Policy Update
Suranjana Mitra
Agriculture is the backbone of India, as it is the primary source of livelihood for almost 55% of India’s population. From dairy, pulses, and spices to commercial crops like cotton, tea, and coffee, India is an all-rounder when it comes to the primary sector. India is the second-largest producer of vegetables, fruits, fish, cotton, sugarcane, wheat, rice and more. The economy of the country depends largely on the farmers and their production exports which help with increasing the overall GDP of the country.
In agriculture, the role of women is often overlooked and the designation of “farmers” is unofficially given to men. This results from a deep-seated gender discrimination that poses women as “home-makers” while men go out to work and earn a living. Regardless of the stereotypical differences, women have actively worked and contributed towards the rise in the number of cultivators.
The Agriculture Census of 2010-11 shows that out of an estimated 118.7 million cultivators, 30.3% were females and out of an estimated 144.3 million agricultural labourers, 42.6% were females. About 18% of the farm families in India, according to NSSO Reports, are headed by women. Beyond the conventional market – oriented, narrower definition of ‘productive workers’, almost all women in rural India can be considered as ‘farmers’ in some sense, working as agricultural labourers, unpaid workers in the family farm enterprises or a combination of the two.
The notion that farming is a male-dominated sector is a false concept. Women farmers have been working for years working to feed the nation and beyond with their hard work, which when compared to men, is often disregarded or trivialized.
Source: Ministry of Rural Development, Government of India
According to the Agriculture Census of 2015-16, the total number of operational holdings in the country increased from 138.35 million in 2010-11 to 146.45 million in 2015-16, showing an increase of 5.86 percent. Male operational holdings (excluding Institutional) constituted 86.0 percent while female holdings were 14.0 percent in 2015-16 against 87.2 percent and 12.8 percent respectively in 2010-11.This indicates rising participation of females in management and/or operation of agricultural holdings in the country.
Hence, the term “farmer” is not synonymous with “man”, instead the term “farmer” has been defined as “the person whose profession is farming and includes those who cultivate on their own land as well as those who cultivate on leased land/other’s land with or without the assistance of agricultural labourers” (National Crime Records Bureau). Furthermore, 78% of India’s employed women work in agriculture. The Annual Periodic Labour Force Survey, 2021-22, shows that agriculture consists of the highest estimated female labour force participation of 62.9%.
Rural women form the most productive workforce in the economy of the majority of the developing nations including India. 80% of rural women are engaged in agricultural activities for their livelihoods. About 20% of farm livelihoods are female headed. Gradually the number of female-headed families increased due to widowhood, desertion or male emigration.
Due to the extension of old beliefs, most female workers are not considered to be equal to men as a result of which they are excluded from the purview of extension services, farmer support institutions and production assets like seed, water, credit, subsidy etc. Another issue that women farmers have to face on a daily basis is unequal wages. Women are paid lower wages than their male counterparts due to no particular reason but in some way their labour is seen to be of less value than that of men.
In order to combat these issues and reinforce women as an equally capable labour force, the “Mahila Kisan Sashaktikaran Pariyojana” (MKSP) was introduced. It is a sub-component of the Deendayal Antyodaya Yojana-National Rural Livelihoods Mission, which is under implementation since 2011 through State Rural Livelihoods Mission as Project Implementation Agencies (PIA). The primary objective of MKSP is to empower women by making systematic investments to enhance their participation and create sustainable livelihood for rural women. In its pilot phase (2010-11 Budget), MKSP was provided a support of Rs 100 Crore.
MKSP recognizes “Mahila” as “Kisan” and plans to reach out to the poorest of poor households and broaden the portfolio of activities that are currently being handled by Mahila Kisans. The focus of MKSP is on capacitating smallholders to adopt sustainable climate resilient agro-ecology and through this process slowly create a group of skilled community professionals. MKSP aims to promote sustainable agricultural practices such as Community Managed Sustainable Agriculture (CMSA), Non-Pesticide Management (NPM), Zero Budget Natural Farming (ZBNF), Pashu-sakhi model for doorstep animal care services, sustainable regeneration and harvesting of Non-Timber Forest Produce.
Three broad focus programmatic areas of MKSP are (i) Sustainable Agriculture (ii) Non-Timber Forest Produces (NTFP) and (iii) Value Chain Development. Livestock interventions are integrated with both Sustainable Agriculture and NTFP projects.
