The provision of supplying subsidised rice, wheat and coarse (millets) grains under National Food Security Act, 2013 enforces central and state governments along with many civil society organizations to work for increasing production of millets. Millets are climate resilient crops having high micronutrients content such as calcium and iron, high dietary fibre, higher amount of essential amino acids and low glycemic index. In Odisha, a project named as “Special Programme for promotion of Millets in Tribal Areas of Odisha” has been implemented by Directorate of Agriculture and Food Production, Government of Odisha with state programme secretariat formed by collaboration of Watershed Support Services and Activity Network (WASSAN) and Nabakrushna Choudhury Centre for Development Studies (NCDS) in the state level. The office of Deputy Director Agriculture (DDA) /Project Director, Agriculture Technology Management Agency (PD, ATMA) is the nodal agency for implementation of the programme at district level under the chairmanship of District Collector. Facilitating Agencies (FAs) implement the programme with the collaboration of community-based organizations (CBOs) in the block level. The objectives are to increase household consumption of millets by 25% to enhance household nutrition security, promote millet processing enterprises, improve the productivity of millet crops, and establish market linkages as well as the inclusion of millets in state nutrition programme.
The Government of Odisha implement Odisha Millet Mission (OMM) with the technical support of the programme secretariat comprises of WASSAN and NCDS. Odisha Millet Mission has started procuring ragi from its implemented 14 districts with the extra fund Rs.100 crore allocation announced by Chief Minister in the Kharif season. Initially, it was discussed to procure little millet as well as pearl millet mainly to include in State Nutrition Programme. After the increment of minimum support price (MSP) to Rs.2897/qlt, the decision was taken for ragi procurement. Even, all FAs were given an additional target of 267ha/block mainly aiming to procure ragi in bulk from implemented districts. Irrespective of irregular rainfall and natural calamities like Titli and Phethai, maximum farmers were covered to follow improved package of practices to enhance production. It was decided to procure ragi through Tribal Development Co-operative Corporation of Odisha Ltd. (TDCCOL) at the state level through large area multipurpose cooperative societies (LAMPS), primary agricultural cooperative societies (PACS) and National Agriculture Market (e-NAM). Ragi registration process was started with lots of discussion on regarding registration process and required documents for leased land, landless and FRA land etc. Ragi registration form collection process was facilitated by FAs and CBOs with close monitoring from District Collector via TDCC at each block.
The paper analyses the issues and challenged faced by the farmers, FAs, CBOs, TDCC, LAMPS as well as other line departments and some of the suggestions from the ground level which may be considered for the further smooth functioning of millets procurement in all levels. For an example, it has analysed the situation of ragi procurement at Semiliguda Block where Development of Humane Action (DHAN) Foundation implement as one of the FAs in the District. various issues and challenges are critically analysed as per the ground level information in particular to the context and line departments at the Semiliguda.
Ragi procurement form registration process
Unlike paddy, ragi registration process started with the support of FAs, CBOs, TDCC, DDA, and other line departments under the supervision from District Collector with regular review and plan process. At that time, it was not decided that farmers can sell the only 1.2qtl/acre during ragi registration. Hence, to increase a large number of farmers in ragi registration, farmers were also registered who have below 0.50 acre Dongar land/paddy land-3 (suitable for ragi cultivation). But, farmers also do cultivate in paddy land-2 for ragi cultivation but it was not accepted by the ragi registration. Hence, a large number of farmers those cultivate ragi but don’t have eligible land were excluded from the registration process. Even, some were considered for registration but they had less land size for more surplus generation. It was not considered for calculating surplus which farmers can sell at the initial period. As a result, some of the farmers having more ragi production are not eligible to sell it or eligible for selling less quantity of ragi. Moreover, farmers having FRA land as well as Sestu plot were also registered. Still, they are being declined from generating surplus due to unavailability of plot or unavailability of land in Bhulekh or with some other reasons. The status of ragi procurement registration report as on 18.12.2018 is given below.
