indian five year plans 1 - 11 (agriculture sector only)

7/30/2019 Indian Five Year Plans 1 - 11 (Agriculture Sector Only)

1/179

Agriculture Division

The following are the functions of the Agriculture Division:

To formulate plans for the development of sub-sectors of Agriculture. This involves the following tasks :-o Setting up of Working Groups on various sub- sectors/subjects for the formulation of Five Year

Plan, Annual Plan, finalisation of their composition and terms of reference, processing their reportsand preparation of evaluation notes, preparation of background notes identifying the thrust areasthat may need specific attention and taking follow up action on the discussion of the Group.

o Identification of policy directions, major strategies and thrust areas for inclusion in the Approachdocuments of the Planning Commission.

o Preparation of background notes and organising meetings with the concerned CentralDepartments/Ministries for the finalisation of approaches, policies, strategies, targets, investmentpriorities etc. in the context of the formulation of Five Year Plans.

o Drafting of sub-sectoral sections for inclusion in the Draft Plan Document. Briefs prepared in respect of sub sectors state-wise for the use of Deputy Chairman's discussions with Chief

Ministers to finalise Annual Plan outlays. These briefs are made use of by State Plan Advisers in theirbriefing meetings with Deputy Chairman and Members of the Planning Commission.

Organising Working Group meetings to finalise Annual and Five Year Plans, draft Five Year Plan proposals

and proposals of the State Government. This involves preparation of background papers, discussions oninter-se plan priorities, critical examination of plan proposals in relation to plan objectives and approaches,preparation of Working Group reports giving, interalia, outlays and physical targets.

Finalisation of Annual Plans of the concerned Central Ministries/Departments and the State Governments.This includes assessment of progress, both in physical and financial terms, in relation to the approvedtargets and outlays, schemewise examination of the proposals and recommendations regarding targets andoutlays for the next Annual Plan.

To criticaly examine the offered comments on the Expenditure Finance Committee Memos relating toCentral Plan schemes. Cabinet Notes, VIP references concerning Agriculture Sector, etc.

To conduct studies on important matters concerning Agriculture and Allied Sectors. To maintain close liaison with the concerned Central Ministries and State Governments and to also

coordinate with organisations/ institutions with a view to ensuring follow-up of various Plan policies,strategies and programmes.

Work relating to Parliament Questions, Parliament Committees, etc.

2. The subjects dealt with in this Division are:

I Agricultural Research and Education :-

General policies and schemes relating to Agricultural Research and Education, ii) Indian Council ofAgricultural Research and various

Central Research Institutes, Development of Agricultural Universities.

II. Agricultural Extension and Administration

Agricultural Administration at different levels. Transfer of Technology to the field Strengthening of Extension Machinery Coordination and linkage between extension, research and input agencies and local organisation. Agricultural Inputs Soil and Water Conservation including Land Reclamation Rainfed Farming - major crops

o Foodgrain crops like wheat, rice, cereals and pulses,o Commercial crops like oilseeds, sugarcane, cotton, jute & mesta.o Plantation crops like coffee, tea, rubber, spices and tobacco.


2/179

Development of Horticulture crops Agricultural Statistics Agricultural Export Small Farmer Agri-Business Consortium Animal Husbandry

o Cattle and Buffalo breeding and their developmento Cross-breeding of Cattleo Feed and Fodder developmento Development of sheep, wool, goat, pigs, equines and mule, etc. including organisation of their

cooperativeso Cattle and Buffalo breeding farmso Control of livestock diseaseso Biological products and their productiono Establishment or quarantine-cum-certification service stationso Production of livestock products, i.e., milk, eggs and woolo Animal Welfare Boardo Compilation of Statistics and Research in respect of Animal Husbandry and Dairyingo Organisation of slaughter house corporation

Dairying and Milk Supplyo Dairy Developmento Implementation of Operation Flood III Project

o Organisation of marketing of milk and dairy cooperativeso Establishment of cattle feed plants

Fisherieso Policies and objectives during the Plano Targets of fish production and programmeso Strategy for fish productiono Marine Fisherieso Inland Fisherieso Training and Extension

Agricultural Marketing, Storage and Warehousingo Regulation, Management and Development of Marketso Quality Controlo Marketing, Research, Surveys and Studieso Agricultural Marketing Extensiono Rural Godowns

Cooperation, Agricultural Credit and Crop insuranceo Cooperative Credito Cooperative marketingo Cooperative Processingo Cooperative Storageo Consumer Cooperativeso Cooperative education, training and researcho Cooperative for weaker sections e.g. labour cooperatives and transport cooperativeso Agricultural credit through various institutional sources:

Cooperatives Commercial banks Regional Rural banks Crop Insurance


3/179

1st Five Year Plan

Chapter 9:THE STATE OF THE AGRICULTURAL ECONOMY

The largest portion of the natural resources of India, consists of land and by far the larger roportion of itsinhabitants are engaged in the exploitation of land. In any scheme of lanned economic development ofthe country, therefore, agricultural reorganisation and sform hold a position of basic importance. Recentlyon account of the growing need for ood and raw materials this importance has been brought home to allsections of the ommunity. While the several parts of the nation's economy are mutually inter-dependentand ley must all receive their proper share of attention from the economic planner, the success f thewhole Plan will vitally depend on the results achieved in making the most advantageous se of the landand labour resources engaged in agriculture. In this sense the importance of .griculture is both basic andvital.

Land Utilisation And Crop Pattern

2. The total geographical area of the country is 8n million acres, but land use statistics are available foronly about 615 million acres which are as follows :

Million acres Percentage to total

1 Forests* 93 15

2. Net area sown 266 43

3. Current fallows 58 9

4. Cultivable waste 98 16

5. Not availablf for culivation 96 16

total 615 ! 100

* The area under forests, for the Indian Union as a whole, including the non-reporting portion is estimatedat 147 million acres.! Includes 3.5 million acres for which details are not available.

The bulk of the 196 million acres, for which land utilisation statistics are not available, consists ofmountains, deserts and inaccessible forests. The cultivated area (items 2+3) comes to 324 million acres.About 35-5 million acres grow more than one crop.

3. Including the conventional estimates which have been framed for non-reporting areas in respect offoodgrains, the gross cropped area is about 317 million acres. Its break up by crops is given in theappendix to this chapter. The appendix shows that food crops cover about 78 per cent. ofth& croppedarea, and commercial crops, which provide raw, material for industries, account for 17 per cent. Plantation

crops and spices cover no more than l i per cent. of the area, though they not only occupy a position ofgreat importance in the economy of the valleys in the north-east and the strip of territory along the south-west coast of India but also play a vital role in India's foreign trade.

Trends In Land Use Pattern

4. Due to changes in coverage and methods of reporting it is difficult to obtain comparable data for theIndian Union as a whole over a sufficiently long period to indicate trends. A study of the data for some of


4/179

the principal States where only slight changes in coverage have occurred, was, therefore, undertakenover a period of about 40 years (ending 1946-47) which brings out the following trends :

i. The net area sown* has not increased appreciably except in Uttar Pradesh The area growingmore than one crop has increased by about 20 per cent. and the total cropped area, therefore,shows some increase, which, however, lags far behind the rapidly increasing population.

ii. Irrigated area has increased by about 10% mainly through the extension of canals. It has beennoticed that the area irrigated from minor irrigation works has remained almost static over thislong period. It seems to indicate that the new constructions have at best kept pace with worksgoing out of use for want of repairs or otherwise, e.g., through extension of canal irrigation.

iii. The area under current fallows remained at the level of 1919-20 till the early forties and thereaftershowed some increase, particularly in the cotton growing tracts, possibly because of a suddendecrease m cotton area which was left partly fallow. Hyderabad is the only State which shows acontinuous increase in fallows. In the opinion of a special committee set up by the HyderabadGovernment the apparent increase in the area under fallows is somewhat of an exaggeration.

5. Another study of trends'in crop pattern was based on the data relating to the main growing areas ofdifferent crops. This indicates the following trends :

i. The area tinder food grains shows a small increase during the forties when the area under cottondeclined.

ii. During the periods of the two world wars the acreage under cotton decreased. This trend wasreversed in the post-war periods.

iii. Area under oil seeds, mostly groundnuts has steadily increased by about 4 million acres. iv. A considerable increase of about a million acres has occurred in jute area since partition because

of the intensive efforts made to fill the large gap created in the supply position after Partition.v. The area under sugarcane has increased by about a million acres. A steady increase, though

small in extent, is noticed in the area under cane in Madras and Bombay.

