Strategy of Production 7.19. The rate of increase in production of foodgrains and major commercial crops envisaged in much higher than that accomplished in the past. Hence it is necessary to spell out, in some details, the strategy for realising the production targets. This strategy places very little reliance on bringing additional land under cultivation. The potentially arable
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area in the country is estimated at about 175 million hectares. Of this, nearly 85 per cent is under cultivation. Thus there is a virtual exhaustion of uncommitted land resources. In the Fourth Plan, it is anticipated that the addition of the net sown area will be only about one million hectares which is the target of land reclamation. In this context, the strategy of production is primarily dependent on intensive agriculture and consists of the following main elements :
(1) coordinated research in respect of all important crops;
(2) continued expansion of irrigation facilities and reorientation of irrigation practices so as to ensure optimum and integrated use of around and surface water;
(3) improvement in the utilisation of existing irrigation, potential through special programmes;
(4) expansion in the supply of fertilisers, plant protection material, farm machinery and credit;
(5) full exploitation of the possibilities of raising yields provided by the new seed varieties in the case of cereals;
(6) intensive efforts in selected suitable areas for raising the yield levels of major commercial crops;
(7) measures to increase intensity of cropping; and
(8) improvement in the agricultural marketing system in the interests of the producer along with assurance of minimum prices for major agricultural commodities.
7.20 For achieving the targeted level of cereals production, the high-yielding varieties programme envisaged in the Fourth Plan is as under:
TABLE 6: Targets of High-Yielding Varieties Programmes
(million hectares
sl. no. group base cumulative additional
level level target
(1968-69) (1973-74)
(0) (1) (2) (3) (4)
1 paddy 2.6 10.1 7.5
2 wheat 4.8 7.7 2.9
3 maize 0.4 1.2 0.8
4 jowar 0.7 3.2 2.5
5 bajra 0.7 2.8 2.1
6 total 9.2 25.0 15.8
The other development programmes which will help in achieving the production targets of both foodgrains and commercial crops are of the following order :
TABLE 7 : Target of other Selected Development Programmes
sl. no. programmes additional
target
(million
hectares)
(0) (1) (2)
1 multiple cropping 9.0
2 soil conservation 5.6
3 land reclamation 1.0
4 major and medium irrigation (Utilisation) 3.9
minor irrigation
5 new area 3.2
6 replacement of depreciated area 1.6
7 supplemental irrigation/stabilisation 2.4
The above mentioned dimensions of the various programmes have been arrived at on the basis of a careful assessment of the scope in each State. The State targets, in turn, have been sought to be built up on the basis of potential in various districts and hence represent a feasible set of programmes.
7.21. Success in the achievement of foodgrains target is principally linked with the success of high-yielding varieties and multiple cropping programmes. In support of these, there will be schemes of major and minor irrigation. including large-scale energisation of pumpsets through rural electrification and integrated rise of ground and surface water; supply of inputs for plant nutrition and protection, and of machinery for farm operations; reorganisation of credit, short, medium and long; and strengthening of the rural infrastructure in other important ways including more village roads, better marketing facilities. and adequate storage. There will also be agricultural research, extension and education including farmers' education and field demonstration. Substantial allocations have been made to the more strategic financial and other institutions, old and new connected with-these programmes. Some of the relevant institutions are: cooperative banks; credit societies, marketing societies and National Cooperative Development Corporation (for credit, marketing, processing and storage); the Agricultural Refinance Corporation, land development banks and Rural Electrification Corporation (for land reclamation, soil conservation, minor irrigation and energisation of pumpsets); agricultural credit corporations; agro- industries corporations (in connection with agricultural machinery); Food Corporation and Fertiliser Credit Guarantee Corporation (for food and fertiliser, as also storage); the Central Warehousing Corporation and State Warehousing Corporations (for storage). Assured of sta- bility of prices, supported by research and knowhow, given the credit, inputs, services and other supplies he needs, the farmer can be, trusted to achieve in the next few years the level of production envisaged in the Plan.
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Financial Outlays 7.22. A statement showing public sector outlays for agriculture and allied programmes is given as Annexure III. Most of the programmes are within the purview of State Governments. Thus, cut of an aggregate outlay of Rs. 2728 crores in the public sector, programmes of the order of Rs. 1426 crores are in the State Plan Sector. Moreover a number of programmes in the Central Sector such as agricultural research and agricultural education are designed to provide the necessary infrastructure for different schemes in the State Plans or to improve the efficiency of the corresponding sectoral programmes in the State sector. Further, the entire provision of Rs. 324 crores to support financial institutions is intended exclusively for programmes to be implemented in the States. In brief, care has been taken to ensure the provisions made for Central and Centrally sponsored schemes in the Agricultural sector go to fill the crucial gaps in the State Plans.
7.23. Besides direct Plan outlays, it is contemplated that investment in agriculture will flow from other sources, both institutional and private. On the institutional side, it is expected that the operation of land development banks will be considerably expanded. A similar expansion is envisaged for the Agricultural Refinance Corporation and the agro-industries corporations. In addition, agricultural credit corporations are proposed to be set up in States where cooperative credit agencies are weak. It is also contemplated that a Dew credit guarantee corporation will come into operation to facilitate flow of finance for distribution of fertilisers and allied inputs. Commercial banks are expected increasingly to cater to the agricultural sector and provide finance both for investment and production. As a result of the availability of funds from these institutional sources as also a progressive shift towards self-financing by the medium and large farmers, it is expected that in the Fourth Plan, in addition to public sector outlay, private investment of the order of Rs. 1.600 crores will be made in agri- culture.
III
GENERAL PROGRAMMES OF AGRICULTURAL DEVELOPMENT
Agricultural Research and Education 7.24. The Indian Council of Agricultural Research, which is the apex Organisation for sponsoring, coordinating and directing agricultural research and education in the country, has been re- organised in recent years. Since 1965, steps have been taken to place all the Central research institutions and those under the Commodity Committees under ICAR. The Council now has 25 research insititutes or research stations and eight soil conservation research and training centres under it. In the Fourth Plan, the Council will be further strengthened and will be placed. in possession of adequate funds. A sum of Rs. 85 crores has been provided in the Central sector of the Plan for agricultural research and education. Action is also contemplated to enable ICAR to raise additional funds under the Agricultural Produce Cess Act.
7.25. Application of science and technology to agriculture being the key-note of the strategy for the Fourth Plan, agricultural research has been accorded an important place in the Plan. A provi- sion of Rs. 55 crores has been made in the Central sector of the Plan for agricultural research. This is exclusive of the provisions made for agricultural research. In various State Plans. It is contemplated that the principal agencies involved in the research programme will be the central research institutes, agricultural universities and, to a limited extent, research stations run by agricultural departments in some States. From the point of view of organisation of agricultural research, care will be necessary to ensure that there is no overlapping of effort or proliferation of institutions. Existing research sub-stations will, as far as possible, be tied up with agricultural universities where these have been established. No new central research institutes will ordinarily be sought to be set up in the jurisdiction of agricultural universities.Similarly, in States which have already set up agricultural universities, it will be necessary to ensure that, apart from teaching, research is also transferred to the university from the State Department of Agriculture.
7.26 An important feature of agricultural research will be the All-India coordinated research projects. These call for a multidisciplinary approach as well as inter-institutional cooperation. Plant breeders, geneticists, agronomists, agricultural chemists and plant protection scientists in the central and State institutes and agricultural universities working as a team with a project co- ordinator, appointed by ICAR, acting as a research leader fostering cooperation and coordination of research carried out by various participating institutions. The system also provides a built in mechanism for continuous assessment of achievements and impediments in the form of an annual workshop, attended by participating scientists.
7.27. The idea of a coordinated research project was tried out as early as 1957 when a coordinated maize breeding scheme was initiated. Since 1965, a systematic effort has been made to formulate other coordinated projects. On the eve of the
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FOURTH FIVE YEAR PLAN
Fourth Plan, 38 projects had been sanctioned and 32 projects were in operation. These projects will necessarily spill over to the Fourth Plan. In addition, it is contemplated that 44 new All-India co- ordinated research projects will be taken up. A total provision of Rs. 34.70 crores has been included in the Fourth Plan by way of spill- over as well as for new projects.
7.28. In a later section of this chapter, an indication will be given of the specific crop-wise problems to which agricultural research will be sought to be directed. The scope of coordinated research projects would be widened so as to cover all important food and commercial crops and to take care of the various problems coming in the wake of the introduction of high-yielding varieties. Research on pulses did not get enough emphasis in the past. This will be under taken for the special benefit of the rainfed areas. Emphasis will be laid on research in dry farming. Its details are given in a subsequent section of this chapter. Research will also be directed to the problems of plant protection consequent on the use of the high- yielding varieties. Widespread use of the new varieties will bring with it a new order of demands on account of depletion of various nu- trients in the soil. Problems connected with the soil structure, including that of maintenance and the Continued ability to produce high-yields will call for wide-ranging research on the use of plant harmones as well as the study of soil and crop chemistry. Research will have to be harnessed to problems of post-harvest technology such as threshing, drying, storage and processing.
7.29. A panel on irrigated farming was set up recently to review in the light of long-term scientific and technological considerations, the programmes which are already in operation, and to identify the main areas in which further research or investigation in needed for the formulation of long-term policies in regard to different aspects of farming in irrigated and rainfall areas. The panel has made a number of recommendations. Among the problems dealt with are those pertaining to humid areas such as Kerala, Assam, Tripura and Nagaland. The panel has also suggested work on breeding of varieties which can be harvested before incidence of floods which are a recurring feature in some of the areas of North-East India. Another identified problem area relates to eight million hectares of land which are inundated by sea water, the development of techniques for the use of sea water as well as the assessment of the economics of the use of de-salinated water need to be studied in this context. These and other aspects indicated by the panel have been taken cognizance of and requisite funds provided in the Plan.
7.30. One significant area of research will relate, to soil, plant and water relationship. Studies already made reveal a high response to correct timing of water application. There is considerable room for further studies of plant evaporation/transpiration ratios and the economies of improved water management. Other connected fields of research are problems of reconciling agricultural needs and engineering practices. Among the important developments envisaged are the establishment of a water technology centre at IARI and a Central Soil Salinity Research Institute at Karnal.
7.31. In the sphere of agricultural education, the, nine agricultural universities already set up will be strengthened. Some of these universities have started making notable contributions to agricultural education and research. A number of them, however, continue to suffer from inadequate facilities. In the Fourth Plan, efforts will be made to rectify these deficiencies. In addition, six new universities are likely to be established. A sum of Rs. 21.5 crores has been allocated in the Fourth Plan to, enable ICAR to assist agricultural universities in regard to specified developmental items. For the balance, it is contemplated that the agricultural universities will be assisted by the concerned States from the State Plans.
7.32. During the Fourth Plan period, while funds have been allocated to agricultural universities as also for strengthening postgraduate and undergraduate colleges, it will be necessary to ensure that educational planning broadly conforms to the likely demand for trained agricultural manpower. This caution has become essential in view of the fact that, in recent years, there has been a large expansion in the number of agricultural veterinary and agricultural engineering colleges with the result that, in respect of certain categories such as agricultural, engineers and veterinaries the supply has outstripped available demand. In order to make optimal use of existing facilities, it is contemplated that ICAR will take requisite measures so as to ensure maximum inter-institutional cooperation and avoidance of additions to underutilised capacity. Steps would have to be taken to improve the standard of agricultural colleges that have mushroomed in some States. In certain cases, such colleges may be converted into farmers' training institutions. Where it is not feasible to take such remedial measuers, these may have to be closed down.
Farmers' Training and Education 7.33. A special scheme of farmers' training was introduced on a pilot basis in 1966-67 in five districts. The three components of the scheme were (i) functional literacy, (ii) farm broadcasts, and (ii) farmers' training. The intention was to try out arrangements for intensive training and information in selected districts having potential for optimal use. Later on, the scheme was extended so as
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AGRICULTURE
to increase the number of farmers' training centres to 25 in 1967-68 and 50 in 1968-69. A recent evaluation, however, showed that only 27 centres were functioning effectively.
7.34. In the Fourth Plan, farmers' education and training is sought to be given a new orientation consistent with the requirements of a complex and technology-based production programme. The principal 'element is a programme of national demonstrations 'which has been included in the Fourth Plan 'with an outlay of Rs. 2.45 crores: This programme envisages Organisation of demonstrations in 100 selected High-yielding Varieties Programme districts at the rate of 15 per district. These demonstrations are to be carried out in each district under a team of four subject-matter specialists in soils, agronomy, plan protection and agricultural engineering, The demonstrations will seek to establish the production potentiality of each unit area of land per year through multiple cropping supported by a package of improved be, conducted by the State agricultural extension personnel. Other components of the farmers' education programme in the Fourth Plan relate to dissemination of agricultural information through audio-visual aids and formation of farmers' discussion groups. The exchange programme of farmers will also be enlarged.
Material Inputs 7.35. Adequate and timely availability of agricultural inputs is a key factor, and measures which have a bearing oil this have to be executed in an integrated manner. firstly efforts will be made to ensure adequate supplies through indigenous production supplemented, where necessary, by imports. Secondly, through appropriate measure in all the sectors-public, private and cooperative--a widespread network of retail distributors will be sought to be established so that fertiliser and other inputs are within the easy reach of the farmer. Thirdly, action will be taken to facilitate distribution by providing adequate credit to cooperative and private distributing agencies. Among, other steps to this end, a Fertiliser Credit Guarantee Corporation is proposed to be set up as a subsidiary of the Reserve Bank for guaranteeing distribution Credit for chemical fertilisers and other approved agricultural inputs. Finally, attention will be paid by provision of storage facilities both at the wholesale and retail points. While these measures will aim at substantially stepping up the. consumption of chemical fertilisers, seeds and plant protection material, a distinct change will be made in present policy in so far as no subsidy will be available for such inputs except for backward and inaccessible areas and, to a limited extent. for certain export- oriented crops.
Improved Seeds 7.36. In the context of intensive agriculture, particularly the HVP programme, quality seeds are the basis of other developments. Special attention will therefore be devoted to multiplication and distribution of improved seeds. The existing seeds production and distribution arrangements have been subjected to a detailed scrutiny by the Seed Review Team which reported in 1968. A number of short- comings have come to light. These include non-availability of quality breeders stock in adequate quantities as well as insufficiency of and lack of appropriate Storage facilities on seed farms. The seed multiplcation programme has not always yielded stock of the requisite purity. There have also been shortcomings in regard to the processing of seeds and the distribution arrangements. The recommendations made by the Seed Review Team aiming at remedying some of these defects.
7.37. It is intended to cover nearly 72 million hectares under improved seeds about 25 million hectares under HVP, 15 million hectares under multiple cropping and about 8 million hectares in assured rainfall areas and 24 million hectares in dry cultivated areas. For the accomplishment of his programme, the following may be regarded as the main components:
(i) Continuous supply of breeder stock
(ii) Adequate arrangements for production of improved seeds
(iii) Arrangements for seeds processing and storage
(v) Seed certification
Each of these aspects will be given requisite attention.