Table 1: Status of ragi registration report
| SL. No. | District | Registered (in no) | Land verification pending at RI level | Account verification pending at District Manager | Account verified at DM level | Verified data | Surplus (in qtls) |
| 1 | GAJAPATI | 2992 | 1322 | 167 | 2598 | 2598 | 2198.878 |
| 2 | KANDHAMAL | 3596 | 105 | 281 | 3315 | 3315 | 2976.396 |
| 3 | KORAPUT | 7531 | 1264 | 261 | 6706 | 6706 | 10615.244 |
| 4 | MALKANGIRI | 2986 | 132 | 5 | 2753 | 2753 | 5410.517 |
| 5 | KALAHANDI | 2408 | 10 | 0 | 202 | 2302 | 2541.282 |
| 6 | NUAPADA | 2397 | 38 | 3 | 2292 | 2292 | 1853.268 |
| 7 | RAYAGADA | 2780 | 413 | 47 | 2548 | 2548 | 7506.144 |
| 8 | SUNDERGARH | 527 | 3 | 17 | 510 | 510 | 1206.408 |
| Total | 25217 | 3287 | 781 | 23024 | 23024 | 34308.137 |
Source: Programme Secretariat, OMM, 2018
The total surplus is generated based on the registered farmers and the land type suitable for ragi registration. It doesn’t indicate whether the farmers cultivated the land or not, but with the assumption that he has land that is eligible for ragi cultivation and he is willing to sell through the procurement system. Moreover, for example, if he cultivates ragi in paddy-2 land, he isn’t eligible to sell as there is no system for physical verification and entering data at LAMPS. The figure is silent about the numbers of farmers having eligibility (or surplus to sell based on the land type) to sell or non-eligibility to sell ragi.
In the first year of the ragi procurement, there is a lack of clarity at all level for the registration and procurement process till the end of ragi procurement form registration. Even, FAs and CBOs are not trained to collect forms from right farmers (having eligible land) and communicate farmers about the quantity he can sell. As a result, it will difficult to convince farmers at this stage that they are not eligible to sell as they have spent money and time on the registration process. Hence, it is required to verify farmers for facilitating registration especially for the land and quantity they can sell before registration. For an example, the details of ragi procurement registration report has been critically analysed for Semiliguda Block. The details have been given in table 2.
Table 2: Status of ragi registration at the block level
| SL. No. | Particulars | Quantity (in Number) | Total Surplus (in qtl.) | Average surplus |
| 1 | Farmers submitted ragi registration form | 1200 | NA | NA |
| 2 | List generated for farmers | 824 | NA | NA |
| 3 | Non-list generated farmers | 376 | NA | NA |
| 4 | *Farmers having zero surplus | 196 | 0 | 0 |
| 5 | Farmers eligible to sell 0.012 (Min.) to 10kg | 11 | 1.236 | 0.112 |
| 6 | Farmers eligible to sell 10 to 20 kg | 16 | 2.256 | 0.141 |
| 7 | Farmers eligible to sell 20 to 50 kg | 59 | 20.904 | 0.353 |
| 8 | Farmers eligible to sell 50 to 120 kg | 138 | 107.89 | 0.782 |
| 9 | Farmer eligible to sell 120 to 300kg | 210 | 423.876 | 2.018 |
| Farmers eligible to sell 300kg to 1572 kg (Max.) | 194 | 591.506 | 3.049 |
Source: LAMPS, Kunduli
- Farmers having less eligibility land (say 0.01acre) were also registered to sell ragi in the procurement system even they cultivate more non-eligibility land. As a result, they are only eligible to sell 0.12kg (for two farmers) even they have more surplus at their home. Hence, they are very reluctant to sell in the procurement system.
