising sharply during the pandemic and reaching approximately
₹5.41 lakh crore in 2020–21. The increase reflected emergency food-security
requirements, the expansion of free foodgrain distribution and the government's
efforts to protect vulnerable households during the economic disruption.
Expenditure subsequently remained elevated, reaching approximately ₹5.41 lakh
crore in 2021–22 and ₹2.72 lakh crore in 2022–23, before declining to around
₹2.12 lakh crore in 2023–24 and approximately ₹2.05 lakh crore in 2024–25. The
decline largely reflected the withdrawal of pandemic-era additional allocations
and adjustments in the subsidy accounting and foodgrain distribution
arrangements. Nevertheless, the expenditure remains considerably higher than
its pre-pandemic level. This history demonstrates that food subsidy is
influenced not only by poverty but also by foodgrain procurement prices, distribution
quantities, buffer-stock requirements, administrative costs and exceptional
economic circumstances.
The
2026–27 Budget: Food Subsidy and the Tax Revenue Constraint
The Union Budget 2026–27 allocates
approximately ₹2.27 lakh crore for food subsidy under PMGKAY, while the overall
allocation to the Department of Food and Public Distribution is ₹2.35 lakh
crore. The food subsidy allocation is almost unchanged from the 2025–26 revised
estimate of ₹2.28 lakh crore, indicating that the government is attempting to
contain this expenditure rather than substantially expand it. There is,
however, an important distinction in the tax revenue figures: ₹26.7 lakh crore
is the Centre's net tax revenue in the revised estimates for 2025–26, whereas
the budgeted net tax revenue for 2026–27 is ₹28.7 lakh crore. Consequently,
food subsidy represents approximately 8.5% of the former and 7.9% of the
latter. In other words, the 8.5% calculation is valid when using the ₹26.7 lakh
crore figure, but the correct comparison for the 2026–27 Budget is
approximately 7.9%. The food subsidy allocation is also estimated at around
0.6% of GDP. Meanwhile, the fiscal deficit target has been reduced from 4.4% of
GDP in 2025–26 to 4.3% in 2026–27. This creates a continuing fiscal trade-off:
the government must preserve a large food-security commitment while reducing
borrowing and maintaining resources for infrastructure, education, healthcare
and other development priorities.
India's
Poverty Position: What the Numbers Actually Tell Us
The case for reassessing food
subsidy expenditure becomes stronger when viewed against India's poverty
reduction. According to the World Bank's June 2025 poverty estimates, extreme
poverty declined from 16.2% of the population in 2011–12 to 2.3% in 2022–23,
using the earlier international poverty threshold of $2.15 per person per day
in 2017 purchasing-power-parity terms and revised consumption methodology.
Rural extreme poverty declined from 18.4% to 2.8%, while urban extreme poverty fell
from 10.7% to 1.1%. These estimates represent a substantial improvement in
measured living standards, although they should not be interpreted as evidence
that deprivation has disappeared. The World Bank also revised its international
poverty lines in 2025, adopting a new extreme-poverty threshold of $3.00 per
person per day in 2021 PPP terms. Comparisons across poverty estimates must
therefore account for the poverty line and methodology being used. India's
multidimensional poverty estimates have also shown substantial improvement,
reflecting progress in sanitation, housing, electricity, cooking fuel,
education and other indicators. Nevertheless, poverty is not a single
condition. A household may move above the extreme-poverty threshold but remain
vulnerable to food-price increases, unemployment, illness, irregular earnings
and inadequate nutrition. The distinction between extreme poverty and economic
vulnerability is central to deciding how quickly food subsidies can be
rationalised.
Why
Lower Poverty Has Not Automatically Reduced Food Subsidy
An important structural issue is
that India's food subsidy system is not directly linked to annually measured
poverty. Under the National Food Security Act, 2013, coverage is designed for
up to 75% of the rural population and 50% of the urban population. The
government currently provides free foodgrains to approximately 80.6 crore
identified beneficiaries, against a maximum coverage of approximately 81.35
crore based on the 2011 Census. This means that even if extreme poverty falls
substantially, the number of beneficiaries does not automatically decline. The
programme is based on legally defined population coverage and household
identification rather than an annually updated poverty assessment. Furthermore,
the free distribution of foodgrains, extended for five years from January 2024
and subsequently continued through 2029, has created a continuing fiscal
commitment. There are approximately 2.3 crore Antyodaya Anna Yojana households
and 18.3 crore priority households. The former receive 35 kg of foodgrains per
household per month, while the latter receive 5 kg per person per month. Thus,
the programme serves not only people classified as extremely poor but also a
much wider population whose incomes may be insufficient to guarantee food
security. The policy question is whether the present coverage continues to
reflect the distribution of economic vulnerability in India, particularly when
population growth, migration, urbanisation and changes in household consumption
have made the 2011 population base increasingly outdated.
Where
Is the Actual Burden of Food Subsidy Going?