7.38. As far as the breeders seed is concerned, it will be sought to be produced in adequate quantities with the help of ICAR and the National Seeds Corporation. About 140 hectares will be required for this purpose in a number of research stations foundation seeds of the high-yielding varieties are intended to he produced by the National Seeds Corporation and selected agricultural universities. For production of certified seed it number of agencies will be involved, including State Seed Farms, Central Government Seed Farms, private seed producers and Seed Producers' Cooperatives. The establishment of State Government seed farms was taken up as early as in the First Plan. The Seed Review Team has broughtout a number of deficiencies in these farms regarding the size of the farms, availability of irrigation facilities and storage arrangements. In the Fourth Plan, provisions have been made in the State Plans for imProvement and rationalisation of these farms. In
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FOURTH FIVE YEAR PLAN
addition to the seed farms established by State Governments, the Central Government has established large sized farms for reclamation of land, Recently, the focus of their activities has been shifted to production of seeds. So far six farms have been set up. In the Fourth Plan, two more farms are proposed to be established. In the private sector, the seed industry has made distinct progress. it is expected that, in coming years, an enlarged role will be played by private seed producers. Finally, a beginning has been made in the organisation of seed producers' co-operative through a scheme sponsored by National Cooperative Development Corporation. So far, eleven cooperatives leave come into operation. It is contemplated that about 30 cooperatives will be set up in the Fourth plan period.
7.39. In the sphere of seed production, an important project in the Fourth Plan period will be the Terai Seed Development Project. Under it, the production of quality seeds of high yielding varieties will be taken up over an area of 16000 hectares with double cropping. It is estimated that about 56000 tonnes, of quality seeds per annum of HYP wheat, rice maize, sorghum. and pearl millets would be available on completion of this project in 1973.
7.40. In the absence of proper storage, seed is likely to lose germination, quality thereby resulting in poor plant population. This problem has become acute with the introduction of short-duration varieties whose grains tend to sprout at maturity during the wet season. In this context it is proposed to establish suitable seed godowns during the Plan period. Another essential ancillary is seed processing. It is estimated that about 350 processing plants each with a capacity of 1000 tonnes of seeds over two seasons would be required by the end of the plan period. About 100 plants have already been set up. Installation of the remaining plants will be encouraged in the public, private and cooperative sectors.
7.41. Seed certification with its essential elements of field inspection of crops for varietal purity, proper isolation distance and supervision at harvesting, has been generally lacking so far. In the, Fourth Plan, a Suitable seed certification machinery would be brought into being. Even though the Seeds Act was passed in 1966, certain sections of the Act have been brought into operation only with effect from October, 1969. A Central Seeds Committee has been set up under the Act. Seed testing laboratories will be organised and suitable training arrangements made for personnel in charge of the administration of the Seeds Act.
7.42. The outlook for the Fourth Plan is generally one of adequacy of seed supply. In fact, a small quantity. of seed is already being exported from the country. The crux of the problem in coming years will lie in ensuring quality. There is room for considerable concern about maintenance of breeders stock with a high genetic purity. The same concern applies to foundation seed and eventually certified seed. The hybrids in particular present a relatively serious problem. This is on account of the seed producing process which requires high level skill. The recent development of composites will perhaps help in this regard. However, quality maintenance of seeds needs to be given high priority by the National Seeds Corporation and the State Governments.
Fertilisers and Manures 7.43. A significant increase in fertiliser consumption is a crucial element in the agricultural strategy. It is necessary to get the optimum yield out of the new cereal varieties which are highly responsive to increased dosage of fertilisation Chemical fertilisers are also envisaged as an important factor in the package programmes for development of commercial crops. High cropping intensity visualised under the multiple cropping programme also pre-supposes a high level of the use of plant nutrients. Finally, increased use of fertiliser is contemplated in dry farming in the form of foliar spraying.
7.44. In the Draft Fourth Plan, a target of consumption of 3.7 million tonnes of N, 1.8 million tonnes of P 2 O 6 and 1.1 million tonnes of K30 was indicated. This target has been reconsidered in the light of the latest available data on fertilizer response and other factors. A revised target has been fixed at 3.2 million tonnes of N, 1.4 million tonnes of P 2 O 5 and 0.9 million tonnes of K 2 O. Considering that the consumption in the last year (1968-69 is estimated at 1.1 million tonnes of N, 0.39 million tonnes of P 2 O 5 and 0.16 million tonnes of K 2 O 3 even the revised Fourth Plan target will require more than trebling the pre-Plan level of fertiliser consumption.
7.45. While, during 1966-67 and 1967-68. there was a sharp upward trend in fertiliser consumption. there has in 1968-69 been some deceleration. The main factors inhibiting increase in fertiliser, use. are essentially those on the demand side. The measures contemplated in the Fourth Plan to stimulate demand and facilitate supply of fertilisers are improvement and extension of soil-testing facilities. increased use of soil conditioners, intensification of extension and sales promotion, increase in the number of retail points, and increased availability of distribution credit. Measures such as increase in the supply of production credit are also expected to make for enhanced fertiliser consumption.
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7.46. Increase in consumption of fertiliser is partly linked to the willingness of the farmers to step up the dosage per hectare towards the optimum level. One of the crucial aids is availability of advice on characteristics of soil. In this context the growth in demand for fertilser is dependent on the development of soil-testing facilities. At the end of 1968-69, there were 65 soil-testing labora- tories all over the country with a total annual capacity of handling 1.08 million samples. It is estimated that, currently, only about 46 per cent of the available capacity is being utilised. Apart from under-utilisation, other areas of concern in this regard relate to the faulty manner of drawing the samples and consequently poor quality of soil analysis and lack of effective follow-up action by the extension agency. It will be necessary to take measures to rectify these shortcomings and also I expand the number of soil-testing laboratories, some of them mobile.
7.47. Among the factors accounting for low crop yields in many of the areas are soil acidity and soil alkalinity. To remedy these deficiencies, application of soil amendments such as lime, gypsum and basic slag are generally recommended. Based on available information, areas prone to acidity and alkalinity have been mapped out and some progress has been. made in popularising the use of sell conditioners. Many State Plans include provisions for this programme.
7.48. One of the major tasks is intensification of agricultural extension and sales promotion arrangements so as to step up fertiliser consumption. The scope for effort in this direction is evidenced by the large gap that continues to exist between the recommended dosage and the actual application of fertiliser even in areas covered by HYP. Apart from concerted action by the State extension agencies to organise demonstrations on a priority basis, there is both need and room for energetic measures by the fertiliser industry. Recently, the manufacturers have been given the freedom to, market their entire product subject to the proviso that Government has the option to acquire up to 30 per cent of their production at negotiated prices. In fact, the Central fertiliser pool authorities are not exercising this option. Substantially, therefore, the manufacturers now possess both the freedom and the responsibility for sale promotion. A number of them have taken various measures such, as organisation of demonstrations and publication of publicity literature. Some have introduced soil testing and training of dealers. It will be necessary for the industry to undertake more vigorous action. It is also, contemplated- that the Government and the industry will jointly set up a Fertiliser Promotion Council as an autonomous body to strengthen and coordinate sales promotion arrangements,
7.49. One of the factors influencing fertiliser consumption is the availability of fertilisers within easy reach of the farmer. Recently, Government has amended the fertiliser control order so as to substitute mere registration for licensing of fertiliser dealers. While expansion in the number of retailers is likely to be facilitated by this step, it will be equally necessary to ensure that the retail points are widely dispersed. so as to include coverage of villages away from the rail heads. This is particularly urgent in view of the fact that the number of cooperative retail depots in recent years, has declined from over 48,000 to nearly 40,000 as a result of the policy of cooperatives to rationalise their distribution system in the context of competition from private trade.
7.50. Apart from a significant expansion in the quantitative consumption of chemical fertilisers, attention will have to be given to certain qualitative aspects relating to balanced use of fertilisers. From the agronomic point of view, the proportion of P 2 O 5 and K 2 O in relation to N Must be much higher than is currently consumed. Unfortunately, in recent years, the consumption of P 2 O 5 and K 2 O has been particularly lagging behind the targetted pro- gramme. It will be necessary to take measures which are pointedly directed to towards accelerating the consumption of phosphatic end potassic fertilisers. These include popularisation of fertiliser mixtures and complex fertilisers and stock in of these fertilisers by the dealers. Other measures would include demonstrations directed towards these fertilisers and a more effective soil testing programme bringing out deficiencies of phosphorous in certain areas of Kerala, Mysore, Andhra Pradesh, Maharashtra, eastern Madhya Pradesh. Orissa, Bihar and Southern Gujarat and deficiencies of potash in certain pockets of Orissa, Kerala, Tamil Nadu, Gujarat, Maharashtra and western Rajasthan.
7.51. A programme of setting up mechanical compost plants for the manufacture of good quality organic manure out of urban waste is envisaged in the Plan. To start with, three to four plants of more than one type will be set up on a pilot basis with a view to evaluating the suitability of various types. In addition, efforts will need to be made to try out modern methods of Chemical treatment of the sewage effluents. The possibility of drying the effluents prior to applcation will be sought to be explored so as to reduce the space required for sewage treatment. The green manure programme would be included in the intensive rotations which are being developed.
Plant Protection 7.52. In the new agricultural technology, plant Protection has acquired an added significance. This is due to both technical and financial reasons. In the case of high-yielding varieties, conditions which
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FOURTH FIVE YEAR PLAN
are conductive to the growth of the plant population are also favourable for weeds, pests and diseases. Moreover, the high-yielding varieties necessarily entail a high cost of cultivation and hence a cultivator can ill-afford to lose his crop. If full benefit is to be derived from the costly inputs, plant protection measures in various forms such as seed treatment, weed control and post-sowing prophy- lactic treatment, must be made an integral part of cultural practices.
7.53. Seed treatment is the first crucial stage of plant protection. Dressing the seed with chemicals before sowing protects the seed from seed, and soil-borne diseases and is essential for increase of plant population which is responsible for the yield poten- tial of the new varieties. In view of its importance, seed treatment is proposed to be given priority in relation to the projected target of 26 million hectares.
7.54. Weed control is another important aspect of plant protection. Such control through manual labour has obviously limitations in high density crops. Hence there is Deed for increased stress on chemical weed control measures. Since 1964, coordinated control trials on paddy have been conducted with satisfactory results. The Plan envisages a target of 2 million hectares for weed control.
7.55. Post-sowing hectares prophylactic treatment constitutes the main plank of the plant protection programme. In the Fourth Plan, a target of 34 million hectares is envisaged for this purpose. In order to be effective, this programme will- require two main supporting measures. The first relates to organisation of a surveillance and warning system. The second one concerns intensive research on determination of the most effective chemical control measures for various pests and diseases. It is intended to give attention to both these aspects in the Plan.
7.56. Besides seed treatment. weed control and prophylactic spraying, other measures envisaged relate to rat control and control of epidemics. For anti-rat operations, a target of 10 million hectares is envisaged. For all the plant protection programmes taken together, it is contemplated that about 80 million (gross) hectares will be covered by the end of the Plan.
7.57. Effective adoption of plant protection measures on the part of the cultivators is often inhibited by two among other factors, namely, lack of technical skill in the use of pesticides an dineffectiveness of individual operations. In this context, the Plan envisages strengthening of the official plant protection services and expansion of training facilities. Steps will also be taken to strengthen the agro-aviation arrangements both in the public and the private sector. In the endemic areas, repealed aerial spraying is envisaged for eradication of pests and diseases. Such spraying is proposed to be financed by the Centre while the cost of the, material used will be borne by the States.
7.58. Unlike chemical fertilisers, the plant protection material is still largely distributed by official agencies. It is estimated that, at present about 50 per cent is handled by Government personnel. Cooperatives and panchayats account for about 25 per cent and the balance is retailed by private dealers and manufacturers. It is estimated that by 1973-74 the annual consumption of pesticides should go up to 66,000 Metric tonnes of technical grade material as against the present annual consumption of 40,000 metric tonnes. If this is to be accomplished vigorous action by the industry, Government and the cooperative organisations will be necessary.
Agricultural Implements and Machinery 7.59. Since the commencement of the Third Plan. a number of steps have been taken to develop improved agricultural implements. While a measure of success was achieved, pans of the programme continue to suffer from a variety of shortcomings such as lack of suitable designs, high cost of manufacture and lack of adequate facilities for sale and repair. These problems will receive attention through intensification of research in agricultural engineering, and improvement of arrangements for fabrication and distribution of implements. Considering that there are nearly 70 million draught bullocks the scope for improved animal drawn equipment is enormous and their contribution to productivity can be significant. It is estimated that animal drawn seed drills and planters can save up to 40 per cent of the time compared with broadcast sowing. Hence stress will continue to be laid on the programme for animal drawn implements and band tools.
7.60. As regards power operated farm machinery. the approach is influenced by the new context in which efficiency of agriculture, is linked to adequate supply of power for making optimum use of inputs such as seeds. fertilisers and irrigation and for facilitating, completion of critical farm operations with. in the short periods available between crop seasons. Under a system of intensive cropping, the interval between two crops may be as little as three weeks. Early planting, which can have a visible impact on the yield, better land levelling and better tillage and accurate placement of seed and fertilisers are other features of new technology placing additional demands upon agricultural machinery. It is contemplated that a selective process of farm mechanisation will help to shift labour to more labour intensive agriculture activities and hence seek to avoid large-scale displacement of labour while adding to productivity.
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7.61. There is substantial demand for modern machinery. For tractors, the accumulated demand now pending is of the order of 80,000. By 1973-74, the annual demand of tractors would be well over one lakh. Efforts will be made to increase the indigenous capacity for manufacture of tractor. For facilitating creation of additional capacity, the wheeled tractor industry has been de-licensed. The power tiller industry has also been de-licensed for a similar reason. To the extent possible, the gap between demand and indigenous supply will be met by imports.
7.62. Programmes of training in the use of machines as well as of testing and popularisation of agricultural machinery and implements will be given further attention. The facilities available at the Central Tractor Training Centres, Budni and Hissar will be expanded. A third training centre will be established in one of the regions not covered by the present ones. The Central Agricultural Machinery Testing Station at Budni will be expanded with two to three sub- centres for carrying out trial, testing and evaluation of a wide range of more sophisticated machinery. Programmes of demonstration for equipment like seed-cum-fertiliser drills, planters and power threshers, taken up during the Third Plan have facilitated their popu- larisation. Trial, evaluation and testing of new equipment needed for crop production programmes will be intensified.
7.63 Among the institutional arrangement for agricultural implements and machinery, the most significant clement is represented by agro-industries corporations. Such corporations have been set up in 15 States as Joint ventures of the Central and State Governments. They are responsible for organising distribution of tractors, agricultural equipment and spare parts and for setting up centres for hiring, servicing and repairing of agricultural machinery. For enabling farmers with meagre resources to acquire costly equipment, these corporations will take up sale of equipment and machinery on hire purchase basis. In regard to custom service for agricultural machinery, the activities of the agro-industries corporations would be supplemented by other agencies such as cooperatives organised by trained technicians as well as agricultural marketing cooperatives.
Minor Irrigation 7.64. In the Fourth Plan, there will be considerable emphasis on minor irrigation. The programme will comprise projects for compact area development and for the integrated use of surface and ground water resources through wells, tubewells and pumpsets. Further details are included in the chapter on Irrigation and Flood Control.