- Similarly, out of 1200 farmers those submitted forms, only 628 i.e. 52.33% of farmers are eligible for ragi selling at the procurement centre. Proper steps should be undertaken to verify the registration forms and register it as soon as possible in this season in order to increase procurement.
- Out of 1200, 376 i.e. 33 % of farmers are in dark about their registration. They are not informed about the reason for non-registration. Immediate action is required for informing them about their registration process. Otherwise, they will create problems in the field. There could be two major issues i.e. (a) Farmers may have two different names in Aadhar card as well as Bank Accounts and (b) The land records might not be in the name of the farmers rather it might be for their relations where physical verification is required as there are many traditional forest dwellers as well as tenant farmers.
- Out of 824 registered farmers, 196 i.e. 23.78% farmers are not eligible to sell ragi due to zero surplus. Hence, the various reasons need to be explored for zero surpluses at different levels. This information could be shared with the concerned farmers to avoid conflict at all level. The Branch Manager, TDCC has to take necessary action for identifying and generating the lists for procurement.
- As OMM is limiting for the land cultivation from minimum 0.5 acre to 2.5 acre for giving incentives, further discussion is required for procuring ragi from farmers having surplus more than 3 qtl i.e. 194 out of 628 farmers which are 30.9% of total registered farmers.
Surplus generation
With reference to ragi land (Dangar-1, 2 & 3; Paddy-3), the average production is fixed for 4 quintals/acre irrespective of land type. However, the production level varies with agro-climatic conditions as well as land type. According to the Millet Procurement Automation system (M-PAS), if a farmer cultivates one-acre land ragi (in suitable land accepted by the system), he is able to get four quintals per acre. Farmer will keep 70% for own consumption and sell 30% (1.2 qtl/acre). Hence, it has not been fixed criteria for minimum/maximum quantity for selling but fixed as per the surplus quantity. But, it will impact negatively among the farmers as they will not able to sell even they want to sell more but they will sell as per the surplus generated. Moreover, it will also invite large farmers to sell more as they might have more land. They may procure from others and sell in their accounts. Similarly, there will be distress selling of ragi those don’t have enough surplus.
Fair Average Quality (FAQ) in ragi procurement
Farmers are selling through the government procurement system for ragi for the first time. Hence, it is necessary to understand FAQ properly and bring the ragi to the procurement centre. As there is more labour required for grading ragi than paddy, farmers need to be educated through training, awareness as well as demonstrations at village level on FAQ by FAs/CBOs/TDCC/AOs/LAMPS/PACS etc. Moreover, proper technological interventions are required for facilitating farmers for bringing FAQ ragi for selling at centre.
Fig. 1: Raw ragi
State programme secretariat has to arrange sieve for grading the ragi in order to remove raw materials (Fig.1), like stones, foreign matters, impurities, harmful materials and bring up to the FAQ level. The details of the schedule of the specification is given below in table 3.
Table 3: Schedule of Specification
| SL. No. | Refractions | Maximum Limits (%) |
| 1 | Foreign matter | 1 |
| 2 | Other foodgrains | 1 |
| 3 | Damaged grains | 1 |
| 4 | Slightly damaged grains. | 2 |
| 5 | Moisture content | 12 |
Source: GOI, Ministry Agriculture and cooperation, 2009-2010
Registered farmers have to get advance registration token for selling ragi at the procurement centre. For paddy procurement, farmers are well acquainted with the system of the advanced token and hence they get without any external information/efforts. But, it is necessary to simply for the process for issuing advance ragi procurement token at the village level. Otherwise, it will take a long time and middleman might procure from the doorstep of the farmers and procure without FAQ level ragi. Even, some farmers have started cleaning through paddy dehuller and it gives good results but the cost-benefit analysis should be done at the village level. Moreover, there are more chances of broken grain due to improper handling of dehuller. Hence, it is difficult to maintain ragi FAQ level.