6. The above trends bring out two main facts of the agricultural situation, namely that (;) although gross

cropped area has increased as a result of double cropping, little new area has come under cultivationduring the last four decades and ( changes in price structure do affect the pattern of crops even though alarge part of the area is cultivated in tiny holdings. A part of the area of cultivable waste can be utilised forextension of cultivation and afforestation. Though much of it may be fragmented, there is a considerablearea in sizeable blocks. On the abolition of zamindari most of it has been nationalised. Inspite of theincreasing pressure of population, very little extension of cultivation to waste lands has taken place duringthe last 40 years. This seems to indicate that the available cultivable waste does not generally lend itselfto reclamation within the present resources of the cultivators. Small areas may be added here and there,but for any schemes of materially increasing the area under cultivation, reclamation and rehabilitationwork has to be undertaken on an organised scale. Only State efforts or State sponsored efforts can hopeto do this. For making the best use of all available land a rapid survey to locate cultivable areas andclassify them according to the measures necessary for their reclamation appears to be the first essentialstep.

7. In areas thus selected for agricultural development a major State effort at reclamation will benecessary. A primary necessity is of course to examine the schemes from all relevant technical andeconomic angles. Time, talent and money spent in this preliminary effort is an indispensable precautionand a profitable investment. Once the scheme is prepared, it may be put into effect through a publiccorporation or through a development board ; but when colonization or rehabilitation has commenced, themaximum possible scope should be given to co-operative action. While prospects of a significant increasein the area under cultivation are mostly connected with major schemes of development, no measurewhich is calculated to bring suitable land under profitable cultivation, even within the existing villagesettlements, should be neglected.


5/179

Yield Trends

8. Extension of cultivation can be an important factor in stepping up agricultural production over a periodof time. For meeting the immediate needs of the nation, however, reliance has to be placed mainly onincreasing production from the existing area by improving the yields. The official estimates framed on acomparable basis indicate that while the area under cereals during the three years ending 1949-50

compared to the period immediately preceding the war has not changed appreciably, there has been adecline in the yield per acre from 619 Ibs. to 565 Ibs. The yield estimates which are based on normal yieldand condition factor suffer from the defect of being subjective and the reported fall may be ascribable inpart to caution on the part of State Governments in reporting their suroluses and deficits from year to yearfor the, purposes: of the Basic Plan for food. Since 1944, a scientifically designed procedure forestimating production, based on the technique of random sampling and crop cutting experiments, hasbeen introduced for some crops by the Indian Council of Agricultural Research. The estimates ofproduction based on this technique are now available for 1949-50, 1950-51 and 1951-52, which indicatethat while the official estimate for

1949-50 based on the standard yield and condition factor was slightly optimistic compared with theestimate based on the technique of random sampling, the official estimates for 1950-51 and 1951-52were under-estimates by 6 to 7 per cent. as detailed below :

Official Estimates. Estimates based onrandom sample survey

Percentage variation

(ooo tons) (ooo tons)

1949-50 46,018 45.465 +1-2

1950-51 41.786 44,242 5-5

195I-52 41,264 44,407 7-I

These figures suggest that while during favourable seasons the official estimates may be somewhat over-estimates, in bad seasons there is a distinct tendency to under-estimate production.

9. A study undertaken by the Ministry of Food and Agriculture to determine yield trends over the last 40years indicates that in no State do all the crops show a consistent decline in yield. For commercial cropsthe data revealed clear evidence of generally increasing yields, and in respect of sugarcane an expansionof area as well. In respect of food crops also an expansion in area is perceptible in several cases as alsoan increase in the proportion of irrigated areas, but yield trends are not uniform ; yields show an increasefor certain crops in certain States, a decline in certain others and absence of any perceptible change inthe rest. Generally speaking, an expansion of area under a crop has been seen to be a factor associatedwith the lowering of yield rates, while an increase in the proportion of irrigated area has the oppositeeffect. In a few cases yield trends are difficult to explain on these grounds and these cases merit furtherexamination. The study concludes that there is little ground for the belief that there has been adeterioration in soil fertility or in the standard of husbandry in recent years.

10. The study referred to above was also based on the official estimates, though for the States selected

for the study the estimates of production were comparatively more reliable. The official estimates ofaverage and total yields for individual years, were useful as guides for administrative action, particularlyfor food crops. It would not, however, be justifiable to place too great a reliance on them for purposes ofcomparison of yields as between different years as a measure of land fertility. The estimates based onsample surveys are available only for a few years and they do not cover all crops. On the basis of thedata available to us, we would hesitate to arrive at any conclusion regarding yield trends. With a moreextensive coverage and with an accumulation of data for several years these surveys will producesignificant data on long term trends. In the interest of a planned agricultural policy, therefore, the adoptionof the technique of random sample surveys for the preparation of official estimates of production in allStates should get a high priority.


6/179

Availability And Requirements

11. CerealsWhile the population has increased by about 39 per cent. during the last four decades, theproduction of foodgrains has not kept pace with it. This indicates an appreciable decrease in per capitaavailability of foodgrains from internal sources. For more than three decades India has been getting amuch larger quantity of grains (mainly rice) from Burma than what it was exporting to other countries. The

separation of Burma in 1936 has reduced internal supplies by about i -3 million tons, and the Partition in1947 by a further 0-77 million tons. Since 1948 we have been importing large quantities of foodgrains, 2-8million tons in 1948, 3-7 million tons in 1949, 2-i million tons in 1950, and 4-7 million tons in 1951.

12. Defects in agricultural statistics introduce an element of uncertainty in estimating the overall deficitwhich has to be met. The existing gap between availability and requirements and that which may come toexist in 1956, if in the meantime, production does not increase may be seen from the following statement*:

1. Estimated population (millions) 1950 353-05

1956 377.0

2. Estimated adult equivalent population 1950 303. 62

at 86% (millions). 1956 324"743. Production of cereals in 1949-50 (million tons) 45.13**

4 Quantity available for consumption in 1950from internal supplies allowing for seed etc. at12 % (million tons)

39 . 49

5- Quantity available for consumption includingimports and off-take from carry over stocks(million tons)

42-40

6, Availability per adult, per day in 1950 (ounces) 13 -71

7 Requirements for consumption including seedsetc) in 1956 (million tons)

(i) On the basis of 13 "71 ozs. per adult per day 51-82(ii) On the basis of 14 or per adult per day 52.01

8 Deficit compared to production at the 1950level (million tons)

(1) On the basis of 13 71 oz. per adult per day .69

(ii) On the basis of 14 oz. per adult per day 7.'78

To do away with imports and maintain consumption at the level of 1950, i.e., 13'71 ounces per adult perday, the additional quantity offoodgrains needed in 1956 will be 6-7 million tons. The requirements ofcereals for a balanced diet have been laid down by the Nutrition Advisory Committee at 14 ozs. and toraise consumption to this level the additional quantity required is estimated at 7 8 million tons. Thesefigures indicate the magnitude of the problem that lies ahead.

13. PulsesThe position regarding availability of pulses is no better. The production of gram and otherpulses during 1950-51 is estimated at 8-4 million tons. After allowing about 20% for stock feeding andseed etc. the net quantity available for human consumption may be estimated at 6-7 million tons. Thismeans an availability of2-i ounces per adult per day as against 3 ounces recommended by the NutritionAdvisory Committee for a balanced diet. At the level of 1951 availability the additional requirements of theincreased population during 1955-56 will be 0-5 million tons and to obtain the nutritional standards theadditional requirements will be 4 million tons.


7/179

14. Subsidiary FoodsThe principal subsidiary foods in use. in India are potatoes, tapioca and sweetpotatoes. With their high yields per acre they have a special importance in a country deficit in foodgrains.Potatoes are consumed on a small scale as vegetables rather than as the staple diet because of theirhigh price over a large part of the year. Lower ing their cost depends very largely on providing facilities forstorage, dehydration and transport more cheaply than at present. Tapioca which is rich in starch forms animportant article of diet in parts of Madras, Mysore and Travancore-Cochin. Though, by itself, it has a lownutritive value, it makes a good supplement to both rice and wheat.

15. Protective FoodsThe present availability of fruits and vegetables is estimated at i '5 and 1-3 ouncesper adult per day respectively. The requirements of a balanced diet are, on the other hand, estimated at 3ounces of fruits and 10 ounces of vegetables. The availability of milk is estimated at 5-5 per adult per dayas against the nutritional requirements of 10 ounces. Similar figures for fish are 0-2 and 1-3 ounces. Littleinformation is available regarding the availability of meat and eggs ; it is, however, known to be very low.Generally speaking, there is throughout the country too great dependence on foodgrains and insufficientconsumption of protective foods.