The direction of the food subsidy
burden is determined by more than the number of poor households. The government
purchases wheat and rice from farmers at the Minimum Support Price, incurs
transportation and storage costs, maintains buffer stocks and distributes
foodgrains free of cost to beneficiaries. The difference between the economic
cost of these operations and the recovery from beneficiaries is borne by the
government. Since the beneficiary price is now zero, the procurement and
distribution expenditure largely translates into a fiscal subsidy. Procurement
prices, storage efficiency, transportation distances, wastage, stock management
and the concentration of procurement in a few states therefore influence the
final bill. According to the parliamentary analysis of the 2026–27 Budget, 92%
of wheat procurement comes from just three states, while 65% of paddy procurement
comes from five states. This concentration has implications for transportation
costs, regional agricultural incentives and the efficiency of the public
distribution system. The estimated cost of providing free foodgrains for five
years is approximately ₹12 lakh crore. Consequently, even if poverty continues
to decline, the subsidy may not fall proportionately unless the
procurement-distribution system becomes more efficient and beneficiary coverage
is periodically reviewed. The historical experience also shows why expenditure
figures must be interpreted carefully: food subsidy expenditure reached
approximately ₹5.41 lakh crore in 2020–21, partly because the government
cleared accumulated Food Corporation of India dues and financed additional pandemic
foodgrain distribution. This was an exceptional fiscal year rather than a
normal annual expenditure trend.
The
Fiscal Deficit Target and the Opportunity Cost of Subsidies
India's fiscal consolidation creates
an important opportunity-cost question. The fiscal deficit target of 4.3% of
GDP for 2026–27 is part of a broader strategy to reduce government borrowing
and gradually bring down the debt-to-GDP ratio. However, a lower fiscal deficit
does not necessarily mean that social expenditure must decline. It means that
expenditure must increasingly be prioritised according to its economic and
social returns. Food subsidy provides immediate protection against hunger and
helps households retain income for other consumption. Yet, spending on
education and healthcare can generate longer-term improvements in productivity,
employability, labour-force participation and household income. The distinction
is particularly important for a country where food accounts for a substantial
proportion of household consumption expenditure, especially among lower-income
rural and urban families. If food subsidies are reduced without corresponding
improvements in wages, employment and access to affordable nutrition,
households could face greater vulnerability. Conversely, if expenditure remains
locked into an inefficient procurement and distribution structure, the
government may have less fiscal flexibility to expand school infrastructure,
improve public hospitals, strengthen primary healthcare and invest in skill
development. Food subsidy must therefore be evaluated alongside the broader
composition of expenditure rather than treated as an isolated budgetary burden.
Can
Food Subsidy Savings Strengthen Education and Healthcare?
The opportunity cost becomes clearer
when we consider the scale of India's human-capital requirements. The 2026–27
Union Budget allocates approximately ₹1.39 lakh crore to the Ministry of
Education and around ₹1.05 lakh crore to the Ministry of Health and Family
Welfare. Together, these allocations are approximately ₹2.44 lakh crore, only
slightly higher than the ₹2.27 lakh crore food subsidy allocation. This
comparison illustrates the enormous scale of India's food-security commitment
relative to two essential development sectors. It does not mean that food
subsidy should simply be transferred to education and healthcare: the three
expenditures address different needs, and the food subsidy also protects the
nutritional foundation necessary for learning and health. Nevertheless, even a
10% efficiency saving on the food subsidy allocation would release
approximately ₹22,700 crore annually. Such resources could support additional
investment in primary healthcare centres, medical infrastructure, teacher
recruitment, school quality, nutrition programmes and vocational education. The
key is to generate savings through better targeting, reduced wastage, improved
storage and transportation, digitised beneficiary records and more efficient
procurement, rather than through arbitrary cuts in food entitlements.
The
Meaning of 2.5% and the Need for Better Fiscal Priorities
The percentage used to measure food
subsidy needs to be interpreted carefully. Against the Centre's 2026–27 net tax
revenue of ₹28.7 lakh crore, the ₹2.27 lakh crore food subsidy bill represents
approximately 7.9%, not 2.5%. Against the ₹26.7 lakh crore revised net tax
revenue for 2025–26, it represents approximately 8.5%. The distinction matters
because net tax revenue is the amount retained by the Centre after devolution
to states, whereas gross tax revenue includes the share devolved to states.
Similarly, food subsidy as a proportion of GDP is approximately 0.6%. These are
different denominators and should not be conflated. For comparison, the 2026–27
allocation for education is ₹1.39 lakh crore and for health and family welfare
is ₹1.065 lakh crore. Their combined allocation of approximately ₹2.46 lakh
crore is only marginally greater than the food subsidy bill. This comparison
highlights the importance of examining the relative allocation of public
resources, particularly when fiscal consolidation is becoming a continuing
budgetary objective.
Conclusion:
From Food Security to Human Capital Security
India's food subsidy policy must
evolve alongside its changing poverty profile. A reduction in extreme poverty
provides an opportunity to reassess beneficiary coverage, but it does not
justify assuming that all households currently receiving food assistance have
achieved sustainable economic security. The more appropriate approach is to
distinguish between households requiring permanent food support, those needing
temporary protection against economic shocks and those whose incomes have
improved sufficiently to reduce their dependence on subsidies. Periodic updating
of beneficiary databases, better identification of vulnerable migrant
households, nutritional diversification beyond rice and wheat, reduction of
procurement and storage inefficiencies and improved targeting could gradually
moderate the fiscal burden without compromising food security. The resulting
savings should strengthen education, healthcare, nutrition, skill development
and employment generation. India's poverty reduction should ultimately be
reflected not merely in fewer people requiring subsidised foodgrains, but in
more households earning enough to purchase nutritious food independently. The
objective of fiscal consolidation should therefore be to transform welfare
expenditure into productive human-capital investment over time, rather than simply
reduce the expenditure recorded under social protection. Food security is an
essential foundation of development, but sustainable poverty reduction requires
education, healthcare, productive employment and rising real household incomes.
The real measure of success would be an economy in which the government can
gradually spend less on compensating for inadequate purchasing power because
citizens have acquired the economic capacity to secure their own well-being.