Farmers level issues
Some of the farmers’ level issues should be considered for improving ragi procurement system. As many private companies, as well as entrepreneurs, are involved in developing value-added food products from millets due to its high nutrition values, procurement system needs to be simplified as well as strengthened through solving issues in farmers’ level. At the same time, Andhra Pradesh has started in supplying finger millets and jowar at the rate Rs.1 per kilogram along with rice to ration card holders through the public distribution system (PDS) from September 2018. Hence, there may be less requirement for Andhra Pradesh (major production usually go to Andhra Pradesh from Koraput) and middleman might not be interested to compete with Government system of procurement. Hence, there is both opportunities as well as challenges in procuring large quantity of ragi from farmers.
[caption id="attachment_164" align="alignnone" width="639"]
Fig. 2: Manual de-husking and cleaning[/caption]
Fig. 2: Manual de-husking and cleaning[/caption]
Moreover, Middleman procure grain without FAQ as well as at the doorstep whereas it is absolutely necessary for Government procurement system. Hence, farmers might not be interested to do laborious work to make their production manually (Fig. 2) to FAQ and sell it. Moreover, they keep their ragi to sell for reducing risk and vulnerability during difficult days and invest in their household expenditure. They also sell production during festival times like Pusa Paraba, Chaita Paraba, Nuakhai, Diwali etc. Gradual awareness and technology support could enhance farmers’ skills to make it up to FAQ level of ragi so that procurement can be easily possible.
Issues at TDCC/WASSAN/DDA ATMA/FAs/CBOs level
As ragi procurement with FAQ is a very tough process, TDCC can facilitate the process of setting own system like setting sieve at LAMPS level for cleaning and grading for farmers who can sell less quantity per day. Similarly, the advanced token can be issued for farmers with simplified ways so that FAs/CBOs can create awareness and convince farmers for better quality ragi procurement. Even, Government can find action plan for construction of threshing yard at each village level for better quality of ragi procurement. Tribal Development Co-operative Corporation needs to create awareness about the process of fresh registration and timeline for procurement at all levels. Watershed Support Services and Activity Network and NCDS can facilitate better coordination as well as training and capacity building programme for separate project activities as well as ensure timely fund release to FAs and CBOs for the smooth functioning of promotional activities in ground level with the coordination Directorate of Agriculture and Food Production, Government of Odisha. For example, there has not been fund release for this crop season so far which disturbs many CBOs to retain quality Cluster Resource Persons (CRPs) as they have better hold in village level. Deputy Director of Agriculture & PD ATMA can necessary steps to avail timely information education and campaign (IEC) materials to create awareness at farmers’ level. As most of FAs don’t have prior experience in marketing or facilitating the registration process for paddy, it is being difficult for them to understand the technicality involved throughout the system of ragi procurement. Moreover, increase in minimum support price (MSP) in ragi, may reduce household consumption level and farmers might sell more production either in Government procurement system or middleman (as they may purchase at a higher price) in order to meet household expenditure. Hence, it is also one of the dilemmas for all FAs those are especially working for food and nutrition security of the tribal communities. Moreover, FAs/CBOs also don’t have much control over farmers and ensure them to bring ragi to the particular LAMPS centre if they have other better options.
Conclusion
In a mission mode, it is necessary to speed up the ragi registration process as well as procurement of ragi at all levels. Lots of promotional events/campaign is required to educate farmers about the FAQ level of ragi so that they will not return back and sell in the procurement system rather selling in traditional ways where middleman will be benefited. various efforts is also required to solve various critical issues regarding the timely plan for activities as well as fund flow to the implementing agencies as well as strengthening ragi registration process mainly to include non-eligibility farmers. Moreover, it is necessary to set up proper machinery systems like graders, de-stoners, sieve etc. to maintain FAQ level ragi at the village level. Even, construction of threshing yard at village level will also enhance grain quality of ragi. A policy level workshop can be organized exclusively on ragi procurement with the involvement of all stakeholders directly or indirectly involved in ragi procurement.