16. SugarProduction of sugarcane during 1950-51 stood at 5-62 million {gur) tons and net availabilityfor human consumption at I-62 ounces per adult per day as against the requirements of 2 ounces for abalanced diet. To raise consumption to this level during 1955-56, the additional quantity required is 2-2

million tons.17. Oils and fatsProduction of the five major oil seeds for 1950-51 has been estimated at 5-1 milliontons and the net availability in terms of oils at about I -69 million tons (including imports of 23 thousandtons of copra and cocoanut oil and allowing for exports of 168 thousand tons). Of this 118 thousand tonswere utilised for the manufacture of soaps, paints and varnishes and as lubricants and the net quantityavailable for human consumption was thus i -57 million tons of oil. This marks an increase of about 35 percent. over the pre-war triennium. Even so the availability per adult per day stands at 0-5 ounces only. Theother important source of fat in the Indian diet is ghee and the per capita availability of ghee works out atno more than o i ounce per day. Including all the sources the per capita availability of oils and fats is farbelow what is considered necessary for nutrition.

18. CottonProduction of cotton during 1950-51 was officially estimated at 2-97 million bales of 392 Ibs.

net each and consumption at 4-07 million bales. The gap between production and consumption was metlargely by importing 0-83 million bales during the year. The requirements for 1956 have been estimated at5-4 million bales and the gap between production and requirements may thus increase to about 2-4million bales unless production is stepped up meanwhile. A part of the requirements of long staple cotton,which is not grown in India in sufficient quantities, has, however, to be imported for a long time to come.

19. JuteIn spite of the large expansion of the area under jute which has taken place during the last fewyears, the gap between availability and requirements is still wide. The official estimate of productionduring 1950-51 was 3-3 million bales of raw jute and 0-6 million bales of mestaan inferior type ofsubstitute. The requirements for 1955-56 are estimated at 7-2 million bales. This indicates a gap of about3'3 million bales between supply and requirements.

Tea, Coffee And Rubber

20. Plantations of tea, coffee and rubber cover less than 0-4 per cent. of the cropped area, concentratedmainly in the valleys of the north-east and along the coast on the south-west of India. They provideemployment to more than a million families and thus play a vital role in the economy of these regions. Inaddition, they earn for India about Rs. 80 crores of foreign exchange. Tea alone accounts for Rs. 78crores. A remarkable fact about tea plantations is that while the area under tea has remained unchangedfor over a decade under international agreements, production has increased by about 43 per cent. overthis period. This incidentally brings out that where sufficient capital is invested, yields can be increasedappreciably. Coffee and rubber, which used to be export commodities are now largely consumed within


8/179

the country. India actually imported about 12 million pounds of rubber during 1950-51. Rubber occupies akey position in industrial development and for defence. In view of the uncertainties of the internationalsituation dependence on imports may be inadvisable. The bulk of the area under rubber is comprised ofsmall holdings which are on the whole comparatively less efficiently managed than the tea and coffeeplantations. The production has declined since 1945 because of a fall in the yields of old plantations andincreased suspension of tapping due to unremunerative prices. Their rehabilitation demands immediateattention. The Development Committee for rubber plantations has formulated a fifteen-year plan for theirrehabilitation and development and from this large increases in yield are expected.

Condiments And Spices

21. In spite of phenomenal increases in prices little change in area under condiments and spices appearsto have occurred. The area under black pepper, an important dollar earner which yielded Rs. 20 croresfrom exports of 15 thousand tons during 1950-51 as against an annual pre-war average of Rs. 3 lakhs,still stands at 1,98,992 acres and has recorded only a nominal increase. Official estimates of the areasunder cardamom and lemon grass are not available ; trade estimates place the average areas in theneighbourhood of one lakh acres and twenty-seven thousand acres respectively. Cardamom yields Rs.1.46 crores of foreign exchange. Cashew nuts, which bring another Rs. 8 to 9 crores of foreign exchangethrough exports, are largely imported, processed and then exported, the value of the imports being of the

order of about Rs. 2-8 crores. The condiments and spices have acquired a position of great importance inthe economy of the plains on the south-west coast of India. It is likely that the industry may have shortly toface competition from Indonesia and Malaya. Moreover, the high level of prices may not be maintained. Adownward trend is already evident. This industry lacks the organisational advantages which are enjoyedby other plantation industries like tea, coffee, and rubber. Even the exports are generally not graded andthis has often led to avoidable losses. The Government of India have recently set up a committee toexamine the whole position in respect of these crops, and particularly the question of their production andmarketing being brought under a single organisation.

Approach To Agricultural Development

22. In this chapter we have attempted to state briefly the main features of the agricultural situation inIndia. The facts cited above may seem to suggest that the rural economy has been largely static. Some

notable developments have, however, occurred over the past few decades. Large areas which sufferedfrom repeated failures of rainfall have received irrigaton ; new crops have come to occupy a significantposition in the country's production and trade ; the agricultural and the industrial economies in the countrynow exert a powerful influence on one another ; problems of rural indebtedness and the villagemoneylender exercise the administration and the people much less than they did fifteen or twenty yearsago ; and finally, there is already in the countryside an awakening and a desire for raising standards ofliving. The even tenor of the agricultural economy was seriously disturbed as a result of the Partition ; butmuch adjustment has already taken place. In describing the state of the agricultural economy it wasnecessary to give special attention to the facts of agricultural production. An assessment of the state ofproduction is, however, no more than a starting point for the consideration, of the conditions whichdetermine agricultural development. This task is attempted in the chapters that follow.

23. The peasant's life constitutes an integrated whole and his problems interact lo such an extent that hedoes not see them in compartments. In the same way, in approaching agricultural development, thepeasant's life and problems have to be viewed together, no doubt selecting the points at which specialemphasis is needed, but aiming always at a comprehensive and many-sided effort to transform thepeasant's outlook and environment. The end in view is the development of the human and materialresources of the rural community. This is to be achieved in the main ^by enabling the rural people to solvetheir own problems and to organise themselves for co-operative action with a view to adapting newknowledge and new resources to their needs. Thus, while co-operation offers the basis of communityaction, it falls to the administrative machinery of the government and, in particular, to extension workers,to provide guidance and help to the villager.


9/179

24. A rigid social structure and unutilised resources have always characterised underdevelopedeconomies. To change the social pattern built round the ownership of land and to bring new resourcesand technology into every day operations become, therefore, central to the process of development. It isthe purpose of planning to bring about rapid changes in such a way that the economy moves forward in abalanced, integrated manner, keeping in view at all times the major objectives of communitydevelopment, increased production and equitable distribution. The succeeding chapters are concernedwith various aspects of this central theme. In the discussion on land policy we set out the lines on whichchanges in the social structure might be brought about speedily to the greatest advantage of the countrywhile, at the same time, strengthening the village community, eliminating differences in status andopportunity, and building the village into an organic unit in the structure of national planning.

25. The Five Year Plan envisages substantial increases in agricultural production for foodgrains as wellas for commercial crops. The targets proposed in the Plan are to be realised through developmentprogrammes relating to major and minor irrigation works, extension of cultivation, reclamation andintensive farming based upon the application of the results of research. Considerable stress is laid on theconservation of existing resources, in particular, of forests and the soil. Diversification and expansion ofthe rural economy is sought through emphasis on the development of dairying and horticulture andthrough the growth of village industries, wherever possible, with the aid of power and improved tools.Land resources are to be supplemented by the resources of-sea and river and, therefore, the Planprovides for a new and extensive programme for the development of fisheries. As the rural economy hasbeen largely starved of financial resources, a substantial programme for providing finance for agriculturehas, therefore, been proposed.

26. Measures envisaged in the Plan* in the fields of industry, communications, and social services haveconsiderable bearing on the growth of the rural economy, for they raise its economic potential, bring newresources into action and, above all, alter the milieu in which the peasant lives and works. Thus, althoughagricultural programmes lie at the very centre of the Five Year Plan, they have to be seen in theperspective of a larger plan that comprehends all aspects of national development.


10/179

2nd Five Year Plan

Chapter 13:PROGRAMME FOR AGRICULTURE

The first five year plan accorded pride of place to programmes for agriculture and communitydevelopment. This was a natural priority in a plan seeking to raise the standard of living of the mass of thepeople, specially in rural areas, but it was also justified in the special circumstances of shortage andinflation which existed when the plan was formulated. More than any other factor, the increase inagricultural production which has taken place since 1952-53 has helped to end inflation, stabilise theeconomy and prepare the way for a higher rate of development during the second five year plan. Theindex of agricultural production, with 1949-50 as base, stood at 96 in 1950-51. It stood at 114 in 1953-54and 1954-55, and is expected to be 115 in 1955-56. During the first plan, the national product increasedby 18 per cent, and income in the agricultural sector increased in the same proportion. Increase inagricultural production also stimulated growth in other sectors of the economy.