Functioning
MKSP will create a foundation based on sustainability which will incorporate climate change resilient and ecologically sound practices into the overall structure. Community Resource Persons (CRPs) play a proactive role in scaling up these initiatives. Major interventions promoted under DAY-NRLM which contribute to climate change resilience & risk mitigation among the poor are:
- Community managed sustainable agriculture (agro-ecology approaches)
- Usage of locally available natural inputs – for pest management and soil fertility management
- System of root intensification – SRI, SCI
- Promotion of millets and cereal crops
- Promotion of multiple crops
- Tree based farming practices
- Regeneration of forest species
- Usage of locally available natural inputs
- Integrated farming practice with small ruminants
- Convergence with MGNREGA to create agriculture assets for the community
- Non-Pesticide Management
- Natural soil fertility Management
- Integrating livestock with agriculture
- Integration of livestock – promotion of Pashu sakhi model
- Ensuring the scalability of climate change resilient agriculture practices through Community Best Practitioners (CBPs)
- In-situ rain water harvesting
As Project Implementing Agencies (PIAs) throughout the nation, DAY-NRLM is working with State Rural Livelihood Missions (SRLMs), Community-Based Organisations (CBOs), and NGOs to carry out the program. It is anticipated that these partners will assist and advance scalable livelihood models in MKSP intervention areas. Among the most successful practitioners, a cadre of barefoot community professionals will be created through this process. The community will then actively participate in the SRLMs’ replication of these effective models.
For projects submitted by State Governments or PIAs under MKSP, the Ministry of Rural Development (MoRD) offers funding support of up to 75%; for hill and northeastern states, this support can reach 90%. The corresponding state governments or other national and international donor organisations provide the remaining portion.
By the 15th of the month after each quarter, the implementing or coordinating agency must submit the project progress report in the format specified by the Ministry. The agency may be responsible for returning the Central funds released for the project, plus any applicable interest, if the report is not submitted.
At state level – A State-level Committee will be formed, led by the Secretary of Rural Development (RD) of the relevant State, to guarantee efficient monitoring and recurring reviews of approved projects. This committee will be in charge of supervising and tracking the projects’ advancement. Departments of Women and Child Development and Agriculture will be represented. Quarterly review meetings with the Project Implementing Agencies (PIAs) and, if relevant, consortia members are expected of the Committee. The State governments may also constitute a State Level Technical Project Support Group to assist the PIAs in the implementation of the Projects.
At the Central Level – The Project Steering Committee (PSC) will oversee the development of special projects approved under the program and carry out recurring reviews at the central level. The Project Appraisal Committee (PAC) will also receive regular updates from the PSC regarding the progress of ongoing projects. Additionally, the Ministry of Rural Development will receive strategic advice on the successful implementation of MKSP from an advisory body made up of representatives from industry, marketing firms, private organisations, and other pertinent sectors.
Expected outcomes
The annual income of women farmers will increase over the course of two years. The area under cultivation can increase as a result of adopting sustainable methods of farming leading to an increase in cropping intensity and food production by women. Skill
Source: Assam State Rural Livelihoods Mission
enhancement can also be achieved from the incorporation of new farming techniques and knowledge. Women will get increased access to productive land, inputs, credit, technology and information. Access to markets and market information will increase.
Source: Assam State Rural Livelihoods Mission
Performance
The Ministry of Agriculture and Farmers’ Welfare has been allocated Rs 1,31,531 crore in 2021-22, a 14% annual increase over 2019-20. Allocation to the Ministry accounts for 4% of the government’s budget. The Ministry had estimated an expenditure of Rs 1,42,762 crore in 
Source: Data.gov.in, Government of India
2020-21, which has been reduced by 13% to Rs 1,24,520 crore at the revised stage.This includes a cut of Rs 10,000 crore in the proposed expenditure on the PM-KISAN scheme (income support scheme for farmers), due to coverage of lower beneficiaries than initially estimated.
Source: Jk.data.gov.in (Chart created by Author)
Source: Jk.data.gov.in (Chart created by Author)
Two levels are involved in the monitoring and evaluation of approved and executed projects: the Rural Development (RD) Department at the State level and a designated agency at the Central level. Additionally, agencies designated at the central level for duties like monitoring, coordination, fund routing, and appraisal will receive 1.5% of the project budget.
Under MKSP, from 2018-19 to 2020-21, a total of 22 Projects have been initiated (including all the States and Union Territories), 8 projects have been executed, 11 projects are behind the schedule and 2 projects have not been initiated.
Impact
Farm Livelihood Progress (as of December 05, 2023):
- Number of Mahila Kisan (covered under Agro-Ecological Practice interventions): 31,03,072
- Number of Mahila Kisan (households having Agri Nutri Garden): 21,84,159
- Number of Villages (Covered under Farm Livelihood interventions): 1,16,284
- Number of Mahila Kisan (Organized into Farmer Producer Organizations): 5,76,455
To carry out systematic interventions that address end-to-end challenges in agricultural production, NGOs, CSOs, civil society organisations, government agencies, and self-help groups must work together and interact directly with women. PRADAN implemented the Agriculture Production Cluster (APC) approach in 2008–09, which emphasises market demand, identifying important gaps in the market, and utilising the strengths of the production system to facilitate more equitable market participation.