Soil Conservation and Land Reclamation 7.65. In the Fourth Plan, it is proposed to adopt an "area saturation" approach so as to treat all types of land on a complete watershed basis. Programmes of soil conservation will be preceded by standard soil survey for the identification of priority areas within the watershed by means of interpretation of aerial photographs. Priority will be given to areas which have a greater potential for production. While responsive areas in high rainfall zones will need intensive efforts in disposal of surplus water, in the low rainfall and drought-prone zones measures will aim at conservation of moisture. To achieve this, basinwise master plans will be prepared to include afforestation, pasture development, terracing and bunding of cultivated land. gully control and follow-up practices, to be coordinated among the concerned agencies. In ravine lands emphasis will be on the treatment and protection of agriculturally productive table lands as well as on the stabilisation of marginal lands. Pilot projects are proposed to be taken up over 8000 hectares to evolve an economically feasible methodology of reclamation of shallow ravines. In the reclamation of saline, alkaline and water-logged areas work will be taken tip on easily reclaimable lands as justified by economic and practical considerations. A similar pilot approach will be adopted in areas given to shifting cultivation, particularly in the north-eastern region.
7.66. In the State sector, an area of 5.39 million hectares of agricultural land and 0.45 million hectares of non-agricultural and will come under soil conservation measures such as bunding, levelling, terracing, ravine reclamation, grass land development and protective afforestation. Some States, notably Bihar, Orissa and West Bengal, have not yet enacted soil conservation laws. The existing legislation would also require amendments for a proper implementation of the watershed approach.
7.67. The major programme under the Centrally sponsored sector is the scheme of soil conservation in the catchments of river valley projects. During the Third Plan, the work was initiated in 13 pro- jects. It has been revealed from the sedimentation surveys that in a large number of projects, the actual rate of siltation is higher than that assumed it the time of construction. This implies reduction of the effective life of the storage in addition to encroachment on lives storage The programme of soil conservation will be continued so as to cover the critical areas in the catchment of major projects. An area of 0.60 million hectares, comprising 0.216 million hectares of agricultural land and 0.34 million hectares of non-agricultural land. will be covered by this scheme. The Centrally sponsored programme is required to be supported by a matching programme of soil conservation in less vulnerable and
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FOURTH FIVE YEAR PLAN
more productive areas. Up to the end of 1968-69. nearly 7 lakhs hectares were treated at a cost of Rs. 23 crores. It is proposed to take up 8 additional projects and cover 5 lakhs hectares during the Plan period.
7.68. Emphasis will be laid on soil surveys in the commands of irrigation projects for better soil and water management and identifying problem areas. A, special project of soil surveys will be taken up in the five original I.A.D.P. districts. The Central Organisation will be strengthened for helping the States to draw up detailed plans. A Resources Inventory Unit established at the Centre during 1966-67 is proposed to be, strengthened to collect and collate data in respect of natural resources for agricultural development and prepare base-maps to help effective planning. A new cell in the Central organisation will help the States to draw up master plans of soil conservation in river valley projects.
7.69. While the main advances in agricultural production must come from increase in yields, expansion of area tinder cultivation can make some contribution, more Specially for provinding land to the landless. During the third Plan period, in area of 1.9 million hectares was reclaimed. A survey of wastelands suggest that an estimated area of 2.2 million hectares is available for reclamation and cultivation during the Fourth Plan. Of this, land reclamation will be carried out over one million hectares.
High-yielding Varieties Programme 7.70. The high-yielding varieties programme is of crucial importance. Out of an increase of 31 million tonnes of foodgrains projected for the Plan, 21 million tonnes is attributed to this programme. This is expected to be achieved largely by the extension of the programme from a base level of 9.2 million hectares in 1968-69 to 25 million hectares in 1973-74.
7.71. In the initial stages, the high-yielding varieties programme encountered a variety of organisational and operational difficulties concerning identification of the areas to be involved, multiplication of the requisite quantities seeds, provision of credit and timely arrangements for plant protection. Since a very considerable expansion of the programme is envisaged, it is proposed that requisite advance action should be taken so as to conform to the main guidelines that have emerged from experience. The action to be taken will be partly in the sphere of agricultural research. As already indicated, while a varietal break-up in wheat and millets is already in evidence. research in paddy varieties has not yet reached that stage. For the success of the programme, it will be necessary to ensure that the breeders maintain a continuous supply of superior genetic material.
7.72. For obtaining optimum results from the high-yielding varieties programme, the main thrust of effort will be in the sphere of extension. The new varieties require more refined and precise cultural practices concerning preparation of seed bed and methods of sowing. Perhaps the most significant aspect relates to controlled irrigations so that water is supplied at critical periods of plant growth. Experiments already made show that four irrigations applied at crown root, flowering, milk and dough stages of development areas efficient in terms of yield as six irrigations applied indiscriminately. This irrigation efficiency which is basic to the success of high-yielding varieties programme has to be developed as part of the requisite cultural practices. There has to be a corresponding change in the practices of the canal irrigation authorities so as to help water management.
Multiple Cropping 7.73 The importance of cropping. intensity was often emphasised in the past and a measure of success was achieved. By 1964-65, out of 137.9 million hectares of net sown areas, 20.2 million hectares were sown more than once. However, in the absence of short duration varieties, cropping intensity could not be made a focal point of agricultural strategy. During recent years, this barrier is being overcome and techniques of inter-cropping and relay-cropping are being developed. A series of new multiple cropping cycles have been evolved and tested. These are likely to have a significant bearing on future development.
7.74. For the Fourth Plan, the target is to expand the multiple cropping programme so as to cover an additional 9 million hectares. For the success of this programme, changes in irrigation practices, to which a reference has already been made, will be necessary. The implementation of the programme will be under taken in the light of the following guide-lines:
(i) Crops grown in succession should not be susceptible to the same diseases and pests;
(ii) There Should be a leguminous crop in the rotation so that biological nitrogen, fixation is promoted;
(iii) Crops grown one after the other should have different rooting patterns so that one crop takes nutrients from the upper layer of the soil while the other taps the lower areas;
(iv) Cultivation of short duration varieties so as to make fuller use of moisture available from late rains.
Under the national demonstrations programme, several new crop rotations have shown a significant increase in total production per unit of time. In
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AGRICULTURE
addition to short duration varieties of paddy, maize, jowar, bajra and wheat, barley, ragi, oilseeds, potatoes and vegetables have also been brought into crop rotations. As this programme of multiple cropping progress it will offer a potential for increase in production comparable to that provided by the high-yielding varieties programme.
Agricultural Credit 7.75. In recent years, there has been a significant increase in institutionalising rural credit. At present, over 30 per cent of the borrowings by cultivators are, from institutional Sources. A substantial step-up in the institutional credit will be necessary as the programmes of intensive agriculture, involving use of costly material and labour inputs, will require massive credit support. The All India Rural Credit Review Committee (1969) has estimated their the short term production credit requirements in 1978-74 will he of the order of Rs. 2000 crores. The estimates for medium and long term credit, which are for the whole of the Plan period are Rs. 500 crores and Rs. 1500 crores respectively.
7.76 Cooperatives will continue to be the principal agencies for agricultural credit. It is estimated that cooperative short-term and medium-term credit will expand from the present level of Rs. 450 crores per annum to Rs. 750 crores in the final year of the Fourth Plan. As regards long-term credit, the land development banks which have made significant progress in recent years, are well organised to handle loan operations of over Rs. 1000 crores over the Plan period. However, on the basis of financial resources now in sight, a target of Rs. 700 crores has been fixed for the time being. The detailed programmes relating to cooperative credit institutions are spelt out in the chapter on Cooperation.
7.77. While, as in the past. cooperatives will have to be strengthened and treated as the principal agency for agricultural credit, the approach in the Fourth Plan will be to ensure that agricultural production is not inhibited by the weakness of the cooperatives. In areas where the cooperative credit structure is weak. there will be a special effort to provide alternative institutional sources. The policy in the Plan will be to institutionalise agricultural credit to the maximum extent possible and to reduce direct loaning by Government to the minimum. Among the alternative agencies will be agricultural credit corporations, to be set up tinder a law enacted by Parliament in States where cooperative credit structure is unequal to the task of providing adequate agricultural credit. The agro-industries corporations are also expected to finance investment through hire purchase of agricultural machinery and pumpsets.
7.78. In the sphere of agricultural credit one of the most significant institutions is the Agricultural Refinance Corporation. Started in 1963, the Corporation has expanded its activities considerably in recent years. Up to the end of 1968-69, the Corpora- tion had sanctioned 233 schemes involving a total outlay of Rs.182 crores , of which the Corporation's commitment is Rs.156 crores.The focus of its financing has rightly been on schemes of minor irrigation which were as many as 125 out of the total of 233.Lately, the Corporation has endeavoured to diversify the scope of its refinancing portfolio so as to include schemes for poultry, dairying, fisheries and even construction of storages.
7.79 Some aspects of the working of the Corporation have to be here even though these are essentially related to the characteristics of the institutions which borrow from the Corporation and of the projects submitted to it for sanction. The relatively undeveloped state of the land development banks in certain States has led to uneven levels of loaning from this institution to different States. This needs to be rectified by improving the structure of long-term cooperative credit in those States as also by persuading commercial banks to participate more in this context than they are doing at present.Secondly the disbursements of the Corporation lag behind the sanctions on account, among other reasons, of delays in project formulation, appraisal and approval. These again represent a series of bottlenecks which need to be removed. These measures are all the more necessary because, in the Fourth Plan, it is contemplated that the Agricultural Refinance Corporation will provide refinance of the order of Rs. 200 crores.
7.80 For meeting the gap in agricultural credit, the potentialities of commercial banks have to be fully mobilised. Following social control, commercial banks had shown an increasing interest in the agricultural sector. The volume of direct agricultural finance outstanding from commercial banks increased from Rs. 5 crores during 1966-67 to Rs. 53 crores in 1968-69. In 1968, a consortium of commercial banks set up Agricultural Finance Corporation with the object of coordinating activities of the constituent banks and rendering them consultancy services.
7.81 Consequent on nationlisation it is expected that the nationalised banks will take further measures to increase their finances for agricultural production and investment. Certain steps have already been taken in this regard. Each district in the country has been allotted to one bank to survey the resources and potential for banking development in that district and offer advice small borrowers-farmers particularly and assist the other primary lending agencies and maintain liaison with Government and quasi-government agencies. The
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FOURTH FIVE YEAR PLAN
lead bank will also assume a major role in the development of banking in that district though it will not have a monopoly in the banking business in that district.
7.82. Various scheduled banks are now embarking on a massive programme of branch expansion with emphasis on unbanked towns or centres. This tempo will be kept up throughout the Plan so that the banking facility is brought as near to the villager as possible. The banks will thus attempt to cater directly to the needs of the individual farmers. They are already setting up some mobile units to increase their coverage of villages from their existing branches. Direct lending to farmers is expected to increase to Rs. 400 crores by the end of the Fourth plan from the commercial banks as against Rs 53.59 crores at the end of June 1969.
7.83 The various institutional agencies catering to the requirements of rural credit will have to function In an integrated and coordinated manner. In view of the large variety of conditions. it will be necessary to make detailed plans for the development of credit and banking in the rural sector on the basis of local conditions. There is, therefore, a need for an area approach on the basis of the district as the unit. This would mean the preparation of credit plan for the district and integrating the plan with other development activities. Within this credit plan, the cooperative sector and the commercial banks will have to work in close coordina- tion.
Agricultural Marketing 7.84. As already stated, one of the key elements in the agricultural- strategy of the Fourth Plan is to aim at improvement of agricultural marketing system in the. interest of the producer. The objective is to see-that imperfections in the marketing system do not act as a constraints on agricultural production. One of the measures proposed for development of the marketing infrastructure is the expansion of the system of regulated markets. At the beginning of the Third Plan, legislation for establishment of such markets was in force in 9 States. Since then, 4 other States have enacted the Agricultural Produce Markets Act. In the Fourth Plan, the remaining States, namely. Assam, Kerala and Jammu and Kashmir, are expected to place the legislation on the statute, book. On the eve of the Fourth Plan, the number of regulated markets and sub-market yards was 1616. About 2100 markets and sub-market yards are yet to be brought under regula- tion. This task will be pursued in the Fourth Plan period.
7.85. Apart from covering more markets by regulation, it will be necessary to expand facilities by way of market yards and other ancillaries in various markets. A recent study has shown that in cer- tain areas such as Punjab, during the post-harvest season of 1968-69, market arrivals increased by 150 per cent over the average of last three years' corresponding period. The capacity for market yards proved to be inadequate for these large arrivals and considerable market transactions began to be conducted outside the market yards thus leading to malpractices. In this context, efforts will be necessary for strengthening and restructuring the market committees with regards to their resources and functions. A beginning has already been made by some market committees to obtain bank finance for improvement of marketing facilities. It will be necessary to enable a large number of market committees to resort to such institutional finance and thereby help in development of the market yards and in the provision of ancillary services, such (is market intelligence. Some of the well developed market committees are also expected to make their contribution to the development of feeder roads for which a beginning 'has been made in a few rural areas. Finally, it will be necessary to evolve a suitable State level machinery for supervising and coordinating the work of regulated market Committees. In this context, several States are contemplating action to constitute State Agricultural Marketing Boards on the lines of these functioning in Punjab and Haryana.
7.86. Another significant programme for improvement of the marketing system relates to expansion of facilities for grading of agricultural produce. At present, there are about 450 grading units operated by various agencies, such as regulated markets, cooperative societies, and central and State warehouses. Despite the progress made in recent years, the overall share of grading in the total trade of agricultural produce still continues to be negligible. that is, around 1 per cent or so of the total value of the agricultural produce marketed. Hence. there is a very considerable scope for expansion of grading facilities. In the Fourth Plan, a programme of another 600 grading units is envisaged. A pilot centre for classing of lint with a view to helping the farmers in determination of the quality of lint and thus enabling them to market cotton in the form of lint, as against kapas at present, will be established at Surat. In addition, demonstration-cum-grading pilot units will also be taken up for certain agricultural commodities.
7.87. To facilitate agricultural exports, compulsory quality control and grading under Agmark which is in operation in respect of 34 agricultural commodities, will be continued. In addition, pre- shipment inspection and quality control under Agmark is proposed to be extended to 10 new commodities. The laboratory facilities for testing the
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AGRICULTURE
purity and quality of the produce, existing at Bombay, Cochin, Jamnagar and Madras, will be further expanded. New laboratories are also proposed to be set up at Tuticorin, Mangalore and Alleppey during the Fourth Plan. Another important scheme in the Fourth Plan relates to Central Agmark Research and Training Institute which will be set up to help in the adoption of technological improvements in the marketing of perishable products like fruits and vegetables. This Institute will also undertake trial and demonstration of new equipment for cleaning, grading, packing, transport and storage and impart training in the commercial use of new techniques.
Agricultural Pricing 7.88. As already indicated in para 7.9. the policy of minimum prices as an incentive to agricultural production, has been given a pointed recognition in recent years. Although the new technology offers a prospect of bigger returns to the producers, their cultivation costs are higher and hence the special significance of under-pinning the production effort by assured minimum prices. It may be added that, while in the past a large portion of the costs of cultivation were imputed, for the new technology an increasing proportion of the costs are necessarily cash costs. If the minimum support prices are to he effective, in facilitating agricultural production, certain aspects of implementation stressed by the Foodgrains Policy Committee (1966) are particularly relevant. These aspects are :
(i) The announcement of prices should be made well before the sowing season;
(ii) In order that the guaranteed minimum support prices may help in creating a favourable climate for Ion-term invest- ment, the prices should be fairly stable over a long period;
(iii) Government should provide wide publicity to the minimum support prices and to the effect that it will be prepared to purchase all the quantities offered to it at those prices;
(iv) Adequate arrangements would be made at important markets for making purchases at the support prices whenever the need arises.