Review of the First Plan

2. The first five year plan envisaged the following increases in agricultural production:

Commodity Unit Production in baseyear*

Targets of additionalproduction

Percentage increase

Foodgrains Million tons 54.0 7.6 14

Major oilseeds 5.1 0.4 8

Sugarcane (gur) 5.6 0.7 13

Cotton Million bales 2.9 1.3 45

Jute 3.3 2.1 64

.Base year for foodgrains is 1949-50; for others 1950-51.

These targets of additional production, especially of foodgrains, were worked out in terms of thecontribution anticipated from different programmes such as irrigation, use of larger quantities of fertilisers,supply of improved seeds and programmes of land reclamation and development. In other words, it wasreckoned that if the developmental measures which the plan provided for were taken the productionpotential would increase to the extent indicated. In given years the actual levels of production for differentcommodities would necessarily vary with weather conditions and other factors such as the relative pricesfor different crops.

3. The course of agricultural production during the first plan is shown in the following statement:

Commodity Unit 1951-52 1952-53 1953-54 1954-55 1955-56 Estimated

Cereals Million tons 42.9 49.2 58.3 55.3 55.0

Pulses 8.3 9.1 10.4 10.5 10.0

Total foodgrains 51-2 58.3 68.7 65.8 65.0

"Major oilseeds 4.9 4.7 5.3 5.9 5.5

Sugarcane (gur) 6.1 5.0 4.4 5.5 5.8


11/179

Cotton Million bales 3.1 32 3.9 4.3 4.2

Jute 4.7 4.6 3.1 2.9* 4.0

Partially revised estimate.

It will be seen that during the period of the plan 1953-54 was the year of peak production for foodgrainsand 1954-55 for oilseeds and cotton. In the case both of sugarcane and jute 1951-52 was the year of thehighest production and although, after a period of decline, production improved towards the end of theplan, the targets which were set were not realised.

4. These trends emerge more clearly from the following statement which sets out the index numbers ofagricultural production during the period of the plan for various groups of crops:

(Base: 1949-50=100)

Weight 1951-52 1952-53 1953-54 1954-55 1955-56Estimated

L foodgrainsCereals 58.3 91 101 119 112 112

Pulses 8.6 90 99 112 113 108

Tbtal foodgrains 66.9 91 101 118 112 777

n. Non-foodgrains

Oilseeds 9.9 97 92 107 115 108

Cotton 2.8 119 121 153 166 162

Jute 1.4 151 149 101 102 136

Miscellaneous Sugarcane 8.7 123 102 90 112 118

Other crops including plantation

crops

10.0 105 107 105 111 125

Total non-foodgrains 33.1 111 104 106 777 122

All commodities 100.0 98 102 114 114 115

It is significant that the overall index of agricultural production has been maintained at a fairly high levelduring the past three years. This has been accompanied by some decline in foodgrains which account forabout 67 per cent. of the total value of agricultural production. Trends have to be studied over a longerperiod before firm conclusions can be established.

5. The fact that agriculture depends on several unpredictable factors and agricultural targets mustnecessarily be in the nature of a tentative approach is illustrated by the actual statistics of increase in theproduction of individual foodgrains:

(million tons.)

1949-50 1950-51 1951-52 1952-53 1953-54 1954-55 1955-56Estimated

Rice 23-2 20.3 21.0 22.5 27.8 24.2 25.5

Wheat 67 6.4 6.1 7.4 7.9 8.5 8.5


12/179

Millets (jowar andBajra)

8.5 8.0 8.3 10.4 12.4 12.6 12.0

Other cereals 8.0 7.0 7.5 8.9 10.2 10.0 9.0

Total cereals 46.0 41.7 42.9 49.2 58.3 55,3 55.0

Gram and pulses 8.0 8.3 8.3 9.1 10.4 10.5 10.0

Total foodgrains 54.0 50.0 51.2 58.3 68.7 65.8 65.0

Of the increase of 7.6 million tons anticipated over the first five year plan it was thought that roughly ricemight account for 4 million tons, wheat for 2 million tons, gram and pulses for a million tons and othercereals for 0.5 million tons. The largest increase has occurred in millets and other cereals and the targetfor wheat production has been realised. On the whole, the expectation in respect of rice has not beenfulfilled except in one specially favourable year. Nevertheless, the increase in food production madepossible a reduction in imports from the level of 4.73 million tons in 1950 and 3.86 million tons in 1951 toless than a million tons during each of the past two years. This was a distinct advantage to the generaleconomy of the country.

6. With the data available it would not be correct to attempt to relate too closely the progress ofproduction in individual agricultural commodities to the actual progress made from year to year inimplementing the programmes of the first five year plan. In the nature of things many factors operate atthe same time. It is proposed that the data vearing on agricultural production, during the first five yearplan, including the results of crop cutting surveys, should be investigated through a number of intensiveand specially designed studies. Among the aspects on which more objective knowledge would be ofconsiderable value in the making of policy and in assessing results, the following may be speciallymentioned:

1. production trends in different regions,2. effects of agricultural production and extension programmes,3. range of influence of favourable and unfavourable conditions, 4. review of yardsticks of additional production at present in use,

5. yield trends for the principal crops, and6. cost of various agricultural production and extension measures in relation to the benefits realised.

7. From the limited information available it appears that among programmes of development which havecontributed to increase in agricultural production during the first plan, -minor irrigation works, increaseduse of fertilisers, land reclamation and development and the extension of area under cultivation havebeen specially significant Minor irrigation programmes were being undertaken for several years before theplan. During the period 1943-44 to 1950-51 programmes of the value of about Rs. 62 crores wereapproved in pursuance of the grow-more-food campaign and a major portion of these were devoted tominor irrigation. During the first plan about 10 million acres of land are expected to have been broughtunder irrigation from minor works and about 6.3 million acres from large and medium irrigation schemes.More than half the increase in the area benefiting from minor irrigation occurred during the first two yearsof the plan. Considerable progress has been made in several States, notably, in Bihar, Uttar Pradesh,

West Bengal, Punjab, Assam, Bombay, Madras and Mysore. The benefits of irrigation are realised to agreater extent when combined with the use of fertilisers. During the plan period the consumption ofammonium sulphate has more than doubled, from 275,000 tons before the plan began to 610,000 tonsfour years later. Special attention has been devoted to spreading the use of the 'Japanese method' of ricecultivation, the area brought within its scope so far being about 1.6 million acres.

8. During the first four years of the first five year plan more than one million acres of land were reclaimedthrough the Central Tractor Organisation and 1.4 million acres through State tractor organisations.Besides this, about 5 million acres have been developed by cultivators through programmes such as


13/179

assistance for mechanised cultivation, bunding and levelling and reclamation of land by manual labour.The extension of cultivation has been a larger contributory factor towards increase in production than hadbeen anticipated when the plan was drawn up. Thus, the total cropped area has increased from 326million acres before the plan to 352 million acres in 1954-55. The area under food crops has risen from257 million to 272 million acres and under commercial crops from 49 million to about 60 million acres. Thearea under commercial crops has increased from 15 per cent of the total cropped area to 17 per cent,while the area under food crops has diminished from 79 to 77 per cent of the cropped area. The areaunder other crops (20 million acres) has shown little change.

Approach In The Second Plan

9. During the first five year plan it was of crucial importance that agricultural programmes must succeed,for no other consideration had equal significance for the stability of the economy as a whole. In the"second five year plan agricultural programmes are intended to provide adequate food to support theincreased population and the raw materials needed for a growing industrial economy and also to makeavailable larger exportable surpluses of agricultural commodities. The second five year plan implies,therefore, even more than the first a close inter-dependence between agricultural and industrialdevelopment While formulating programmes to achieve these objects, it is necessary to take a long-termview so as to secure the best possible use of material and human resources, ensure balanced

development between different branches of agriculture and create conditions for an appreciable increasein rural incomes and standards of living. In framing agricultural programmes it is essential, from thenational point of view, to place before the villagers a goal which they should strive to attain. In connectionwith the preparation of the second five year plan it was stated that this goal should be the doubling, withina period of about ten years, of agricultural production, including food crops, oil-seeds, cotton, sugar cane,plantation and other crops, animal husbandry products, etc.

10. In relation to the food problem the factors to be considered are: (1) increase in the total population, (2)increase in- the urban population, (3) the need to improve per capita consumption, (4) the need to counterpossibilities of inflationary pressures resulting from the implementation of the second five year plan, and(5) effects on food consumption of increase in national income and changes in its distribution. The totalfood requirements in 1960-61 at the present rate of consumption will be 70.5 million tons. By the end ofthe second plan the rate of consumption is estimated to rise to 18.3 ounces per adult (cereals 15.5ounces and gram and pulses 2.8 ounces), so that the total food requirements will be 75 million tons. Theplan provides for increase in food production of 10 million tons over the next five years. In terms ofcalories the per adult consumption of food per day, which at present amounts to 2200, is expected toincrease by 1960-61 to 2450 as against the minimum of 3000 calories recommended by nutrition experts.