This approach led to the active participation of a large number of women from marginalized tribal communities in agriculture—not just for subsistence, but with a clear focus on increasing their income. Women could be greatly empowered and given a greater sense of ownership over the land they cultivate if the public and private sectors embrace and expand this model across the country. By grouping women into Producer Groups (PGs) and working towards the creation of Farmer Producer Organisations (FPOs), the APC approach has become a very creative way to acknowledge women as “farmers.”
An illustration of the interventions under farm livelihoods has been given below :-
- Every poor household is supported on at least 2 farm sector livelihoods (sustainable agriculture, NTFP, livestock);
- Assured annual incremental income of more than Rs.50,000 per family per year after 2 years of intervention;
- Yearlong food and nutritional security for the household created by themselves;
- Income streams throughout the year;
- Creation of Social capital for agriculture, NTFP and livestock, from the best practitioners as extension workers;
- The approach has been the creation of knowledge and awareness on livelihoods, initiate sectoral interventions, aggregation and value chain interventions.
Source: Data.gov.in, Government of India
Emerging issues
1. Land ownership: many women still have to face the most basic issue of land ownership. This becomes a major hindrance when it comes to the ability to access credit, loans and insurance, making them more vulnerable.
2. Decision making power: the gender norms, for generations, have become so deeply ingrained which affects the women’s rights and they are not allowed to take major decisions. This norm needs to be uprooted and a progressive outlook is needed.
3. Lack of recognition: Regardless of how hard women work and the different social challenges they have to face, their struggle is often overlooked, labelling it to be their “duty”. Such labels need to be checked and spreading awareness is very important.
4. Climate change impacts: in addition to the existing challenges, women farmers have to also deal with climate changes. Due to climate changes, the monsoon has become unpredictable and rains have become untimely. This negatively affects the crops as they might be attacked by pests or diseases due to abnormal temperatures.
Way forward
Introduce Knowledge systems: Women who work in the agriculture sector, employ their labour to earn a living. Farming can be made educational by incorporating more details about organic farming and how it will be effective in the long run for both the farmers and the environment. Such types of education will be interactive and based on their livelihoods. This will create knowledge systems which can be passed on from one generation to another. In turn such knowledge systems can benefit women by making them self-sufficient to resolve farm related issues.
Motivating to participate in new projects: with rising temperatures, new ways can be devised to keep an eye on better irrigation facilities to monitor the health of the overall vegetation. Bringing down the temperature is also an effective way to keep some pests away and maintain the quality of the crops. New effective yet low-cost things can be introduced for the ease of farming. This will help in promoting sustainable agriculture.
Providing proper support: Every village should have groups of women who will be able to help other women with different issues, be it farm related or with matters of social inclusion. Due to lack of awareness among women, they can overlook their own struggles but to empower them a group consciousness can be helpful.
Education: In today’s face-paced world, education is a basic requirement for survival. With increasing internet usage and digitization, the villages need to be educated in order to be tech-savvy. Technology is one of the major successes of Globalization and technology helps with not only education, news, knowledge but also with trade. In order to garner the attention of foreign investors, technology is crucial.
References
- Assistance to Women Farmers under Mahila Kisan Sashaktikaran Pariyojana (MKSP). (n.d.). https://pib.gov.in/PressReleaseIframePage.aspx?PRID=1740830
- Home. (n.d.). https://www.data.gov.in/resource/year-wise-amount-funds-allocated-and-utilizedreleased-mahila-kisan-sashaktikaran
- Indian Agriculture Sector, Farming in India | IBEF. (n.d.). India Brand Equity Foundation. https://www.ibef.org/industry/agriculture-india
- Women farmers in the country. (n.d.). https://pib.gov.in/PressReleaseIframePage.aspx?PRID=1780263
- How women can be given ‘farmer’ status in Indian agricultural eco-system. (2023, December 3). BusinessLine. https://www.thehindubusinessline.com/economy/agri-business/how-women-can-be-given-farmer-status-in-indian-agricultural-eco-system/article67600413.ece
- Farm livelihood. (n.d.). http://mksp.gov.in/#/about/introduction
- (Mahila Kisan Sashaktikaran Pariyojana (MKSP) | Official Website of Meghalaya State Rural Livelihoods Society, Government of Meghalaya, India, n.d.)
- Government of India. (n.d.). Mahila Kisan Sashaktikaran Pariyojana (MKSP). https://msrls.nic.in/sites/default/files/mksp-agriculture-guidelines.pdf
About the author: Suranjana Mitra is a Research Intern at IMPRI and holds a postgraduate degree in Political Science. She has a strong interest in Public policy analysis and policy making.
Acknowledgment: The author extends sincere gratitude to the IMPRI team for reviewing the article and for providing the opportunity to write the article.
Disclaimer: All views expressed in the article belong solely to the author and not necessarily to the organisation.
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