7.89. A policy of minimum support prices for main agricultural commodities, viz., foodgrains, sugarcane, jute and cotton, has already been accepted. However, in the past, the effectiveness of this policy has varied considerably depending on the adequacy of the relevant purchasing machinery, such as the Food Corporation of India, the State Trading Corporation and the cooperative marketing organisations. In the Fourth Plan, efforts will 2,0 be made to strengthen public and cooperative agencies so as to ensure that the purchase operations do in fact benefit the primary producers. As regards jute, a separate corporation is proposed to he set up as soon as possible. Until such a corporation is established, the responsibility for price support purchase Operations will continue to rat with the State Trading Corporation. In regard to cotton, proposals are being worked out for establishing a suitable public agency which will also be entrusted with the responsibility for import of cotton. As regards oil seeds, certain proposals for stabilisation of prices including buffer stock of under consideration.
Storage and Warehousing 7.90. The Fourth Plan programme of storage is based on an integrated view of the requirements of storage for various purposes, namely, storage of buffer stocks and operational stocks of foodgrains by the Food Corporation of India, provision of warehousing facilities for the producers and the trade the Central and State Warehousing Corporations, and the requirements of storage facilities on the part of cooperatives for both the, distribution of agricultural inputs and the marketing of agricultural produce. The total financial requirement for the entire programme has been estimated at Rs. 151 crores, of which a part will be met by the Agricultural Refinance Corporation and commercial banks while the balance has been provided in the State and Central Plans.
7.91. On the eve of the Fourth Plan, the storage capacity in possession of the Union Department of Food, the Food Corporation of India. State Governments, the Central Warehousing Corporation, State Warehousing Corporations and Cooperatives was as Under:
TABLE 8 : Storage Capacity : 1968-69
(million tonnes)
Sl.no. agency owned hired total
(0) (1) (2) (3) (4)
1 Food Department and Food Corpora-
tion of India . . . 2.62 1.26 3.88
2 State Governments 1.40 1.26 2.66
3 Central Warehousing Corporation 0.65 0.31 0.96
4 State Warehousing Corporation 0.23 0.60 0.83
5 Cooperatives 2.60 - 2.60
6 Total 7.50 3.43 10.93
7.92. For storing foodgrains, the total owned capacity at the beginning of the Fourth Plan was nearly 4.51 million tonnes. The effective storage
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FOURTH FIVE YEAR PLAN
capacity available after providing for operational purposes works out 4.0 million tonnes. A part of this capacity will continue to be utilised for storage of operational stocks. About 1.5 million tonnes can be deemed to be available for storage of buffer stock. On this basis, an additional effective capacity of 3.4 million tonnes would be necessary to provide for a buffer stock of 5 million tonnes. For this purpose, a capital outlay of Rs. 73 crores would be necessary. This is expected to be financed partly by governmental loans and partly by loans, raised by the Food Corporation from the banking sources. A sum of Rs. 2 crores has been separately provided for about 200,000 tonnes of additional storage facilities which will he required for storing fertiliser at ports and other strategic points.
7.93. With regard to the expansion of warehousing facilities. the Fourth Plan contains an outlay of Rs. 12 crores for the Central Warehousing Corporation. A part of this Outlay will be utilised by the Corporation for contributing to the equity capital of State Warehousing Corporations. In addition State Plans include a provision of about Rs. 6 crores for State Warehousing Corporations. It is envisaged that the additional capacity to be put up by the Central and State Warehousing Corporations will be of the order of 1 million tonnes. In the cooperative sector, the programme of construction of storage has so far been financed entirely by the Plan funds, In the Fourth Plan the cooperatives will have recourse to banks with refinancing facilities from the Agricultural Refinance Corporation. On this basis, the provision made under the State Plans for cooperative storage is intended to be used essentially as margin money. Cooperatives will establish about 2 million tonnes of additional storage capacity.
7.94. A countrywide 'Save Grain Campaign' was launched in 1965 for the propagation of cheap and effective methods of insect and rodent control among various private agencies storing foodgrains for consumption, seed and sale purposes. Steps were taken to amend Wheat Roller Flour Mills (Licensing and Control) Order to provide for better storage in the roller flour mills. State Governments were also requested by the Government of India to make suitable amendments in the relevant Foodgrains Dealers' Licensing Orders to make it obligatory on the part of the traders to undertake suitable measures for the avoidance of wastage of foodgrains while in storage. Most of the States have already made the necessary amendments. It is proposed to affect the necessary legal change in the remaining States during the Fourth Plan period. To intensify the campaign further, it is proposed to train the traders, millers and cooperatives in scientific methods of foodgrains storage and to popularise cheap and effective post control techniques.
7.95. Research and training are essential for the development of scientific storage. These activities are being undertaken by a number of organisations such as the Indian Grain Storage, Centre, Hapur and the Central 'Food Technological Research institute, Mysore. Specific area in which research and training are proposed to be strengthened relate to the requirements of material for storage construction, its cost and management. The Central Warehousing Corporation has already introduced extension services for the promotion of scientific storage among stocking of agricultural producer in the private sector. It is proposed to extend this activity through the State Warehousing Corporations.
7.96. A recent development of some promise relates to introduction of metal storage bins at farm level for the protection of grains from rodents and insects. A pilot scheme has been taken up for the purpose. Under this scheme, metal bins will be supplied to the farmers on installment basis and they will be rendered technical help for installation and maintenance of such bins. Apart from this pilot scheme, in certain areas, such as Punjab, over 10.000 metal storage bins have been introduced at the farm level largely at the initiative of the farmers themselves. It will be necessary to review the operation of these bins before the programme is taken tip on large scale.
Agricultural Administration and Statistics 7.97. The agricultural administrative system was reviewed by a Working Group in 1963. The Group reported that "unsatisfactory administrative and organisational arrangement was, by far, the most important single factor responsible for inadequate progress in the sphere of agricultural production". Since then, attempts have been made to revamp agricultural administration. At the national level, closer administrative coordination has been sought to be achieved between the different Ministries concerned with agricultural production. The Union Department of Agriculture has been reorganised and strengthened. Also, at the Centre, a Cabinet Committee on Food, Agriculture and Rural Development has been constituted to deal with policy issues. At the State level, the Working Group on Inter Department and Institutional Coordination for Agriculture Production (1963) had recommended that the responsibility for administrative coordination should be placed on a senior officer functioning as Secretary-cum-Agricultural Production Commissioner. Several States have already implemented this suggestion.
7.98. A further aspect of administration, which has to be worked,out in the Fourth Plan, relates to the relationship between the agricultural universities and the State departments of agriculture. Except in one or two States no effective liaison appears to have developed so far between agricultural universities and the extension personnel of the, State Departments. It will be necessary to take
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AGRICULTURE
measures to demarcate the functions and responsibilities between the agriculture universities and the State departments of agriculture, animal husbandry, and fisheries and to promote functional collabora- tion. It is contemplated that, while agricultural universities, besides being in charge of teaching and research, will also deal with extension education, the task of extension to the farmers will be handled primarily by the extension personnel with the State Governments. To the extent that agricultural universities succeed in bringing the latest research findings to the extension agency of the departments of agriculture in the States and feed back field problems to the research stations and laboratories, the objective of meaningful coordination based upon an active link between the university and the State department of agriculture will move nearer accomplishment.
7.99. Agricultural statistics are an important tool for agricultural administration-and planning. Efforts have, therefore, been continuously made to improve the quality, content and coverage of agricultural statistics, particularly those relating to area and production of crops. At present, the estimates of acreage under crops are compiled on the basis of complete field to field enumeration by the primary reporting agencies in all the States except West Bengal, Orissa and Kerala, where the crop acreages are estimated by the method of random sample surveys. Statistics of yield of principal crops in all the. States are based on the method of random sample crop cutting surveys. While the existing system of collecting data on area and production is quite comprehensive, experience has shown that there is a scope for further improvement in the following directions:
(i) Reduction in time lag in the availability of the estimates of area and production;
(ii) Strengthening of supervision over area enumeration and yield estimation work done by primary reporting agencies;
(iii) Providing objective advance estimates of production of crops for policy and administration purposes.
7.100. In order to effect the required improvements suitable measures are propose to be taken under the Fourth Plan. A Centrally sponsored scheme for timely reporting of estimates of area and production of crops has already been formulated. This scheme is already being implemented in Uttar Pradesh, Maharashtra, Mysore and Bihar, and is proposed to be extended to other States. This scheme envisages the collection of data relating to areas under high yielding and other improved varieties of crops, and also yield rates for irrigated and unirrigated areas separately.
7.101. There is need for information regarding size and structure of holding and other related items (by size of holdings) like land utilisation, cropping patterns, number of live-stock and number and types of agricultural implements for formulation and execution of plans for agricultural development on regional and operational unit basis. With the launching of the new strategy for agricultural deve- lopment, it has become all the more necessary to have comprehensive holdingwise data for assessing the impact of these programmes and to plan for future. It is proposed to collect this data by participating in the F.A.O.'s programme of World Agricultural Census, 1970.
7.102. A comprehensive scheme for studying the cost of cultivation of principal crops in the country on a continuous basis Is proposed to be undertaken during the Fourth Plan period for the purposes of obtaining data oil cost of production which will be useful for formulation of price policy. The scheme is to be implemented in various states and regions in the country.
IV
PROGRAMMES FOR SPECIAL CLASSES AND AREAS 7.103. One of the two main objectives of the Plan, as already indicated, is to extend the benefits of development to the smaller cultivators and the under-privileged sections of the rural population. This objective is derived from both social and economic considerations. Numerically, the rural producers largely consist of "small" holders who, for this purpose, may be roughly defined as those, whose holdings are 2 hectares or less. There are also agricultural labourers defined as those who depend on agricultural wages for more than half of' their income. The small holders, and the agriCultural labourers represent 52% and 24% respectively of total rural households. On the other hand, the pattern of land holding is such that only about 19 per cent of the cropped area is comprised within small holdings. In this uneven situation, the new agricultural technology tends to add a further dimension of disparity between those who have the resources to make use of it and those who have not. There is thus the danger of emergence of a sharp polarisation between the more privileged and less privileged classes in the rural sector, the privilege in this instance relating to the resources and tools of development. In the sphere of credit and related inputs, for example, the underlying facts are prominently brought out in the Report of the All India Rural Credit Review Committee (1969) whose recommendations concerning the establishment of small farmer's development agencies have since been accepted and enlarged in the Plan.
Small Farmers and Agricultural Labour 7.104. While the handicaps of small farmers differ from area to area. the major factors are fragmentation of holdings, insecurity of tenure, inadequate and untimely supply of inputs and water,
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FOURTH FIVE YEAR PLAN
lack of credit facilities and unsatisfactory arrangements for marketing and storage. Various studies, including those conducted at the instance of the Planning Commission, show that the small farmers are not less progressive than the large farmers in their willingness to adopt modern inputs and cultural practices. The approach to the problem of small but potentially viable farmers (generally those with holdings under two hectares) is not that of developing a different technology but that of enabling such farmers, by suitable means to participate in the available technology, In the Fourth Plan, this is sought to be achieved by a number of measures, both general and specific. The general measures, which extend to the country as a whole, are complementary in character and pertain to a number of spheres including minor irrigation, agricultural credit and, animal husbandry. A large amount of public investment is proposed for community works such as tanks and tubewells to benefit small farmers who, would not be individually able to provide themselves with these facilities. Such minor irrigation works May be constructed by the State Governments, panchayati raj institutions or other appropriate authorities. As regards agricultural credit, if is proposed to take a number of steps for reorienting the general loaning policies and procedures of cooperative institutions in favour of the small farmers. These measures are indicated in the chapter on Cooperation. It Is also envisaged that the Agricultural Refinance Corporation will provide assistance for schemes on an area basis designed to enable the small farmers as well to take advantage of agricultural dairying, poultry and other programmes.
7.105. The second direction of effort towards assisting the existing small but potentially viable farmers will be in the form of specific projects in about 45 selected districts. It is contemplated that a small Farmers' Development Agency will be set up in each of these districts.
7.106. Certain studies carried out on the problems of small farmers in different areas have shown that there can be no generalised scheme for uniform application. With reference to local resources and requirements, appropriate schemes have to be drawn up for the benefit of those small holders who have just enough land to become surplus producers if they adopt improved techniques on the basis of support in terms of irrigation credit and other supplies and, in some cases, by taking up subsidiary programmes such as poultry or dairying. The study of local problems, and in rotation to them, the formulation and implementation of local measures will be entrusted to a Small Farmers' Development Agency set up in each of the selected districts. In order to provide a continuity of finance and to the requirement, a common basis for these extensive projects, the scheme has been included in the Central sector of the Plan.
7.107. The main functions of the Small Farmers' Development Agency will be to identify the problems of the small farmers in its area, prepare appropriate programmes, help to ensure availability of inputs, services and credit and evaluate the progress from time to time. To the maximum extent possible, this will be sought to be done through the existing institutions public cooperative and private as also local authorities such as Zila Parishads The agency may give assistance to small farmers in respect of ether services, such as land levelling, machinery and marketing. Whether necessary the agency may itself undertake certain services for the benefit of small farmers. With a view to stimulating the flow of cooperative credit to such cultivators, it will provide grants to the central cooprative bank, the agricultural credit societies and the cooperative land development bank in the area and help them to build up special funds for covering the risks, it any, apprehended in such financing. In addition they will provide a subsidy to these institutions for strengthening their managerial and supervisory staff for this purpose. It will also draw up model plans for investment and production activities to be under- taken by small farmers operating under different sales of conditions.
7.108. As regards the typically non-viable small farmers, they fall basically into the same category as landless labour. Their submarginal holdings do not fully employ the available family labour and hence the potential solution lies elsewhere than meely in crop husbandry. According to the Census in 1961, there were about 31 million agricultural labour in the country. The impact of the new agricultural labour has been varied. In certain areas , with greater intensity of cropping, agricultural income has tended to by-pass the sub-marginal cultivator and agricultural labourer. In several areas, these groups has also suffered by a growing disinclination on the part of the bigger farmers to lease out their lands.
7.109. In the Fourth Plan, efforts will be made to deal with the problem of sub-marginal cultivators and agricultural labourers by two sets of measures. The first set of measures lies in sphere of land reforms and is indicated in the section on Land Reforms. The second set of measures has for its aim the generation of employment oriented activities.
7.110. For the large class of sub-marginal farmers, agricultural labour and landless labour the remedy lies in the provision of supplementary occupations and other employment have to be integrated into local planning. This is sought to be integrated into local planning. This is sought to be done in a series of 40 projects located in different districts all over the country. These projects would, as far as possible, be market-based (e.g. centered round towns or other areas of demands) so that there is scope for development of employment-oriented activities, such as poultry and dairy farming. Stress will be laid on
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using the funds for development of various marketing and processing facilities with a view to giving organised support, preferably through cooperatives, to the activities of submarginal cultivators and agricultural labourers. Both in content and coverage these projects will of course be distinct from other projects designed for the potentially viably farmers although, geographically, the areas of operation of two sets of projects may coincide in appropriate contexts. Where this happens, it may be possible to use the, Small Farmers' Development Agency as the instrument for executing both the schemes. In the other cases, a separate but analogous agency would have to be set up for the purpose.