11. Compared to many other countries the rate of cereal consumption in India is relatively high. This isbecause such energy producing foods as milk and milk products, fruit and vegetables, eggs, fish andmeat are far from adequately represented in the common diet. Apart from the question of correct foodhabits, which is undoubtedly a matter of extreme importance, the output of each of these supplementaryfoods is at present grossly insufficient. During the second five year plan the aim will be to diversifyagricultural production and to shift somewhat the emphasis which has been hitherto placed in a dominantdegree on the production of cereal crops. The second plan also provides for programmes for increasingthe production of crops like arecanut, coconut, lac, black pepper, cashewnut etc. which did not receivesufficient attention during the first plan.

12. The scope for increasing the area under cultivation is extremely limited. Such increase as may takeplace in the area under cultivation is likely to increase the production mainly of the coarser grains. Asnational income increases, there may be a general tendency for demand to shift from the coarser to thesuperior grains, especially to rice, wheat and maize. In the circumstances, the main source of increase inagricultural production must be increase in yields from more intensive, more efficient and more profitableagricultural production. Although the available data are not always comparable, there is little doubt thatthe average yields of principal crops like wheat and rice in India are considerably smaller than thosecurrent in several other countries. The crop cutting experiments which have been conducted in recent


14/179

years in different parts of the country show large variations in the average yields of crops betweendifferent regions and even within each region. Crop competitions which have been carried on for sometime past also afford an indication of levels which can be attained in Indian conditions when thenecessary effort and assistance are forthcoming. It is now within the bounds of practical action to bringabout a rapid and fairly widespread increase in agricultural yields. This requires more detailed andsystematic planning in terms of regions. States, districts and project areas such as has not yet beenundertaken. Data derived from crop competitions should be widely publicised, so that each area can setits goals in the light of established facts. To the extent necessary, the scope of crop competitions shouldbe widened. What is require'd is not merely the encouragement of high levels of achievement on the partof individual farmers, but a more comprehensive effort which would raise the general average in eacharea. Every part of fhe country should have targets of average production for different crops based on abroad classification of physical conditions of irrigation, rainfall, terrain, etc. In pursuance of these targetsthere should be programmes for raising levels of productivity which go down to individual villages andindividual families.

13. Despite the uncertainties to which agriculture is necessarily subject, it is important that a more studiedeffort to introduce a planned approach to agricultural development should be made. The main elements inagricultural planning are:

1. planning of land use;2. determination of targets, both long-term and short-term;3. linking up of development programmes and Government assistance to production targets and the

land use plan, including allocation of fertilisers etc. according to plan; and4. an appropriate price policy.

Each district and, in particular, each national extension and community development project area shouldhave a carefully worked out agricultural plan. This should indicate for villages the targets to be aimed at,the broad distribution of land between different uses and the programme of development. Within theframework of an overall price policy such as has been outlined in an earlier chapter, such local plans willbe valuable steps leading to more careful planning for States and regions and for the country as a whole.The crop pattern envisaged by these local plans has in the main to be influenced through such incentives

as the provision of irrigation, credit and marketing facilities, provision of fertilisers, and intimate contactwith the cultivator on the part of extension workers and especially the village level workers.

14. With the objectives set forth above, the following pattern of outlay for development in the rural sectorproposed for the second five year plan:

Agriculture and Community Development

Head of Development First Plan Second Plan

Rs. crores per cent Rs. crores per cent

l. (a) Agricultural programmes:Agriculture

196 81.7 170 49.9

2. Animal Husbandry 22 92 56 16.4

3. Forests & Soil Conservation . 10 42 47 13.8

4. Fisheries 4 1.6 12 3.5

5. Cooperation including warehousingand marketing

7 2.9. 47 13.8

6. Miscellaneous 1 0.4 9 2.6

total 240 100.0 341 100.0


15/179

(b) National Extension and Communityprojects

90 77.6 200 88.1

(c) Other programmes:

1 11 9.5 12 5.3

2. Local Development Works 15 12.9 15 6.6

total 116 100 227 100

356 568

The principal targets of agricultural productionfor the second five year plan are set out in the followingstatement:

Commodity Unit Estimatedproduction in1955-56

Target ofadditionalproduction

Estimatedproduction in1960-61

Percentageincrease

Foodgrains million tons 65.0 10.0 75.0 15

Oilseeds million tons 5.5 1.5 7,0 27

Sugarcane (gur) million tons 5.8 1.3 7.1 22

Cotton million bales 4.2 1.3 5.5 31

Jute million bales 4.0 1.0 5.0 25

Coconut (oil) lakh tons 1.3 0.8 2.1 62

Arecanut lakh maunds 22.0 5.0 27.0 23

Lac lakh maunds 12.0 4.0 16.0 33

Tobacco lakh tons 2.5 2.5

Black Pepper thousand tons 26.0 6.0 32.0 23

Cashewnut thousand tons 60.0 20.0 80.0 33

Tea

million pounds

644.0

56.0

700.0

9

The index numbers represented by these targets are given below: (base 1949-50):

1950-51 1955-56 1960-61 Jute 109 136 194

Foodgrains 91 111 129 Other crops including

Oil seeds 99 108 137 plantation crops 105 125 136

Sugarcane (gur) 114 118 144 Total non-foodgrains 106 122 148

Cotton 106 162 213 All commodities 96 115 135

These targets are in the nature of first estimates derived from calculations of the production potential

expected to be added as a result of various developmental programmes. In view of the considerationsoutlined in paragraph 10 and especially the need to provide adequate safeguards against possibilities ofinflation, it is considered that it is both necessary and possible to achieve higher agricultural targets withrelatively small adjustments in regard to resources. In particular, through the national extension service itmust be the aim to reach every village and" every family and to organise supplies and services and short,medium and long-term finance required for achieving these targets. With a view to fixing higher targetsand ensuring their realisation, the Planning Commission and the Ministry of Food and Agriculture proposeto undertake further study of agricultural programmes in each State and region with reference to its croppattern, land and water resources and programmes of development in irrigation, national extension andother fields.


16/179

16. Foodgrains.T1ie target for foodgrains has already been referred to earlier. It is expected that of theincrease of 10 million tons in foodgrains, rice may account for 3 to 4 million tons, wheat for 2 to 3 milliontons, other cereals for 2 to 3 million tons and pulses for about 1.5 to 2 million tons.

17. Cotton.To fulfil the textile targets for the second five year plan, the production of raw cotton has tobe.raised from 4.2 million bales in 1955-56 to 5.5 million bales in 1960-61. Programmes for the cotton

development will continue the measures undertaken during the first five year plan such as provision ofhybrid seed, multiplication and distribution of improved seed, grant of loans to cultivators for the purchaseof seed and fertiliser and extension and propaganda among the cotton cultivators. Ah important feature ofdevelopment under the second plan will be the emphasis on increasing the production of long staplevarieties particularly in the areas brought under major irrigation projects. The achievements made so farin increasing the production of long staple varieties have been significant and the proportion of thesevarieties had gone up from 17.5 per cent in 1948-49 to about 37 per cent in 1954-55.

18. Jute. Before Partition, India had a virtual monopoly in the production and supply of raw jute, jutebeing always one of India's principle foreign exchange earners. After Partition only about 19 per cent ofthe total production of raw jute of undivided India came to the share of the Indian Union. While there hasbeen substantial improvement in the production of jute from 1.7 million bales in 1947-48 to about 4 millionbales in. 1955-56, much of the additional jute produced in the country during the last few years was

grown on marginal lands and was of poor quality, which consequently fetched low prices. The emphasisin the programme for jute production has to be changed from quantity to quality and new jute cultivationhas to be undertaken in areas suitable for growing high quality jute. The requirements of the industry forraw jute may be placed at 7.2 million bales if all the mills were to work to full capacity. In addition about150,000 bales may be treated as extra-factory consumption. It is therefore proposed to provide 5 millionbales from internal production and to import the balance. It should be possible to produce the additionalquantity of 1 million bales of jute largely through intensive cultivation measures with the ultimate objectiveof achieving an average yield of 3 bales per acre of good quality jute. The measures proposed in thesecond plan include the continuation on an expanded basis of the existing jute extension schemes,setting up of seed farms, supply of improved seeds, distribution of seed drills, construction of retting tanksetc. The organization of an extension service for demonstration of improved cultural practices is animportant item in the jute developmental programme.