7.111. While, for the development of small farmers and agricultural labour, the direct financial support from the Plan will be of the order of Rs. 115 crores, it is necessary to stress that these financial provisions are expected to help in attracting these projects a considerable volume of credit from various institutional sources. On the basis of the small farmers' projects approved so far, it is estimated that the total flow of short-term credit under 45 small farmers development projects is likely to be of the order of Rs. 90 crores per annum when all these projects are fully in operation. The long and medium term credit likely to be made available to the project areas during the Plan period may be placed at approximately Rs. 170 crores. As regards 40 projects for the development of sub- marginal cultivators and agricultural labour, the institutional credit support will not be as substantial. However, it is provisionally estimated that all annual short-term credit of about Rs. 10 crores is likely to be made available in the project areas. The corresponding estimate for medium and long-term credit is Rs. 30 crores. Thus the total institutional support likely to be forthcoming in the long run for the two sets of projects is of the order of Rs. 300 crores, comprising short-term credit of Rs. 100 crores per annum and medium and long-term credit of Rs. 200 crores for the total duration of the projects.
Dry Earning 7.112. In the context of spreading out the benefits of agricultural development, the Fourth Plan is vitally concerned with dry land farming areas. Dry land farming is sometimes equated with rain-fed farming. However, for operational purposes, it is necessary to distinguish dry land farming areas from absolutely aid or desert areas (with average rainfall below 375 mm.) on the one hand and areas having a relatively assured rainfall of 1125 mm. and above on the other. The availability of irrigation facilities has also to be taken into account as significant factor modifying the intensity of dry., land farming in different rain-fall zones. Keeping these aspects in view, it is estimated that, in the country as a whole, there are as many as 128 districts which have low to medium rainfall under 1125 mm. annually and which also have very limited irrigation facilities. These districts account for nearly 68 million hectares or about one half of the total net sown area. Out of these districts the very high intensity dry farming areas (i.e. with rainfall ranging from 375 mm. to 750 mm. and irrigated area below 10 per cent of the cropped area) mainly cover central parts of Rajasthan, Saurashtra region of Gujarat and rain shadow region of Western Ghats in Maharashtra and Mysore. Twenty five districts fall in this area and account for about 18 million hectares of the net sown area. Only about 5 per cent of the cultivated area is under irrigation. These areas are characterised by the maximum extent of instability in agricultural production and therefore, present difficult problems. Out of the remaining districts, 12 districts already have, irrigation covering about 30 to 50 per cent of the cropped area and hence the problems of these dis- tricts are no longer acute. The remaining 91 districts, spread out mainly in Madhya Pradesh, Gujarat, Maharashtra, Andhra Pradesh, Mysore, Uttar Pradesh, parts of Haryana and Tamil Nadu, represent the typical dry land farming tract. The total net sown area comprising in these districts is estimated at about 42 million hectares of which about 5 million hectares are irrigated. A large part of these areas receive an annual rainfall ranging from 750 receive an annual rainfall ranging from 750 which hold good promise of respondent to a new package of technology.
7.113. In the Second Plan, 45 Dry Farming Projects, covering about 400 hectares each, were taken up in different States and were extended through the Third Plan. These projects aimed at demonstrat- ing the benefit of improved dry farming practices in low and erratic rainfall areas. The scope of these demonstrations included engineering measures like, contour-bunding and terracing and agronomic practices relating to water conservation. A limited measure of success was reported to have been achieved by these projects.
7.114. All important objective of the Fourth Plan is to make a significant impact on dry farming. The programme envisaged is two- fold. viz., research into improved dry farming technology and application of such technology to dry farming areas.
7.115. Research on dry farming techniques is being conducted at a number of centres as also at the Central Arid Zone Research Institute at Jodhpur. What is necessary is the development of an integrated package of technology. For the Fourth Plan, research is proposed to be taken up on the basis of an All India Coordinated Project. Under this project research at a number of centres repre- senting various agro-climatic and soil conservation conditions will be taken up. Different research aspects such as breeding drought resistant varieties, water harvesting, minimum irrigation, minimum
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tillage, fertiliser application including foliar application, soil and moisture conservation are included within the scope of the project. In addition, research programmes are also proposed to be intensified at the Central Arid Zone Research Institute, Indian Grassland and Fodder Institute and eight Soil Conservation Centres. Further, in the all India Coordinated project relating to crops such as cotton, care will, be taken to see that the problems of these crops in rainfed condition receive proper attention. It is also contemplated that agricultural universities will concern themselves with dry farming research in their normal research programmes.
7.116. Besides research, specific programmes for application of packages of technology will be taken up in the dry farming areas. For this purpose, the Plan includes a new Centrally sponsored scheme with an outlay of Rs. 20 crores. This provision, which will be supplemented in different ways as later indicated, will be reviewed in due course in the light of the progress of the scheme.
7.117. On the basis of available research findings the main consituents of the new technology for dry farming will be :
(i) Soil Management;
(ii) Harvesting of water,
(iii) New crop varieties; and
(iv) New agronomic practices,.
Soil management will include measures relating to soil structure, soil fertility and correction of alkalinity of the soil. As regard harvesting of water. it is observed that most of the rainfall in dry areas is received from the South West monsoon and because of the poor soil structure and the undulating topography, much of the moisture is lost. Hence steps are necessary for popularisation of modern water harvesting procedures, including the use of aluminium foil and polythelene film. An important aspect will relate to the introduction of new crop varieties. The development of quick yielding and photo- insensitive varieties has opened up new possibilities for instance short duration varieties of caster, arhar and jowar have been developed. It will be necessary to extend the adoption of these varieties so that double cropping may be practised over larger areas. Aming the new agronomic practices would be included the application of nutrients through foliar feeding.
7.118. For undertaking the application of new technology, it is contemplated that pilot projects would be organised under the Centrally sponsored scheme included in the Fourth Plan. Each project will be linked up with one of the main or sub-centres for research in dry farming. It is proposed that in the first year, about 1,000 hectares of compact area, may be covered by each project. In the second year, depending upon the success in the initial year, the area may be covered by 4,000 hectares and in the last two years about 10,000 hectares. The new technology of development of dry areas would require much more detailed and integrated planning and coordinated action than in the case with irrigated areas. Intensive training programmes for extension personnel will have to precede the introduction of the new technology. For imparting training the services of agricultural universities and institutions in all dry areas will be utilised.
7.119. Apart from the special scheme for development of dry farming included in the Centrally sponsored sector, it is contemplated that other Plan outlays will be available for helping to improve the economy of dry land farming. A sizeable outlay has been provided in the State Plans for promoting soil conservation measures. It is expected that the bulk of this outlay will be utilised by the State Governments in dry areas. The same will also apply to some of the provisions in the State Plans earmarked for development of animal husbandry and dairying. Again, ill the Centrally sponsored sector, funds have been provided for development of commercial crops such. as oilseeds and cotton. Since these crops are grown largely in areas with less than 75 cms. of average rainfall, it contemplated that more than two-third of the outlay under this programme will also be used in the areas characterised by dry farming. It is estimated that the total financial support to the development of dry land farming under various Plan schemes will be of the order of Rs. 150 crores.
7.120. Apart from outlays included in the Plan, the Central Government annually provides about Rs. 25 crores from the budget as grants to famine affected areas. Over the Fourth Plan period, nearly Its. 100 crores are likely to be available from this source. The bulk of this amount can be so deployed in the areas chronically affected by drought as to generate considerable employment in the rural sector largely related to a pre-planned programme of rural works. The individual schemes of rural works thus drawn up should be integrated on the one hand with the general programmes of agricultural development in the areas concerned and, on the other, with specific programmes of development for sub-marginal farmers and agricultural labour. All these are aspects which require considerable attention and advance planning if the results obtained are to be commensurate with the outlay both in terms of the rural employment generated and the development achieved,
Desert Areas 7.121. Repeated families and prevalence of scarcity conditions in desert areas of the country have brought to the fore the need for developing such
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areas oil a permanent basis. A Central sector scheme of desert development has been formulated under which pilot projects involving schemes of soil conservation, afforestation, minor irrigation and agricultural development would be taken up in Gujarat, Haryana and Rajasthan. A provision of Rs. 2 crores has been made.
Selected Command Areas 7.122. During the period covered by the Annual Plans (1966-69), a Centrally sponsored programme of ayacut development was formulated for the purpose of ensuring more speedy agricultural development in the wake of irrigation projects. Attention was paid to the infrastructure as also to measure for intensive farming. It was expected that this integrated programme would cover about 0.8 million hectares in the command areas of eight river projects. The projects themselves were called area development schemes. In the Fourth Plan, ten such schemes will be executed in different command areas, namely, Tungabhadra, Nagarjunasagar, Kosi, Kangsabati, Rajasthan Canal, Mahi-Kadana, Tawa, Jayakwadi stage I, Cauvery Delta and Pochampad. Under a Central sector scheme, assistance will be provided for creation of marketing complexes and certain ancillary facilities such as link roads and storage. Other items will include land shaping and levelling, provision of irrigation outlets and field channels and the attendant drainage and water scheduling for crop requirements in order to make optimum use of water and to maximise farm income through proper crop sequence. Arrangements will also be made for custom service for agricultural operations. These will be supplemented with processing facilities for agricultural commodities. Apart from the command areas of irrigation projects, there will be a few other special areas where integrated development of agriculture and allied activities will be taken up.
V
PROGRAMMES FOR SPECIFIC CROPS
Wheat 7.123. For the Fourth Plan, a base level of 18 million tonnes of wheat has been assumed. This is also the level of production actually recorded in 1968-69. The target is to increase the production by six million tonnes of wheat, thereby raising the total production to 24 million tonnes. A substantial part (5 million tonnes) of the increase in production is expected out of the high-yielding varieties programme. This will be sought to be achieved largely by extension of the area under high-yielding varieties. This extension will be to the extent of 2.9 million hectares against a base level of 4.8 million hectares. It may be clarified that this base level is higher than was envisaged in the Draft Fourth Plan because of accelerated coverage of HVP wheat during 1968-69. It is contemplated that, by stepping up the dosage of fertiliser and other cultural practices, a larger yield will also be achieved from the area already under high-yielding varieties. During 1968-69, Punjab was able to achieve an average yield of 2,167 kgs. per hectare. Next to Punjab, the highest average yield of wheat was recorded in Haryana at 1,701 kgs. per hectare. The other wheat growing States are tar behind Punjab and Haryana. There is thus considerable scope four improvement in wheat productivity.
7.124. Apart from programmes of extension and development, wheat will continue to receive further support by way of research into specific problems. Some of these problems are listed below :
(i) The high-yielding varieties which leave been introduced in recent years do not possess the desired grain quality, including chapati-making qualities, comparable to that of the tall, indigenous wheat varieties. The earlier varieties, like Larina Rojo and Sonora 64, were accepted by Indian growers for their very high-yielding ability, but were not liked for the red grains and other inferior grain quality attributes. Although the later amber-grained varieties, especially Kalyanasona and Sonalika have acceptable grain appearance, their chapati-making qualities leave scope for improvement. The task of improving grain appearance and quality of the high-yielding varieties needs further attention.
(ii) More work is also needed on the development of high-yielding varieties with high protein content, especially with a better aminoacid balance including higher lysine content. Among the high-yielding varieties, Sharbati Sonora has a somewhat higher protein and lysine content; but it is highly susceptible to loose smut and not very resistant to rusts.
(iii) The disease resistance of the high-yielding varieties has to be greatly improved. Another problem is that newer races of the rust organisms can arise in nature, making the earlier resistant varieties sus- pectible. Constant surveillance has to be maintained to detect the origin of new and more virulent races of the rusts and the other diseases of wheat. Besides resis- tance to the rust diseases (black, brown and yellow rust), each of which has numerous races, resistance is needed against other diseases, like loose smut.
(iv) Although insect pests are at present not a serious problem on wheat crop, some advance research is necessary, based on Mexican and to some extent recent Indian
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experience, for breeding insect resistant varieties of wheat and also for evolving schedules of chemical control of insect pests.
(v) The new dwarf wheat varieties are distinctly more resistant to lodging than the desi wheats, but even these have been found to lodge in certain parts of the country under heavy regimes of fertilisation and irrigation. Research is needed to breed highly lodging resistant varieties by incorporating into them 3-gene dwarfness and/or high straw strength.
Rice 7.125. The largest single stake in the agricultural programme for the Fourth Plan is provided by the target for rice, the achievement of which is crucial to the success of the Plan. In regard to rice, the base level assumed for the Fourth Plan is 39 million tonnes, which is also the actual production of 1968-69. The increase projected is 13 million tonnes of which the high-yielding varieties programme accounts for as much as 11 million tonnes. Again, in the high-yielding varieties programme, the bulk of the increase is contemplated out of extension in coverage from a base level of 2.6 million hectares to a cumulative level of 10.1 million hectares in 1973-74.
7.126. So far, the high-yielding varieties programme has not made a significant overall impact on increase in yield in rice. The new rice varieties require more complex management particularly with regard to water. Furthermore, in large parts of the country these are susceptible to pests and various diseases. Generally speaking, adoption of new agronomic practices have not kept pace with the requirements of the programme. Hence very considerable stress will be necessary in the Fourth Plan on extension and development work relating to rice.
7.127. As regards research, special attention is proposed to be devoted to the following problems and tasks :
(i) The disease and pest problems of high-yielding varieties of rice are many and they are very pressing. Research of their control by breeding disease and pest resistant varieties, and/or by developing effective measures for chemically Controlling them, is most urgently needed. The main diseases to content with are the bacterial leaf blight, tungro and a few other virus diseases. Helminthosporium leaf blights and the blast disease, and the most important pests are the stem borers and the gall midge. Donors of genetic resistance to all these diseases and pests have already been identified and breeding work for disease and pest resistance is now vigorously apace.
(ii) The diseases, especially blast and bacterial lief blight, are known as "strains" or physiologic races- different races occurring in different parts of the country. They have to be carefully identified so that a variety bred for resistance in one part of the country does not become susceptible in another part where different races of the disease occur.
(iii) The grain type of the new, dwarf high-yielding varieties is coarse and the cooking quality not quite satisfactory. The newer varieties bred in India--e.g. Jaya, Padma and Hamsa, have better grain and cooking quality. But there is still much room for increasing their yielding ability and improving their grain type and cooking quality. The superior grained Padma and Hamsa, and also the dwarf Basmati cultures recently developed by IARI, are not as high-yielding as IR-8 and Jaya.
(iv) Problems of water management and allied practices relative to paddy cultivation are still major outstanding problems requiring research. Deficiency of micronutrient elements in the soil (e.g. of zinc which causes the Khaira disease in extensive areas) also needs to be studied.
(v) Research is needed for developing high-yielding varieties, with slender grains with or without scent and with superior cooking qualities. These would be very valuable for export. The breeding of dwarf basmati types is a step in this direction; but much more work is yet needed.