19. Oil seeds.Oilseeds and vegetable oils besides constituting a source of fat supply in 'the diet of thepopulation are valuable export commodities. The production of the five major oilseedsgroundnut,sesamum, linseed, rape and mustard and castor seed is expected to go up from 5.1 million tons in 1950-51 to about 5.5 million tons in 1955-56 which was the target fixed under the first plan. Under the secondfive year plan, it is proposed to increase the production of the five major oilseeds to 7 million tons asshown below:

Clath tons'*

Groundnuts 47.00

Sesamum 6.51

Linseed 4.28

Rape & mustard 10.60Castor 1.61

total 70.0

Schemes for the production and distribution of good quality seeds sponsored by the Indian CentralOilseeds Committee during the first plan period have given promising results. It is proposed to popularisethese improved seeds on an intensive scale during the second plan. Other schemes included in the plansof states cover application of fertilisers and manures, control of pests and diseases and research forevolving better and new varieties. Arrangements will also be made for improved marketing of oilseeds.


17/179

20. In considering the effect of the target of additional oilseeds production on increasing the supply ofvegetable fats and vegetable oils, account has to be taken of the production of the other important edibleoil, namely, coconut oil, the quantities proposed to be exported, industrial consumption etc. The followingtable gives the position in respect of the five prin cipal oils as also cotton seed and coconut oils.

(Thousand tons of oil)

Estimated 1954-55 Estimated 1960-61

Total production 1760 2114

For edible uses 1139 1192

For vanaspati manufacture 259 430

For industrial purposes 224 278

Exports 138 214

This assumes an export target of 5 lakh tons of groundnut and 2 lakh tons of other oils (in terms of seed).Emphasis will also be placed on stepping up the production and export of cotton seed oil and oils fromsolvent extraction process.

'21. Sugarcane.The consumption of sugar and gur has increased steadily during recent years; In 1950-51 under conditions of control about 10.7 lakh tons of sugar were consumed. The amount consumed in1954-55 was about 17 lakh tons. Under the second plan, it is proposed to raise the production of crystalsugar to 22.5 lakh tons and the installed capacity to 25 lakh tons at the end of 1960-61. In order to makeavailable to sugar factories increased quantities. of cane and also to provide for higher gur consumption,additional production of 13 lakh tons ofsugarcane in terms of gur, is aimed at This will raise the totalproduction from 5.8 million tons expected in 1955-56 to 7 :1 million tons in 1960-61, the amount availableper adult being 1 : 72 ozs. per day. Schemes for the intensive cultivation of sugarcane include provisionof irrigation facilities, establishment of seed nurseries, distribution of disease free and improved varietiesof seeds, distribution of manures and fertilisers, control of pests and diseases, organisation ofdemonstrations and crop competitions. The main emphasis will be on increasing the sucrose content ofthe cane and ensuring maximum supplies of cane during the crushing season.

22. Coconuts.India is the second largest coconut. growing country in the world, producing as she doesabout 3800 million nuts a year. Still the country is deficit to the tune of 40,000 tons in terms of coconut oil.This deficit is expected to go up to 80,000 tons in 1960-61 after allowing for the increased population andpossible rise in consumption standards. By undertaking both short-term as well as long-term measures, itis proposed to increase the production of coconuts to 210,000 tons in terms of oil by 1960-61 as against130,000 tons at present. The short-term programme includes the setting up of demonstration centres topropagate improved methods of coconut cultivation including protection of the crop against pests anddiseases. Under the long-term programme the area under coconut will be increased by bringing suitablewaste lands, development of nurseries for the distribution of superior varieties of plants etc. It is alsoplanned to increase the yield of coconuts from 30 to 45 nuts per tree.

23. Arecanuts.As in the case of coconut, the country is also deficit in the supply ofarecanuts, the

existing production being 81,000 tons, as compared to the requirements of 118,000 tons at present. Afterallowing for the increase in population and also a slightly higher rate of consumption at the end of 1960-61, the requirements may be placed at 129,000 tons. But as the arecanut tree takes eight to ten years tobear fruit, extension of area under the crop will yield results only during the third plan period. However, itis proposed to increase the production of arecanut by about 25 per cent through intensive methods ofcultivation and by prevention of pests and diseases, supply of quality seedlings, introduction of improvedcultural practices etc. Efforts will be directed towards increasing the yield per acre from an average of 658Ibs. to 820 Ibs. The target of production at the end of 1960-61 may be placed at 99,000 tons. The IndianCentral Arecanut Committee has already carried out a survey of waste lands suitable for growing


18/179

arecanuts and it is intended to investigate and exploit these possibilities fully in the course of the-secondplan.

24. Lac.Lac is the raw material for shellac and seed lac which are important items of export trade. Theproduction of lac during the last few years has varied between 37,000 to 48,000 tons, the expectedproduction in 1955-56 being of the order of 44,000 tons. In formulating the target of additional production,

the possibilities of export demand for the commodity as well as competition from lac and from artificialsubstitutes produced abroad has to be kept in view. The second five year plan aims at stepping upproduction to 59,000 tons. Emphasis will also be given to the improvement of quality. These objectivesare to be attained mainly through the establishment of regional brood farms in different areas, survey ofidle host plant and imparting technical knowledge on lac cultivation. It is proposed to organise a lacextension service in important lac growing areas. In addition, it is also proposed to establish air-conditioned and ordinary godowns for storage of stick lac at important marketing centres.

25. TobaccoNext to U.S.A. and China, India is the largest tobacco producing country in the world. In1954-55, 250,000 tons of tobacco were produced. The problem which faces tobacco cultivation is not somuch of expansion of production as improvement in quality. Due to unfavourable weather conditions, alarge proportion of the crop during recent years turned out to be of low grade varieties and it was founddifficult to sell it This resulted in the accumulation of stocks and consequent fall in prices. Improvement of

quality will be given the highest priority in the programme for the second five year plan, and increase inproduction as such is not envisaged.

26. Black Pepper.Black pepper is an important dollar earner and has also considerable localimportance in Travancore-Cochin, Malabar and South Kanara. In recent years, however, India has beenfacing increasing competition from other countries. The lines on which pepper development and researchshould be organized have been recommended by a special committee. The scheme was started in 1954-55 and is proposed to be intensified during the second five year plan. The objective under the plan is toraise the area under pepper cultivation by about 50,000 acres and to increase production from 26,000tons to 32,000 tons.

27. Cashew-nut.Cashew-nut is another important dollar earner. The annual production is about 60,000tons, the main producing areas being Madras and Travancore-Cochin. Although cashew-nuts are

collected on a commercial scale in a few other countries, notably East Africa, the processing of cashew ispractically the monopoly of India. In view of the growing competition for the processing of cashew-nutsthere is great need for developing the production of cashew-nuts in this country. The Spices EnquiryCommittee suggested that the cultivation of cashew-nuts should be undertaken on a plantation basis inthe east coast districts of Madras, coastal districts of Konkan and certain other areas on the west coast.Plantations should be encouraged around processing factories. There is also scope for extendingcashew-nut cultivation in Madhya Bharat, Mysore, Coorg, Andhra, Orissa/West Bengal and Andamans. Itis proposed to increase the production of cashew-nut from 60,000 tons to 80,000 tons by the end of 1960-61.

28. Tea, Coffee and Rubber.Production and other programmes for tea, coffee and rubber are atpresent being considered by the Plantations Enquiry Commission. Between 1950 and 1954 teaproduction has varied from 613 to 644 million pounds and exports from 427 to 470 million pounds. On the

whole, it appears that it should be possible to achieve a production target of 700 million pounds and anexport target of about 470 to 500 million pounds by the end of the plan. The Coffee Board is engaged inexamining a fifteen year development plan for increasing the production of coffee, from 25,000 tons to48,000 tons. Of the increase about 10,000 tons are proposed to be secured from intensive cultivation andrehabilitation of existing estates and 13,000 tons from reclamation and fresh plantings. A scheme drawnup by the Rubber Board for replanting 70,000 acres of area under rubber at the rate of 7,000 acres a yearover a period of 10 years and for bringing 10,000 acres of new land under rubber at 2,000 acres a year isunder the consideration of the Ministry of Commerce and Industry. For tea, coffee and rubber, firmdevelopment programmes have yet to be approved.