7.128. Rice production in the Fourth Plan is also linked very vitally to certain programmes concerning the post-harvest aspects of drying, threshing and milling. The lack of dormancy of the new varieties makes drying mandatory when they are harvested before the end of the rainy season. Some progress his already been made in the installation of artificial dryers in Tanjore district. In the light of the experience available, further action in this regard will be necessary. As regards rice milling, it is observed that the total number of paddy processing units in the country exceeds 44,000 of which a preponderant majority are traditional hullers. A beginning towards modernisation, of the rice milling industry was made in 1963 when seven plants were imported from abroad. Six of these plants were set up in the cooperative sector while one was established in the public sector. In addition, the Food Corporation has in hand a programme for establishing 24 modern rice mills. So far, four of
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these mills have been set up. It is contemplated that the remaining mills will also be commissioned by 1970-71.
7.129. The modern rice milling programme undertaken so far consists broadly of two parts. The first part is concerned with the modernisation of the milling plant along with the introduction of an improved par-boiling system and mechanical driers. The other part relates to the establishment of silo storage alongwith mechanical handling equipment. As regards the first part, evaluation made by an expert team has shown that modern rice milling machinery is capable of giving an out-turn of 68 to 74 per cent of raw rice from paddy which, oil an average, is higher by 25 per cent than the sheller type mills and 6.6 per cent than the huller mills. The quality of rice and bran being obtained hi the modern rice mills is also superior to that obtained from conventional mills. The economics of silo storage and mechanical handling are yet to be fully assessed. In the earlier units, the per tonne cost of storage varied from Rs. 360 to Rs. 479. Recently attempts have been made to improve the design and lower the cost. The results of the improved design are yet to be evaluated. In view of these facts, the main focus of future activities is on modern rice mill machinery rather than on silo storage which has, so far, accounted for nearly 60 to 70 per cent cost of the modern rice mill. In the Fourth Plan, programmes have been drawn up for establishment of additional modern rice mills in the cooperative sector and also for modernisation of existing rice mills with the cooperatives. Assistance for this purpose will be provided by the National Cooperative Development Corporation. In order to facilitate the modernisation of the rice milling industry in the cooperative and private sectors, action has been taken to license certain manufac- turers. Provision has also been made in the Plan for imparting training in modern rice milling technology.
Maize, Jowar and Bajra 7.130. In the Fourth Plan, the base level assumed and the targets proposed for these three cereals crops are as follows :
TAbLe 9 : Targets Proposed for Maize, Jowar and Bajra
(million tonnes)
sl. no. item base level cumulative
level in
1973-74
(0) (1) (2) (3)
1 maize 6.2 8.0
2 jowar 10.0 15.0
3 bajra 5.1 7.0
7.131. It was earlier anticipated that, on the eve of the Fourth Plan, an area of about one million hectares would be covered by hybrid maize. The actual achievement, however, has been only 0.4 million hectares by the end of 1968-69. This shortfall has been mainly on account of the factors connected with prices and marketability.
7.132 In hybrid maize, a significant step forward in research has been the development of composite varieties These varieties have a somewhat lower yield potential than the best hybrids but have a wider range of adaptability and require less frequent seed replacement. The country has at, present six composites in addition to four high- yielding hybrids. Nonetheless, on account of the constraint mentioned above, the target of high-yielding varieties of maize in the Fourth Plan has been scaled down from 2 million hectares to 1.2 million hec- tares. As regards hybrid bajra and Jowar, the targets of Draft Fourth Plan have been retained as these crops, on account of yield differential, continue to be remunerative even when cultivated in poor lands with varying rainfall.
Pulses 7.133. One of the serious problem areas in the Fourth Plan relates to pulse production. As brought out in paragraph 7.12, the average Output per hectare of pulses has been showing a negative growth rate. While in 1967-68, pulse production touched a level of 12.10 million tonnes, it came down to 10.41 million tonnes in 1968-69. Nonetheless, for the purposes of the Fourth Plan, the base level has been assumed as 12.5 million tonnes and the Fourth Plan production has been projected at 15 million tonnes.
7.134. Apart from various programmes of extension and research and reorientation of minimum support price for some of the pulse crops, the main thrust of effort in the Fourth Plan will relate to re- search. In 1965, an All-India Coordinated Pulse project was initiated to undertake a nation-wise research effort on pulses with headquarters at the Indian Agricultural Research Institute, two regional centres and four sub-centres. Under this project All. India coordinated varietal trials have been made. These trials have shown that several varieties have much wider adaptation than was known before. While thus some progress in regard to pulse improvement is under way, considerable further action is necessary. The main tasks to which research on pulses will be directed are as follow :
(i) Breeding of suitable varieties of different kinds of pulses for fitting into multiple-cropping or relay- cropping systems.
(ii) Breeding varieties with synchronous fruiting (especially in moong and tur or arhar) where pickings are required. Uniformly
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FOURTH FIVE YEAR PLAN
ripening varieties are desirable for growing on extensive areas and saving on labour cost and for minimising loss in yield due to shattering of the fruits.
(iii) Breeding of suitable varieties of urd for mixed cropping in North India, and also of moth which grows well under semi-arid and arid conditions.
(iv) Breeding of disease resistant varieties-e.g. for resistance to the wilt disease in tur or arhar, wilt and blight disease in Bengal gram and bacterial and virus diseases in the other pulses.
(v) Insect pests (including especially the good borers) cause heavy losses to yield in pulses. They must be controlled either by developing resistant varieties or by newer insecticidal schedules. Research is also needed for preventing damage to pulses in storage, which is very heavy.
(vi) The legumes benefit from rhizobial cultures. Pulses being the most important legumes in India, are to be studied with regard to their responsiveness to bacterial cultures.
Cotton 7.135. In the fourth Plan, the target in respect of cotton is to increase production from a base level of 6 million bales to 8 million bales. The core of the strategy to realise the target will be package programmes which will be extended to cover 2.34 million hectares by 1973-74. Under a Centrally sponsored scheme, intensive cultivation will be sought to be introduced in an area of about 0.5 million hectares annually in the irrigated and assured rainfall areas. Plant protection through aerial and of 800,000 hectares. In addition it is envisaged to undertake foliar spray of urea on demonstration basis over an annual area of 22,500 hectares of irrigated cotton. Provision has also been made in the plan for production of nucleus and foundation seed by the Research Institutes and the agricultural universities. The National Seeds Corporation will undertake further multiplication of foundation seed into certified seed especially in case of newly evolved varieties of long staple and shorter duration.
7.136. One of the major handicaps of cotton has been the fact that bulk of the crop (about 86 per cent) is grown under unirrigated conditions. Irrigated cotton limited to punjab, Rajasthan and parts of Maharashtra. It is only recently that cultivation of cotton in the rice-fallows of Andhra Pradesh has bee taken up. Efforts will be made to encourage irrigated cotton larger areas. It is anticipated that an additional area of about 0.3 million hectares will come under irrigated cotton, including the area of double cropping,by the end of the Fourth Plans.
7.137. The demand for cotton over the years, has moved from short medium staple to extra long staple. Hence special stress will be laid on development of Sea Island Cotton which falls in the category of extra long staple. This variety is higher susceptible to jassid attack and a minimum of 10 to 13 spraying are required to raise the crop successfully. Hence vigorous plant protection measures are contemplated. In the past efforts to develop this variety also failed because of limitations of irrigation. Special efforts are therefore, contemplated to develop Sea Island Cotton by augmenting irrigation facilities in areas suitable for this variety.
7.138 Recent research has shown that India can sucessfully cultivate the Egyptian type high quality cotton. A recently developed variety Sujata gives good yield of kapas and fibre capable of spinning of counts as high as 99's Its cultivation in Tamil Nadu and some of the adjoining States is proposed to be encouraged. Further research will also be directed towards breeding early maturing varieties of high quality cotton.
7.139 The improved varieties of the American type cottons produced so far in India have, despite long staple length in some of them not given varieties superior to 45s or 50s counts(the recently- evolved. Tamil Nadu variety, MCU-5, and Badnawar of M.P. are only a few exceptions). Research is needed in this group of cotton for breeding varieties having early maturity, large bolls, and superior fibre quality capable of spinning counts beyond 50s, and preferably beyond 70s. Early maturity will enable double cropping system, e.g., cotton-wheat and cotton in rice fallows in irrigated areas.
7.140 Other problems of cotton to which research is proposed to be directed are as follows :
(i) Breeding of varieties for high yields, the aim being a yield of at least 5 bales per hectare.
(ii) Provision of varieties resistant to diseases (blackgram) and pets (jassids, bolworms) which take a heavy tool of cotton crops.
(iii) Development of agronomic practices for helping in maximisation of yield.
Jute 7.141. The Fourth Plan target for jute is 7.4 million bales as expanded with a base level assumed at 6.2 million bales. The development programmes for jute include a special package programme in selected areas under a Centrally sponsored scheme. Since folier application of urea has been found to increase yield of jute substantially, stress will be laid on supply of urea and low volume power spra-
85
yers. During 1967-68, aerial spraying of urea on jute was tried and found useful. Hence a further programme of aerial spraying of urea is also envisaged. Provision has also been made for supply of certified improved seeds in the special package areas which are likely to cover about 84,000 hectares. Since the quality of fibre is dependent on correct retting, a special programme for improving retting facilities is also envisaged.
7.142 The following are the specific problems and tasks to which agriculture research in jute will be pointedly directed :
(i) As the existing improved varieties like JRO-632 and JRO-753 do not satisfy the needs of all the jute growing tracts, varieties suited to local conditions needs to be evolved, e.g., drought-resistant varieties in U.P., flood tolerant types in Assam.
(ii) Breeding of selected day neutral types suitable for early sowing in different agro-climatic zones.
(iii) Development of improved methods of retting with a view to improving the quality of jute fibre.
(iv) Measures to deal with specific diseases to which the crop is vulnerable in particular areas, e.g., field cricket menace in Assam, leaf mosaic disease in North Bengal and Assam.
(v) Jute is facing competition from synthetic fibre in foreign countries and from foodgrain crops within the country. Researches on development of suitable cropping pattern to fit in jute with foodgrain crops in rotation are being intensifies. Likewise research on jute technology has to find alternative uses for this fibre in addition to conventional uses.
7.143 While in the Fourth Plan efforts will continue to be made to achieve a varietal improvement in jute it is necessary to recognise that there is an obvious limitation in doing so. For jute there is no exotic germ plasm which can be utilised for breeding purposes. Hence for achievement of Plan targets the stress has to be laid on increasing productivity which is possible on the basis of already known technology. The present average production of jute is about 7.4 bales per hectare. For accomplishment of the Plan target what is required is an increase in yield by about 25 per cent. The yields obtained on farmers' fields under the programme of national demonstration show that this increase is easily attainable provided improvements are made in cultural practices and there is wider use of improved seeds and fertilisers. The scope for improvement is highlighted by the fact that at present only about one-third of the area under jute is covered by improved seeds and only about one fourth of the area of jute cropped is fertilised. There is urgent need for purposeful extension programme directed toward a more widespread use of fertilisers and improved seeds.
Oilseeds 7.144 The oilseeds crops continue to present a problem of some magnitude. For the period 1949-50 to 1967-68, the productivity of oilseeds increased only by 0.63 per cent annum. Among the non- foodgrain crops this is lowest rate in yield except for jute. Among the oilseeds groundnut which is the major crop, has shown a still lower growth rate which compares very unfavourable with that of the competing crops. Alongside low and stagnant productivity, the oilseeds economy has also been characterised by sharp year to year fluctuation in production and prices.
7.145 In the Fourth Plan the target is to increase the production 10.5 million tonnes of oilseeds against an assumed base level of 8.5 million tonnes. This will be sought to be achieved by a variety of measures, party in the sphere of development and partly in the sphere of development and partly in the sphere of development and partly in the realm of research.
7.146 So far one of the major limitation in increasing the productivity in groundnut has been the fact that as a kharif crop, it was almost entirely grown under rainfall conditions. It is only recently that cultivation of groundnut has been sought to be extended to irrigated areas, especially as winter and summer crops when yields of a high order have been recorded. It is proposed to bring an additional area of 120,000 hectares through a second crop of groundnut during summer or rabi seasons in Tamil Nadu, Andhra Pradesh Mysore and Orissa in irrigated areas. During the Fourth Plan and intensive package approach will be extended over an area of about 2.5 million hectares. This package will stress the use of phosphatic fertiliser with basal doses of nitrogen as also plant protection chemicals.
7.147 A break-through has been achieved in castor by the development of a new short duration high yielding dwarf variety namely, NPH-1 (Aruna). This variety is responsive to irrigation and high doses of fertiliser and its duration is limited to 125-140 days which is half the time taken by the present varieties. The yield potential. However, is nearly three times. Another short duration hybrid castor GHC-3 has also been developed in Gujarat. In the Fourth Plan, it is proposed to demonstrate and popularise the use of these varieties in various castor growing areas in the country.
7.148 Besides development research in oilseeds is proposed to be intensified. The following are some of the specific aspects to which special attention will be devoted :
(i) Evaluation of drought resistant varieties if groundnut and mustard for being grown under rain-fed conditions.
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FOURTH FIVE YEAR PLAN
(ii) Breeding of short duration varieties of groundnut, having dormancy of seed, for cultivation under irrigated conditions so as to fit into an intensive cropping pattern.
(iii) Breeding of varieties, of groundnut resistant to pest and tikka disease.
(iv) Development of measures for correcting soil acidity in the eastern region where rainfall conditions are otherwise generally favourable for groundnut cultivation.
(v) With regard to mustard, there is need for breeding of early maturing varieties of toria.
(vi) There is also need for standardisation of seed multiplication techniques for mustard.
(vii) In regard to castor, significant sucess has already been achieved in reducing the growth period and increasing the population of the plans. However, further work is necessary with regard to certain agrono- mic problems.
(viii) Intensive researches on breeding, agronomy, soil and water management and diseases and pests and technology of processing, of soyabean will be taken up.
Soyabean 7.149. Soyabean crop has been raised on a limited and scattered scale in the past, particularly in the hilly areas of Northern India. Its cultivation could not be extended to the rest of the country due to several reasons. The main impediments to extension have been the lack of appropriate varieties suited for culture under varying conditions of day length and temperature the difficulty of using the grain for cooking as a pulse, the nutty or beany flavour which is not liked by the people and lastly the lack of suitable markets. Recent investigations have, however, shown that under proper conditions of culture, yields can be significantly improved. There is a good scope for raising it as an intercrop with maize in all such areas where September rains are inadequate for the, cultivation of groundnut. Soyabean, because of its richness in protein (over 40 per cent) is in great demand by the antibiotic industry in the country as also by the babyfood manufacturers. With an Oil content of 18-20 per cent, soyabean offers a good potential for stepping tip the availability of vegetable oils in the country, the demand for which far exceeds the supply. Experience has shown that after the extraction of oil by suitable processing, the Soyabean meat can be profitably used in human dietary as also for cattle feed.
7.150. There is a growing opinion in the country that Soyabean is a promising crop and is potentialities should be fully tapped both for industrial uses and edible purposes. However, before extending the cultivation of the crop, it is considered necessary to organise, in the Fourth Plan, more comprehensive research of Soyabean on a national basis. An All-India coordinated project on Soyabean started functioning form April 1967 and more than 1,000 accessions of Soyabean varieties collected under the scheme from the various parts of the. country as well as from outside are being assessed at various centres, notably at the U.P. Agricultural University at Pantnagar and the Jawaharal Nehru Krishi Vishwa Vidyalaya at Jabalpur. Work is also in progress on evolving suitable agronomic practices and control of diseases and pests.
Sugarcane 7.15 1. In the Fourth Plan, the target is to increase production from a base level of 12 million tonnes to 15 million tonnes of sugarcane (in terms of gur). The programme envisaged for sugarcane development is multi-pronged. Arrangements will be made for Supply of good, disease free seed material to the farmer. Long use of the same seed material and double and triple rationing has resulted in various plant diseases and consequent reduction in the cane yield. In areas where sugar factories have taken positive interest in promoting cane development, significant improvements have been effected both in the quality and the yield or cane. This is particularly true of cooperative sugar factories in Maharashtra and Gujarat and some of the private factories in the South. It is desirable that the sugar in- dustry in general should be involved in propagating better cane varieties and in extension and development work.
7.152. There is need for agronomic research to determine the changes in the time of planting, fertilisation and irrigation in the north Indian sugar belt for increasing yield and sucrose content in the existing varieties. Other aspects to which agricultural research in sugarcane is intended to be directed are outlined below :
(i) Hectare yields of sugarcane, especially in northern India, which has almost 'half the area of sugarcane in the country, are low. Early-maturing varieties, with high yield and high sugar content and recovery, need to be developed.
(ii) Frost tolerant, or frost resistant, varieties are needed, especially for western U.P., Punjab, Haryana and parts of Rajasthan.
(iii) Research is needed in developing varieties which give in one year as much yield, or more, as the adsali crop does in Maharashtra.
(iv) Premature flowering decreases cane yields. Research is needed for controling it by breeding or by chemical and physical means.
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(v) Red rot, wilt and virus diseases cause heavy losses to cane yields and sugar recovery. Research is needed to control them by breeding resistant varieties and by other means.
(vi) Pests--including different kinds of borers -Pyrilla, Melananis scales (e.g. in Maharashtra), also cause heavy losses to sugarcane. Research in-depth, including breeding resistant varieties, chemical control and biological control is needed.
(vii) Much research is needed on mixed cropping with sugarcane with wheat and potato. This will require research in dates of planting, breeding of suitable varieties, methods of irrigation and manuring.
Sugarbeet 7.153. Investigations conducted have shown that sugarbeet can be successfully grown as a winter crop in the irrigated plains in Punjab, Haryana, Rajasthan and western, and terai areas of Uttar Pradesh It is capable of giving yield of 30 to 50 tonnes of beetroots per hectare with sugar content of 15--18 per cent and expected. recovery of 12 to 13 per. cent. At. present both cane yield and sugar recoveries are low in northwestern India. Experiments have shown that the employment of sugarbeet as raw material to supplement sugarcane would help in improving recoveries and extending the sugar season by about two months, resulting in lowering down the manufacturing cost of sugar. The additional benefit is that sugarbeet being a 6-7 month crop, a kharif crop (maize or paddy) can be raised in summer in the same field. It is also possible to grow sugarbeet and sugarcane as intercrops. Beets can be handled in the existing sugarcane factories by. installing some additional equipment. The by-products of sugarbeet such as green tops, pulp and molasses are valuable cattle feeds. Based on these indications, it has been decided to undertake the development of sugarbeet at suitable locations in the States of Punjab, Haryana, Rajasthan and Western Uttar Pradesh.
7.154. An All-India coordinated project on sugarbeet has been included in the Fourth Plan to carry forward investigations initiated in the past and also 'to tackle the various aspects of sugarbeet research on a coordinated basis in the different potential areas with a multi-disciplinary approach. The tasks to which sugarbeet research will be directed in the Fourth Plan would relate to finding out the agricultural. requirements of the sugarbeet crop in the different areas under varying agro-climatic conditions, technological investigations on processing the roots of sugarbeet and handling the by-products as also the utilisation of the by-products.
Tobacco 7.155. Production of tobacco for the Fourth Plan is estimated at 450 million kg. including 168 million kg. of Virginia type against the base level of 350 million kg. In order to achieve this target, it is proposed to develop the exportable type of tobacco on about 28,000 hectares in the light soil areas in Andhra Pradesh, Mysore, Gujarat and Tamil Nadu, and undertake intensive development programme on 125,000 hectares of Virginia tobacco and supply essential inputs. Training facilities for the curers will be strengthened.
Potato 7.156. Recent years have witnessed a distinct break through in potato cultivation. A series of high-yielding varieties of potato with varying duration of maturity have been developed. Some of them are highly resistant to the late blight diseases. There are several early bulking hybrids which are capable of giving higher tuber yields within a period of 60-90 days and, therefore admirably fit into the multi-cropping pattern. Along with the emergence of these varieties, a technique has been developed for the organisation of virus-free quality seed production in the plains. This technique has come to be known as the 'Seed Plot Technique'. New varieties of potatoes have been issued as breeder stocks to various States for multiplication. Potato cultivation on an appreciable scale has thus developed in various States in the plains. The tempo under this programme will be mantained and developed. In the Fourth Plan, the objective is to raise the area under potato from 0.50 million hectares in 1967-68 to 1.13 million hectares.
Horticulture 7.157. Horticulture development in the Fourth Plan has been planned from two broad angles-(i) to increase the general production within the country to be able to supply certain minimum needs of the people and (ii) to increase production with a view to achieving sizeable export of fresh fruits and fruit products. For putting new areas under orchards, a target of 440,000 hectares has been proposed which will comprise of 320,000 hectares on the plains and 120,000 hectares in the hills. Additionally, intensive cultivation measures will be adopted on an area of 200,000 hectares to bring about increased production from the existing plantations.
7.158 One of the most important programmes under horticulture relates to development of fruit for export purposes. The principal stress is on development of bananas. It is envisaged to promote banana cultivation in about 16,000 hectares around seven major ports on the eastern and western coasts including the Union Territory of Goa.
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FOURTH FIVE YEAR PLAN
It is anticipated that, out of a total production of 400,000 tonnes of bananas, 100,000 tonnes will be of exportable variety. For undertaking this programme, a Banana Development Corporation is envisaged. Programmes have also been included for development of mango and pineapple for export purpose.
Cashew Nut 7.159. In framing the programme for the development of cashewnut in the Fourth Plan, two allied aspects have been kept in view. The first relates to the growing export potential of this crop. The exports have risen from 41.8 lakh tonnes of processed nuts valued at Rs. 18.17 crores (at predevaluation rate) in 1961-62 to Rs. 63.7 lakh tonnes valued at Rs. 60.93 crores (post-devaluation rates.) in 1968. The Second aspect relates to the increasing gap between requirements and supply. While, according to the estimates of the Directorate of Cashews Development, indigenous production has risen from about 69,500 tonnes of raw nuts in 1960-61 to, 1.31 lakh tonnes of raw nuts in 1968-69, the dependence on imports of raw nuts from East African countries has also increased. Currently, such imports are of the order of 196,000 tonnes of raw nuts. On account of prospect of development of mechanized cashew industry in African countries, there is a strong likelihood of reduction in the availability of raw nuts to the processing industry in India.
7.160. The total requirements of raw cashew nuts during the Fourth Plan have been estimated at 350,000 tonnes. This is based on two assumptions viz., an export target of 80,000 tonnes and internal consumption of 7,500 tonnes of kernels. Compared to the existing level of production, this would mean a gap of 219,000 tonnes between supply and demand of raw nuts. The objective in the Fourth Plan is to narrow this gap as far as possible. 76,000 additional tonnes of production is sought to be achieved through various developmental measures both in the State and Central Sectors of 'the Plan.
7.161. The State Sector of the Plan contains provisions for bringing, new areas under cashew. The targets is 207,200 hectares. This will include 91,600 hectares under departmental plantation. In the Central Sector prime importance has been given to organising a cashew package programme. The components of this programme include organisation of about 1,500 demonstration plots; coverage of 24,768 hectares of non-departmental plantations and 12,328 hectares of departmental plantations by plant protection measures. It Is also proposed to propagate and distribute high-yielding planting material. About 275,000 cashew airlayers will be sought to be produced and distributed every year in Kerala, Mysore, Andhra Pradesh and the Union Territory of Goa.
Coconut 7.162 The total area under coconut is currently estimated at about 90,000 hectares and the production at about 5,600 million nuts. Further development of this crop is of importance from the point of view of export of some of its products. At present, India earns foreign exchange of nearly Rs.14 crores from the export of coir goods and coconut oil cake. The development of this crop is also important from the angle of important substitution because the country imports annually copra to the tune of Rs. 2 to 3 crores to meet internal demand.
7.163 The total demand for coconut by the end of the Plan is estimated at 8,000 million nuts. This would mean a gap of 2,400 million nuts over the existing production. Taking the production potential into account it is proposed to bridge this gap in the Plan by producing 1,000 million additional nuts. Programmes to this effect have been included both in the State and the Central Sector of the Plan.
7.164 The State Plan sector includes a sizeable outlay of which will be used for both short range and long range measures. Part of the outlay will be spent on demonstrations and distribution of quality seedlings. The remaining outlay is meant for initiating package programme. In the Central sector, major emphasis will be laid on an annual production 33,000 tall dwarf hybrid seedlings which are high- yielding and tolerant to diseases. Another important scheme pertains to establishment of an elite seed farm to serve as a nucleus plantation centre of high-yielding seed nuts in Mysore States. Steps will also be taken under the Plan for some increase in the area under coconut.
Arecanut 7.165 The requirement of arecanut by the end of the Fourth Plan has been estimated at 150,000 tonnes as against the existing production 126,000 tonnes. The strategy of development in the Plan is not to increase any area under arecanut, but to aim at intensive cultivation measures by organising package programmes. The development activities will include provision for demonstration plots distribution of seeding and spraying of pesticides for the control of various diseases.
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spices 7.166. The following table shows the present, level of production and the targets for certain spice crops for the Fourth Plan:
TABLE 10 : Targets for Spice Crop
(thousand tonnes)
sl. no. crop present target for
product- fourth plan
tion
(0) (1) (2) (3)
1 pepper 23 42
2 ginger 21 26
3 turmeric 113 128
Pepper is a most important spice crop from the point of view of international trade as 90 per cent of the production is exported. The total foreign exchange earnings of this crop are currently of the order of Rs. 10-12 crores annually. The export target at the end of the Plan for pepper has been put at 34,000 tonnes. In this context, stepping up the production to 42,000 tonnes is of special importance. Apart from organised package programmes for various spice crops, the Plan envisages emphasis on rapid multiplication of a hybrid variety of pepper called Panniyur-1 which is capable of giving four times the normal yield of the available varieties. Other programmes contemplated relate to control of wilt disease in Kerala and popularisation of plant protection measures.
Lac 7.167. Lac is an export-oriented crop; indeed, over 90 per cent of its total production is exported to foreign countries. Previously India held a virtual monopoly in the, world trade in lac, but now Thailand has emerged as a keen competitor and in recent years,is accounting for as much as 40-50 per cent of the world trade in lac, It is necessary to improve the quality of Indian lac. Keening in view the fact that the world consumption of lac is around 30,000 tonnes of seedlac and shellac annually which will be equivalent to over 60,000 tonnes of sticklac, an export target of 24,000 tonnes of seedlac and shellac and a production target of 52,000 tonnes of sticklac has been fixed for the Fourth Five Year Plan. In order to achieve this target, it is proposed to establish broodlac farms for supply of seeds of superior strains to the cultivators and to undertake package programme for adoption of improved agricultural practices.
VI
LAND REFORMS 7.168. A review of land reforms reveals much that has been achieved as well as a great deal that requires urgent attention. There are many gaps between objectives and legislation and between the laws and their implementation. It is necessary to identify the deficiencies and take steps for their elimination. One of the important tasks of the Fourth Plan will be to try and ensure that land reforms become a reality in the village and the field
7.169 The principal measures relate to the abolition of intermediary tenures reform of the tenancy system ceiling on ownership of land and consolidation of holdings. Progress has been made in all these respects over the past 20 years. Zamindaries jagirs inams and other intermediary tenures have been practically abolished, bringing 20 million tenants into direct relationship with the State and making available to the State Governments several million acres of cultivable land, which has been distributed to landless agriculturists. Provisions for security of tenure and regulation of rent have been adopted by several States for bringing tenants into direct relationship with the State and conferring on them the rights of ownership of more than 7 million acres. Laws imposing ceiling on agricultural holdings have been enacted and about 2.4 million acres of surplus lands in excess of ceiling limits have been declared as such or taken possession of by Government. Tenants uneconomic holders and landless agriculturists are being settled on these lands. The land reform programme adopted in the various States has helped to establish owner-cultivation over large areas. Consolidation of holdings has been undertaken in a number of States and measures have been initiated for the prevention of fragmentation.
7.170 There have neverthless, been shortcomings in implementation and the progress has been slow in many States. The position was reviewed by the Land Reforms Implementation Committee of the National Development Council which in its report in August 1966 proposed measures for securing expenditious and effective implementation of the land reform legislation. The matter was again examined in the Chief Ministers' Conference which was convened in November 1969 to review the progress and identify the gaps and weaknesses in the existing laws and their implementation. The main points which would receive attention during the Fourth Plan period are set out in the paragraphs that follow.
Abolition of Intermediaries 7.171 Intermediary tenures have been abolished practically all over the country Certain non-ryotwari tenures however still remain Legislation has yet to be enacted for abolition of temporarily settled estates in Assam, certain inams and tenures in
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FOURTH FIVE YEAR PLAN
Kerala, Maharashtra and Tamil Nadu, Goa, Diu and Dadra and Nagar Haveli. Legislation has yet to be completed in respect of muttadari and malguazari tenures in Agency tracts and inams in Telengana area of Andhra Pradesh and Devasthan inams in Gujarat. It has been decided to take action of abolition of these remnants of the intermediary tenures by 1970.
7.172. Lands which should have vested in the State or settled, with tenants have been retained by some intermediaries by evasion and obstruction. Action should be taken by the State suo moto for scrutiny of such cases and effective implementation of intermediary abolition laws.
7.173. Progress made in the payment of compensation to ex- intermediaries in some States has been slow. The assessment and payment of compensation could be expedited, particularly in Bihar, Orissa, Rajasthan, Uttar Pradesh and West Bengal.
Tenacy Reforms 7.174. There has been leasing of land on a considerable scale, often unwritten, ever in areas where intermediary tenures did not obtain, and sub-leasing in areas where such tenures existed. Legislation has been enacted in a number of States for converting such tenants and sub-tenants into owners. Considerable progress has been made in this regard in Maharashtra, Gujarat, Madhya Pradesh Rajasthan. Similar provisions have also been made in respect of sub- tenants in Uttar Pradesh and in respect of under-raiyats (other than Bargadars) in West Bengal. As a result, according to information received from State Governments about 3 million tenants and share- croppers have acquired ownership as indicated in table 11.