19/179

Development Programmes

29. It has been explained earlier that it is difficult to establish any precise correlation between the level ofagricultural production and the extent of implementation of development programmes which are initiatedunder a plan. Such trends can be seen in perspective only after a period. It is even more difficult toattempt to relate the production of one set of crops such as foodgrains to developmental programmes

which may be undertaken or to distinguish separately the influence which these programmes may haveon the production of various groups of crops. Nevertheless, as in the first five year plan, an attempt hasbeen made to examine the possible sources of increase in production potential, especially in the contextof food-grains. The" increase of 10 million tons mentioned earlier is broadly ascribed to the followingdevelopment programmes:

(million tons)

Major irrigation 2.4

Minor irrigation 1.8

Fertilisers and manures 2.5

Improved seeds 1.0

Land reclamation and land development 0.8

General improvements in agricultural practices 1.5

total 10.0

Although, over a series of years rough yardsticks for increase in food production arising from irrigation orthe use of fertilisers or other factors have been evolved, these are no more than a rough approach.Elaborate studies are needed before the effects of different programmes can be isolated and suchmeasures devised as will permit reasonably accurate calculations even under normal weather conditionsof anticipated increases in production. Programmes such as irrigation, fertilisers and improved agriculturalpractices have necessarily an interacting character and are interdependent. Moreover, as the farmertakes to improved agricultural practices and his knowledge of means available to him for influencing hisenvironment increases and local communities become better organised, for action the effects on

production from areas already under irrigation are likely to be substantial.

30. During the second five year plan 21 million acres of land are expected to receive irrigation, 12 millionacres from large and medium irrigation schemes and 9 million acres from minor irrigation works. Theprovision for minor irrigation is made in part in the agricultural programmes of States and in almost equalpart in the national extension and community development programmes. The former includes alsoprovision for about a million acres of land to be irrigated from State tubewell schemes. Over 3500production tubewells are expected to be constructed in the various States. So far tubewells have beenconcentrated in the states of Uttar Pradesh, Bihar, Punjab and Pepsu. During the second Plan, thetubewell programme will be extended to new areas which are already being investigated for availability ofunderground water under an exploratory tubewell project. For the successful implementation of the minorirrigation programme it is essential that there should be close coordination in the States between theagricultural department and district development staff incharge of national extension and community

projects. In each State and district the programme of minor irrigation works and the irrigation targets to beachieved should be drawn up jointly between these two agencies. Systematic surveys are needed with aview to locating suitable minor irrigation works. During the past decade in each area many works whichwere long thought to be necessary and feasible have been taken up and fresh investigations are nowrequired. A survey of water resources in Madhya Pradesh, Hyderabad and the eastern parts of BombayState which are liable to scarcity conditions has been recently initiated by the Ministry of Food andAgriculture. Another aspect which calls for renewed attention is that while new minor irrigation works arebeing constructed a proportion of old works are falling into disuse. It is suggested that State Governmentsshould review existing arrangements for the maintenance of minor irrigation works and, where necessary,


20/179

they should enact new legislation placing adequate responsibility on village communities so that, if thereis failure in maintaining works, repairs can' be undertaken and the cost recovered from the communitiesconcerned. Panchayat legislation in several States contains provisions for the levy of labour contributions.Such contributions should be utilised for the maintenance of local irrigation works.

31. The consumption of nitrogenous fertilisers is proposed to be raised during the second plan from

610,000 tons in 1955 to over 1.8 million tons. The consumption of phosphatic fertilisers is also proposedto be stepped up. The utilisation of sewage and town composts has been provided for in the plan. In allareas special attention should also be given to green manuring and the use of oil cakes and othermanures. The procurement and distribution of chemical fertilisers on a greatly expanded scale during thesecond five year plan raises the question of strengthening the existing administrative arrangements bothat the Centre and in the States. Since 1944 the Central Government have operated a trading schemeknown as the central fertiliser pool. The work of the pool consists in ascertaining the requirements ofStates and of consumers such as tea and coffee plantations, procurement of the quantities needed,fixation of prices and making the necessary arrangement for the distribution of fertilisers. Distributionwithin States- is undertaken by State Governments through Government sale depots, private distributingagencies and cooperative organisations, the detailed arrangements varying considerably in differentStates. As new chemical fertilisers are being brought-into use and manurial trials are being carried out inthe country, it is of the greatest importance that information regarding the use of fertilisers should bemade available on the widest possible scale and cultivators should receive adequate guidance andassistance. The number of depots where fertilisers can be purchased needs to be considerablyincreased. It is also necessary that adequate buffer stocks should be maintained so that uninterruptedsupplies are assured. Finally, cooperative societies should be increasingly used as the main agency fordistribution at the village level.

32. Plans of States provide for about 3,000 seed multiplication farms with a total area of about 93,000acres. In general every national extention service block will be served by a seed farm and a seed store.Seed produced at local farms will be issued to cultivators after passing through one or more stages offurther multiplication at farms belonging to registered seed growers. The seed multiplication anddistribution programme is to be developed so as to be able to meet the full requirements of nationalextension areas. Seed testing stations are also to be setup with a view to ensuring and enforcing qualitystandards for certain categories of seeds, especially for vegetable production. Programmes for setting upcooperative seed stores have also been drawn up by several States. The area under the Japanesemethod of paddy cultivation is to be increased during the plan period from 1.6 to 4 million acres.

33. During the second plan it is proposed to reclaim 1.5 million acres of land and to carry out landimprovement measures over an area of 2 million acres through the Central and State tractororganisations and other agencies and through manual labour of individual cultivators. According to theprovisional programme which has been drawn up, the Central Tractor Organisation will undertake duringthe next two years the reclamation of about 96,000 acres of fallow and jungle land and the ploughing upof about 149,000 acres of land which has been previously cultivated. A tractor training centre has alreadybeen established in Bhopal and it is proposed to establish one more centre in order to provideopportunities for training for tractor mechanics and drivers. The plan provides for the establishment of atractor testing station which will examine the suitability of all.types of tractors under Indian conditions andwill also test diesel engines and pumping sets.

34. In extension work in the States the contribution of dry farming techniques has not yet receivedsufficient attention. Despite the scale on which irrigation programmes are being undertaken, a largeproportion of lands will continue to be rainfed. The importance of the widespread adoption of the best dryfarming methods cannot therefore be too much stressed. In particular, both for the conservation of waterand of soil, in extension and community project areas contour bunding should be specially encouraged.While in certain parts of the country it is necessary to provide for mechanical equipment, as a generalrule, contour bunding can be undertaken by local labour with some assistance and guidance from trainedagricultural personnel. The States of Bombay, Saurashtra, Hyderabad, Madhya Pradesh, VindhyaPradesh, Bhopal and Uttar Pradesh have large scale programmes for contour bunding. Among


21/179

themselves they aim at carrying out contour bunding operations on more than 1.5 million acres during theplan period. In several States the value of consolidation of holdings in dry areas is not being fullyappreciated. In areas where minor irrigation works such as wells can be undertaken, the benefits ofconsolidation of holdings are undoubtedly larger, but they are quite considerable even under dry farmingconditions. The subject has been dealt with more fully in the Chapter on Land Reform and AgrarianReorganisation.

35. In the field of plant protection government agencies have done valuable work especially in locustcontrol. Greater attention should however be given to the education of the farmer in protecting his cropsfrom pesis and diseases. Similarly, agricultural departments in the States should devote more continuousstudy to the question of evolving suitable types of bullock-drawn agricultural implements. Under the planplant protection activities both of the Central and State Governments are to be intensified. Plantquarantine stations will be set up at the principal sea ports and air ports. Four centres for plant protectionequipment were established under the first five year plan. These are to be strengthened and ten newcentres are to be set up. A field centre for locust investigations will also be established.

Provision has been made by the Ministry of Food ' and Agriculture for a scheme for designing andintroducing improved types of agricultural implements. Such work has been undertaken in the past atseveral centres in the country and needs to be developed more rapidly during the second five year plan.

Provision has also been made by several states for making improved agricultural implements available tofarmers at reasonable rates.

In western countries agricultural journals, pamphlets and other literature have made a considerablecontribution to the development of improved agricultural practices. The Indian Council of AgriculturalResearch has taken steps in this direction and the plan of the Ministry of Food & Agriculture provides forfurther measures. This again is an activity to which agricultural and extension officials and other agenciesin the States should give a high priority.