TABLE 11 : Ownership for Tenants
sl. no. state/union territory number of area in res-
tenants pect of
benefited which owner-
ship is con-
ferred
(in 000's) (in 000
hectares)
(0) (1) (2) (3)
1 Gujarat 462 970
2 Madhya Pradesh 420 n.a.
3 Maharashtra 800 613
4 Punjab 22 60
5 Rajasthan 199 382
6 Andhra Pradesh
(Telengana area) 33 82
7 Delhi 29 16
8 Himachal Pradesh 24 11
9 Tripura 10 5
10 Uttar Pradesh 1500 810
11 West Bengal n.a. 324
7.175 In spite of these measures, it is estimated that tenants' households constitute 23.56 per cent of total cultivating households. The proportion is higher in certain States such as Bihar, Haryana, Jammu and Kashmir, Kerala, Mysore, Punjab and Himachal Pradesh and the Union Territories of Pondicherry and Tripura. The extent of tenancy is indicated below :-
TABLE 12 : Percentage of Leased-in Households to Total Cultivating
Household-State-wise
sl. no. state/union territory percentage
(0) (1) (2)
1. Bihar 37
2. Jammu and Kashmir 25
3. Kerala 31
4. Mysore 25
5. Punjab and Haryana 39
6. Himachal Pradesh 27
7. Pondicherry 45
8. Tripura 36
7.176 Many of the tenants and sub-tenants who had acquired permanent rights have come into direct contact with the State. The tenants and sharecroppers who still continue as such are tenants-at- will or are protected tenants subject to the landlord's right of resumption. Such tenants and sharecroppers with insecure tenure are estimated to constitute 82 per cent of the total number of tenants mainly in the States of Andhra Pradesh, Assam Bihar Haryana Punjab Tamil Nadu and West Bengal.
7.177 It has been observed that under the present arrangement of informal tenancy and sharecropping the landlord considers it unwise to invest in improving his land; likewise, the share-cropper or the tenant is either unable or reluctant to invest in inputs like fertilisers. The insecurity of tenancy has not only impeded the widespread adoption of the high-yielding varieties but in some cases led to social and agrarian tensions. In the present context therefore it is essential that a cultivating tenant or a share-cropper should have effective security of tenure of the land he cultivates and the existing tenancies declared non-resumable and permanent.
7.178 For bringing a sense of security among tenants and sub- tenants, the following measures have been proposed to be taken :
(a) To declare all tenancies non-resumable and premanent (except in cases of landholders who are serving in the defence forces or suffering from a specified disability);
(b) Where resumption has been permitted and where applications have already been made arrangements of quick disposal of
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such applications; where there is a likelihood of large number of evictions as a result of resumption, for further restricting it with a view to reducing the number of cases of resumption;
(c) Regulation of "voluntary surrenders" prohibiting landowners from taking possession of land at present tenanted and empowering 'the Government or local autho- rity to settle other tenants thereon;
(d) Provision for Complete security of tenure in respect of homestead lands on which cultivators, artisans and agricultural labourers have constructed their dwelling houses;
(e) Implementation of legislation relating to security of tenure to sub-tenants and ensuring that the provisions of law are not circumvented by the landlords;
(f) Provision for penalty for wrongful evictions.
179. Closely connected with the problem of security of tenure is the regulation of rent payable by the cultivating tenant to the landlord. Efforts to confer a measure of Security of tenure become meaningless if the rent remains arbitrary and beyond the paying capacity of the tenant. In such cases the tenant gets into arrears for payment of rent and is obliged to surrender tenancy on demand by the landholder. Besides, a higher rate of rent serves as a disincentive and an impediment to investment, Legislation for regulation of rent has been enacted in practically all States but in some of them the statutory rents themselves are on the high side. It is proposed to bring them down in due course to the level recommended in the Third Plan, that is, one-fourth or one-fifth of the gross produce and adopt necessary measures to ensure that the Statutory rates of rent are observed.
7.180. The tenant should have easy access to loans and should be able to, make improvements in respect of land cultivated by him. In case of compulsory eviction, he should receive compensation for improvements made by him. Provision has been made to this effect in certain States. Such provisions are proposed to be extended to other States.
7.181. In order to enable a cultivating tenant to participate in agricultural production programmes, it is necessary that, besides enjoying complete security of tenure, he should have the right to hypothecate his interest in land for obtaining institutional credit, Such provision has been made in some States, It is proposed to include suitable provision in land laws in other States: It is also proposed to review the existing laws in a number of States which restrict alienation, of land belonging to the Scheduled Castes, Scheduled Tribes and other backward classes with a view to ensuring institutional credit for improvement of land, provision of irrigation and other productive uses.
7.182. Many of the cultivating tenants are small holders. To some extent, their problems of credit and other inputs would be tackled with the creation of Small Farmers' Development Agencies. In respect of cultivating tenants the success of the scheme would depend, among other things, on certain prerequisites such as the maintenance of Up-to-date record of rights and the implementation of land reforms.
7.183. It has been recommended in the Third Plan that steps should be taken to complete the programme for conferring rights of ownership on tenants. There is no doubt that conferment of ownership on tenants enables the cultivator to take more interest ill the development of land. He is also able to raise more funds on security of his additional rights in land for agricultural development. Legislation has been enacted in several States bring tenants into direct contact with the State. The implementation of the programme of legislation has been completed in the former intermediary areas in Uttar Pradesh (sub-tenants) and West Bengal (under-raiyats other than Bargadars) and Delhi and it is in an advanced stage of implementation in Gujarat and Maharashtra. Considerable progress has also been made in Madhya Pradesh, Rajasthan, Himachal Pradesh, Haryana, Punjab and Tripura. It is proposed to expedite the programme of converting tenants into owners and complete its implementation by the end of the Fourth Plan. Some of the State Governments have under consideration proposals for financing purchase of ownership rights by tenants through land mortgage we banks and nationalised commercial banks.
7.184. Creation of a tenancy in future has been prohibited in some States. It is proposed to permit leasing in future only in special cases such as of a person suffering from disability or in case a person joins the defence services. In such cases, the tenancy would be, for a period of 3 years at a time subject to renewal unless the disability ceases. In case the person belongs to the defence services, it is recognised that he should be able to take possession of the tenanted land without any delay.
Ceiling on Land Holdings 7.185. Legislation has been enacted in almost all the States providing for a ceiling on land holdings. Provisions relating to level of ceilings, transfers and exemptions from ceilings differ considerably from State to State. In some States it is applicable to the
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FOURTH FIVE YEAR PLAN
lands held by each landholder rather than to the aggregate area held by all the members of a family. Similarly in some States adequate provision has not been made for disregarding of transfers and parti- tions subsequent to the date of announcement of the decision to impose ceilings on holdings and the exemptions are too many permitting evasion of ceiling on a considerable scale. Even the legislation as it exists has not been pursued and implemented effectively. As a result only about 964,800 hectares have so far been declared surplus after scrutiny of the statements submitted by substantial holders out of which about 640,000 hectares have been taken possession of by the State Governments. While some States like Andhra Pradesh have decided to take Possession of the surplus lands only when funds one available for payment of compensation, in others as in West Bengal and Gujarat work has been held up due to litigation resorted to by substantial landholders. The programme of distribution of surplus land has been taken up in recent years in a number of States. But there is still a large gap in most of the States between the area which has been taken possession of and the area distributed. Only 464.176 hectares are reported to have been finally distributed. It has been observed that this gap has been due to, in some cases, administrative difficulties in selecting. It has been observed that this gap has been due to, in some cases. administrative difficulties in selecting the allottees in accordance with the rules made under ceiling Acts. stay orders obtained from High Courts and inferior quality of land surrendered by the landholders. These matters came up for consideration at the Chief Ministers' Conference held ill November 1969. It was decided to review the provisions in the existing legislation in regard to level of ceilings, transfers and exemptions in the light of recent- technological developments and social requirements and hasten the implementation of imposition of ceiling and distribution of surplus, land 'to landless agricultural workers on a systematic basis. State Governments have responded favourably to the suggestion. In Kerala and Tamil Nadu the level of ceilings has been brought down substantially by recent legislation. Similar action is likely to be taken by a number of other States.
7.186. There is potentially an important link between land reform and amelioration of the living conditions of landless agricultural workers. Where State Governments are in possession of cultivable waste lands or have come in possession of surplus lands, it is Proposed to concentrate efforts on systematic re-distribution and resettlement of lands and to extend credit and other facilities to allottees to improve their lands. Tenancy reform measures by facilitating wider adoption of high-yielding varieties, intensive cultivation and multi-cropping measures, may increase employment opportunities for agricultural labour. Another indirect effect of conferment of security of tenure on tenants and share, croppers is a check on increase the number of landless agricultural workers competing for the limited opportunities. These measures along with specific programmes for rural works and for ensuring minimum wages on the one hand and general economic development creating non-farm employment opportunities on the other, are expected to improve the conditions of agricultural workers.
7.187. In this context. there is scope for proper appreciation of the resettlement Programmes for landless agricultural labourers vis-a-vis other schemes for reform of tenure. Studies made so far with regard to certain selected agricultural colonization schemes have revealed various problems like delays in execution, lack of coordination, duplication of agencies, faulty selection of settlers, and under-utilisation of resources. The re-emphasises the faced for proper planning and programming at the initial stage.
7.188. A mention may be, made of two surveys which have been conducted for locating culturable waste lands, So far 1.2 million acres have been located in blocks of more than 250 acres and 4.6 million acres n smaller blocks. In addition to this, considerable areas would be available under the command of major irrigation projects. Some lands would also be available for distribution as a result of Bhoodan and Gramdan. There appears to be great need for the State Governments to work out viable schemes for settlement of lands which are available for distribution to landless agricultural labourers.
7.189. In a large number of States. legislation also includes provision for security of tenure in respect of homestead lands on which tenants and agricultural workers including members of the weaker sections like Scheduled Castes, Scheduled Tribes and other Backward Classes have constructed their dwellings and houses. Such provisions are as important as security of tenure in respect of agricultural lands and should be provided where they do not exist.
Consolidation of Holdings 7.190. An obstacle to development of agriculture arises out of the fragmentation of holdings. Most holdings are not only small but widely scattered. Consolidation has been an important factor in the agricultural development of Punjab, Haryana and Uttar Pradesh. It is proposed to pursue programmers vigorously in other States. Together, the State Plans provide Rs. 28.4 crores for consolidation of holdings in the Fourth Plan. The programme can be enlarged to the extent that an appropriate charge is levied on the farmer who benefits from the operation.
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AGRICULTURE
7.191. An obstacle to, consolidation is the wide difference in land values within the village itself. These differences are mainly due to lack of irrigation facilities. Once irrigation is possible or there is ground water to be utilised, the difference in land values does not remain so wide. If consolidation is attempted in such areas, the problem can be solved quicker. Areas which have already been brought wider irrigation projects or within their command and areas with irrigation potential may be taken tip on a priority basis for consolidation. This will also ensure efficient land and water use.
7.192. It has been observed that the programme made progress and yielded the desired results mainly where the schemes of consolidation of holdings included rectangulation and reshaping of fields and provision for farm roads and expansion of village abadi in accordance with the requirements of the people. In schemes where the fields were not reorganised and the consolidation operations confined to a few mutual exchanges of scattered holdings, the object of the programme was not fully achieved. The State Governments may also consider during consolidation operations a reorganisation of holdings so that the small and uneconomic holdings are reallocated land in one block facilitating special programmes for development of such holdings. Once land has been consolidated in any area, it is also proposed to take measures to prevant further fragmentation of holdings in such areas.
Problems of Implementation 7.193. A serious constraint on the expeditious implementation of land reforms and also on the availability of credit and other inputs to the cultivating, tenant has been lack of correct and up-to-date land records, including record of tenancies. Much has been done during recent years to build up land records and a fairly good documentation of ownership is now available in most parts of the country. But there are many States in which records of tenants do not exist or remain incomplete or are out of date. During the next five years it should be possible to complete a revision of the record of rights in respect of considerable areas where resurvey and settlement operations have already been undertaken. States have generally included the scheme for revising land records and preparation and maintenance of record of tenancies in the State Plan in addition to the normal non-Plan expenditure.
7.194. The administrative tasks involved in the implementation of land reforms require a complete record of rights showing ownership and other interests in the land and the terms and conditions of the tenancies. In the implementation of land reforms the role of the administration is crucial. The agency charged with the implementation of land reforms is usually the revenue staff. In some States the sub- ordinate officials have insufficient acquaintance with the provisions of the law, while the potential beneficiaries are often unaware of their rights. The implementation, of the law is frequently ineffective. It is proposed to organise in-service training and orientation courses to inculcate a sense of purpose and awareness in the administration besides effecting improvements in the procedures. It is also proposed to take measures to create awareness of the provisions of the law among the beneficiaries and the public in general. Administrative action can be more effective it efforts are at the same time made to enlist the support and assistance of local public workers and secure the participation of the likely beneficiaries in the implementation of the reforms.
7.195 Periodical evaluation of land reforms programmes is proposed to be undertaken both by the States and at the Centre through suitable organisations and institutions. It is also considered necessary to provide for the continuous study of the problems of land reforms as well as the techniques of implementation adopted in different States with a view to imparting training both in methodology and execution. It has accordingly been decided to establish for this purpose a Land Reforms Centre at Poona in the campus of the Gokhale Institute of Politics and Economics.
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AGRICULTURE
ANNEXURE II
Selected Programme Targets-Fourth Five rear Plan
sl. no. item unit 1968-69 fourth plan
anticipated 1973-74
targets
(0) (1) (2) (3) (4)
1 high-yielding varieties mill.hectares 9.20 25.00
2 paddy mill.hectares 2.60 10.10
3 wheat mill.hectares 4.80 7.70
4 maize mill.hectares 0.40 1.20
5 jowar mill.hectares 0.70 3.20
6 bajra mill.hectares 0.70 2.80
7 multiple cropping mill.hectares 6.00 15.00
chemical fertilisers (consumption)
8 nitrogenous (N) mill.tonnes 1.14 3.20
9 phosphatic (P 2 O 2) mill.tonnes 0.39 1.40
10 potassic (K 2 O) mill.tonnes 0.16 0.90
Organic manures and green manuring
11 urban compost mill.tonnes 4.00 6.50
12 green manuring mill.hectares 8.46 12.00
13 plant protection mill.hectares 40.00 80.00
14 minor irrigation mill.hectares 1.40 7.20
(additional)
15 soil conservation on
agricultural lands mill. hectares 1.44 5.65
(additional)
loans advanced through cooperatives
16 short and medium term Rs. crores 490 750
17 long term Rs. crores 120 700*1
1*For the Fourth Plan period as a whole. It excludes loans of
the order of Rs. 200 crores on schemes refinanced by Agricultural
Refinance Corporation.
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AGRICULTURE
ANNEXURE IV
outlays for Agriculture and Allied Sectors-Third Plan, Three Annual
Plans and Fourth plan
(Rs. crores)
sl. head of development third plan three annual fourth plan
no. plans
(1966-69)
(0) (1) (2) (3) (4)
1 agricultural production 203 252 420*2
2 development of small farmers
and agricultural labour .. .. 115
3 research and education *1 *1 85
4 minor irrigation 270 314 516
5 soil conservation 77 88 159
6 area development 2 13 38
7 animal husbandry 43 34 94
8 Dairying and milk supply 34 26 139*3
9 fisheries 23 37 83
10 forests 46 44 93
11 warehousing, storage and marketing 27 15 94
12 food processing and subsidiary food. *1 *1 19
13 central support to financial
institutions .. 40 324
14 buffer stocks of agricultural
commodities .. 140 255
15 cooperation 76 64 179
16 commodity development
} 288 99 115
17 panchayats
18 total 1089 1166 2728
1* Included under Agricultural Production.
2* Includes provision for Research and Education and development of Small Farmers
made in the State Plans.
3* This includes outlays of Rs. 95 crores provided for Indian Dairy Corporation.
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