Horticulture

36. While programmes for animal husbandry, dairying and milk supply and forests and soil conservationare explained at some length in later chapters, a word "may be said here regarding steps proposed for

developing the cultivation of fruit and vegetables during the second five yearplan. At present levels ofproduction the availability of fruit and vegetables is reckoned respectively at about 1.5 and 1 ounce perhead. Increase in the production of fruit and vegetables is essential both for increasing the supply ofprotective foods and for bringing about greater diversity in agricultural production. The plan provides Rs. 8crores for horticultural development. Long-term loans are to be given to farmers for establishing neworchards and short-term credit is to be provided for rejuvenating existing orchards. New nurseries are alsoto be set up. Provision has also been made for the training of mails and for strengthening the horticulturalstaff in the States. The plans of States envisage rejuvenation of about 500,000 acres of existing orchardsand about 200,000 acres of new orchards lands. Production of vegetables is to be encouraged, especiallyin the neighbourhood of towns by supplying seeds and seedlings of quality on credit and making technicalguidance available to the vegetable growers. State plans also provide for the multiplication of nucleuspotato seeds. Special attention is to be given to the organisation of marketing cooperatives for fruit andvegetable growers. For developing fruit and vegetable preservation, assisting the canning industry and

setting up cold storage plants, the Ministry of Food and Agriculture has provided a sum ofRs. 1.75 crores.It is proposed to increase the annual production of canned fruit and vegetable from 20,000 tons to 50,000tons. Measures for encouraging the export of preserved fruit and vegetable products are also envisagedin the plan, and it is expected that exports will increase from 1,000 tons to 11,000 tons by the end of plan.expected to be established. State Governments are to be assisted in strengthening their existing researchlaboratories and farms.

Agricultural Research And Education


22/179

37. In the more advanced national extension and community project areas farmers have readily acceptedthe results of research which have been communicated to them and have asked for more. This demandfor solutions to problems old and new is likely to develop more rapidly during the Second Five Year Planand agricultural departments and institutions have to prepare themselves to meet it. For many years pastthe Indian Council of Agricultural Research and institutions associated with it have been engaged ininvestigations of individual problems. There has been a lag in the application of the results of researchand research workers have not drawn their problems sufficiently from the daily experience and needs ofthe farmer. During the Second Five. Year Plan, it is proposed to give close attention to the complex ofproblems which links research with development and also to continue work on fundamental problems.These are tasks to be carried ouHn cooperation between the Central and State Governments and theIndian Council of Agricultural Research and Agricultural colleges and other institutions in the States.Some problems relating to the organisation of agricultural research and education have been recentlyreviewed by a joint team of Indian and American experts.

38. The plan provides about Rs. 14.15 crores for agricultural research, 4.65 crores through the CentralCommodity Committees and Rs. 9.50 crores in the programme of the Ministry of Food and Agriculture.State plans have a large number of research schemes which will be assisted on a matching basis by theIndian Council of Agricultural Research. The Council has sponsored a number of important investigationswhich will be continued during the second plan. These include breeding of rust resisting wheat, manurialexperiments on fields of cultivators with a view to preparing manurial schedules and trials on cultivators,fields with new kinds of fertiliser. Agronomic experiments which have been carried out at 18 centresaccording to a scheme sponsored under the Indo-US Technical Cooperation Programme will be extendedto 16 more centres. A scheme for investigating the methods of control by hormonal weedicides, whichwas begun during the first Five Year Plan, will be extended. Four research-cuw-testing centres for bullockdrawn agricultural implements are to be established. To test the quality of improved seeds In regard togermination and extent of contamination by weed seeds, 11 testing centres are.

39. The Indian Agricultural Research Institute, the Central Potato Research Institute, the Central RiceResearch Institute and the Sugarcane Breeding Institute have drawn up programmes of basic researchfor the second five year plan. During the first plan the Indian Agricultural Research Institute has carriedout investigations on soil fertility, fertiliser use and wheat rust control, resulting in the evolution of varietiesof wheat resistant to rust Its research organisation and programme have been recently reviewed by anexpert committee which has recommended strengthening of various departments. New lines ofinvestigations such as soil mapping, rapid soil tests, testing and certification of insecticides, storagepests, appraisal of losses due to plant disease, and use of atomic^ energy in solving agricultural researchproblems are proposed to be undertaken. A new horticultural division is to be set up. The > Institute'sprogramme also includes the establishment of regional stations for virus research, a seed testinglaboratory, and a bureau of plant introduction. The Institute has drawn up 68 research projects to becarried out during the Second Five Year Plan.

40. The Central Potato Research Institute, which undertook a coordinated scheme for applied researchand development of potatoes during the first five year plan, proposes to give special attention to theproduction and maintenance of disease-free nucleus seed stock of breeding material and improvedvarieties and to carry out investigations on tuber crops other than potatoes. The Central Rice ResearchInstitute, which has been engaged in fundamental research work on rice and has been a coordinatingcentre of information, proposes to establish sub-stations for breeding work on rice. Problems of

sugarcane research are being studied under the aegis of the Indian Central Sugarcane Committee. Theprogramme of research projects includes the study of varieties of sugarcane giving high tonnage and highsugar recovery, their response to fertilizers and manures with special reference to yield and quality ofjuice,-time of harvesting of plant cane for keeping ratoons, cultural and rotational practices best suited todifferent regions, control of weeds and fungal diseases, inheritance of disease resistance, influence ofclimatic conditions on insect pests like stem-borer and pyrilla, and research on improvement in themanufacture and storage of gur and improved types of cane crushers and Juice boiling furnaces. Anumber of research projects are also being taken up at the Indian Institute of Sugarcane Research, theIndian Institute of Sugar Technology and the Sugarcane Breeding Institute.


23/179

41. Each of the seven Central Commodity Committees set up by the Government of India has drawn up aprogramme of investigations in the crops with which it is concerned. Thus, the Indian Central CottonCommittee, which has at present 72 research schemes under investigation, proposes to set up fourregional research stations, to remodel the technological laboratory in Bombay and to intensify researchwork on long-staple cotton. The jute technological laboratory in Calcutta, which functions under the IndianCentral Jute Committee, is to be developed and strengthened. An institute of oil technology is to beestablished by the Indian Central Oilseeds Committee which has evolved a few improved varietiesofoilseeds and has proposed further work on the breeding of improved high yielding varieties. Researchwork on tobacco is to be stepped up by the Indian Central Tobacco Committee in view of the fact that withdecline in the production of high grade tobacco in recent years exports of tobacco have diminished.Special emphasis is to be laid on improving the quality of tobacco and systematic trials of new varietiesevolved at Rajamundry are to be carried out. The production of coconut being insufficient to meet therequirements of 'the country, the Indian Central Coconut Committee proposes to strengthen its twoexisting research stations and to organise three regional research stations, with the object of increasingthe yield per tree by improving cultural practices, evolving high yielding varieties and reducing losses dueto plant diseases and insect pests. Research on arecanut, which is also in short supply, has to beundertaken as a long-range task as this is a perennial crop and takes 8 to 10 years to bear fruit A centralresearch station and three regional research stations have already been set up and under the auspices ofthe Indian Central Arecanut Committee it is proposed to establish a central technological laboratory andthree more regional stations. The Lac Cess Committee will also intensify research work on the technology

and utilisation of lac. Finally, in view of the programme for fruit and vegetable development during thesecond plan besides establishing a horticultural division at the Indian Agricultural Research Institute, it isproposed to set up horticultural Research stations on a regional basis for the improvement of importantfruit crops such as mango, citrus, grape, guava, pineapple and apple.

42. in addition to technical research programmes described above economic aspects of agriculture arenow being studied at four-agro-economic research centres which were set up in 1954-55 at Delhi, San-tiniketan, Poona, and Madras. It is proposed to establish two more agro-economic centres during the planperiod. Under the auspices of the Research Programmes Committee of the Planning Commission farmmanagement studies are being conducted in Bombay, Punjab, West Bengal, Uttar Pradesh, MadhyaPradesh and Madras. Valuable data on the institutional aspects of agricultural development is becomingavailable from the work of the Programme Evaluation Organisation of the Planning Commission. With thehelp of these and other studies such as those undertaken by the Reserve Bank of India in the Rural

Credit Survey studies it is hoped to fill important gaps in information concerning Indian agriculture,especially those relating to farm cost, economics of farm size, input and output relationships inagriculture, economic aspects of mixed farming, measurement of under-employment, credit needs,indebtedness, capital formation, etc.

43. With the decision to introduce the national extension service over the entire country, proposals toexpand the available facilities for agricultural education were also considered. Bihar, Rajasthan andTravancore-Cochin were assisted in establishing new agricultural colleges, in Assam, Hyderabad,Madras, Madhya Pradesh and Punjab the existing agricultural colleges have been strengthened. Twonew colleges are being established in Madhya Pradesh. The number of agricultural colleges has nowrisen to 28 and these institutions will be able to meet the total requirements of agricultural graduatesduring the second five year plan which are estimated to amount to 6,500. For the training of village levelworkers, in addition to the existing 54 basic agricultural schools and 44 extension centres, it is proposed

to establish 25 new basic agricultural schools, 21 extension centres and 16 basic agricultural wingsattached to extension training centres.

Marketing Of Agricultural Pproducts

44. The primary consideration for the development of agricultural marketing is so to reor

indian five year plans 1 - 11 (agriculture sector only)

Documents