This blog is part of a series on ‘the Politics of Food and Technology’, in collaboration with the SOAS Food Studies Centre. All of the blogs in this series are contributions made at the International Humanitarian Studies Association (IHSA) Conference in Istanbul-Bergen, October 2025, to the panel with a similar title. To read the rest of the blogs in this series, please click here.
The Public Distribution System (PDS) of India, one of the largest food security programmes in the world, is a rights-based legal entitlement that distributes food grains to below poverty line households. In 2015, digitalisation, using a biometric Aadhaar system, was introduced to deal with the problems of corruption and leakages and make it more efficient. In this blog, C. Sathyamala and Somjita Laha argue that digitalisation has not necessarily led to the streamlining of the programme but has, in fact, resulted in the exclusion of the food insecure.

In the early post-colonial period, India was a food deficit country dependent on international food aid. However, in the last three decades, it has become self-sufficient in food production and a net food exporter. Yet, the country has one of the highest prevalence rates of undernutrition in the world, which has been termed an ‘Asian enigma’, or a ‘development paradox’. As such, the country is experiencing a protracted hunger crisis. In 2025, as per the Global Hunger Index, out of the 123 countries that were assessed, India ranked 102: that was categorized as ‘serious’ level of hunger. This is despite the existence of several food security and social assistance programmes, the foremost being the Public Distribution System (PDS). Touted as one of the world’s largest food-based safety net programmes, the PDS’ aim is to ensure that certain foodstuffs are distributed at highly subsidised prices to vulnerable populations. In 2015, digitalisation was introduced to deal with the problems of corruption and leakages. In this blog we argue that digitalisation has not necessarily led to the streamlining of the programme but has, in fact, resulted in further exclusion of the food insecure.
Evolution of the PDS
During World War II, the British had introduced a system of food rationing that was functional from 1939 to 1943. Post-Independence, the Indian state revived it primarily to stabilise open market food prices and to provide some basic measure of food security, and the programme came to be known as PDS. Since its inception in 1950 the PDS has undergone several changes. In 1997, it changed from universal provisioning to a targeted system catering to only those households identified as below poverty line (BPL). Passed in 2013, the National Food Security Act (NFSA) made PDS into a rights-based legal entitlement even while retaining the targeted approach.
In 2015, digitalisation was initiated by linking ration cards with the Unique Identification biometric (Aadhaar) number of the recipients. This was to enable the authentication of the biometrics (fingerprints and iris scans) during collection of rations. This move was based on the state’s rationale that corruption would be reduced by accurate identification of beneficiaries and the elimination of fraudulent ‘ghost’ beneficiaries. During the Covid crisis, under the Pradhan Mantri Garib Kalyan Anna Yojana (PMGKAY) (The Prime Minister Food grain Scheme for the Welfare of the Poor) food grains were distributed free. This scheme of free grain distribution has now been extended until January 2029. According to the 2025 year-end review of the Department of Food and Public Distribution, digitalisation of PDS is a resounding success with the digitisation of 100 % of ration cards with beneficiaries data and an almost 100 % of ‘Aadhaar’ seeding (linking to the Aadhaar card).
Problems of exclusion
The ground level reality is somewhat sobering, though. Marginalised populations in the country have faced serious problems of exclusion. Even if eligible, households may not possess a ration card or are unable to include additional household members on that card. One reason for exclusion has been the faulty methodology used in identifying BPL households. Another is the limiting of coverage and freezing of enrolment because of a quota system. The initial BPL household identification was based on the 2011 census and in the subsequent years no cognition was taken of the population growth or changes in the economic status of a household. For instance, the central government had allotted 7.27 million programme beneficiaries in Delhi. This allocation was exhausted by 2020. Following this, a freeze on new ration cards resulted in a long list of pending applications. In 2024, the Delhi government acknowledged that 1.1 million beneficiaries were to still get a ration card.
Catch-22 situation
At times, registering for the PDS, can be a ‘Catch-22 situation’, where following official channels could result in further exclusion. One example is from our study carried out in urban resettlement colony in Delhi. An eligible BPL household attempted to access rations several times without success. This was because, the first time, a clerical error meant that their card did not have an official stamp. They were denied rations because the card without the stamp was considered invalid. Some 3 to 4 years ago, the family paid Rs 2000 (approximately €25 at the then exchange rate) to a middleman to mitigate this issue but the problem could not be resolved. One year ago, they approached yet another middleman who told them that they needed to cancel their previous ration card and make a fresh application. They then decided to give up. The irony is that digitalisation had probably categorised them as a ‘ghost’ beneficiary household because they had not accessed their rations from the time the card was made. This could also happen to migrant households if they are unable to verify their existence by completing their e-KYC (electronic know your customer) process in the specified period at the original place of registration. Currently, only 800 million people are being covered by the PDS as against the intended coverage of 813.5 million pe.
Digitalisation is not fool proof
Digitalisation poses further hurdles in accessing benefits, including difficulties in the authentication of beneficiaries. To be able to claim their food entitlement, beneficiaries must authenticate their fingerprints or iris scans at ePoS devices in ration shops that are linked to the centralised database for Aadhaar. However, the biometric authentication process is not infallible, and fingerprints may not match for the elderly or manual workers, the latter forming the bulk of the PDS recipients. When this happens, an iris scanner is used, but that can also fail for people with eye problems such as cataracts, or if they have had eye surgery. Often connectivity is an issue with the server being frequently down, in which case the customers have to wait until it is back online. The other problem that digitalisation cannot resolve is the quality of food grains in the warehouses which was not always found to be good. Though black market diversion has somewhat reduced, leakages continued because digitalisation has not led to the elimination of fraudulent/inaccurate measurements at the distribution point.
Conclusion
Digitalisation of the PDS has been promoted for its efficiency and transparency, but the ground-level realities appear to be different. By making it dependent on a ‘BPL’ constructed at a particular point of time, a dynamic situation has been made static. Further, digitalisation assumes importance only in situations when social welfare is targeted at a subsection of the population where it needs to operationalise a dividing practice in the Foucauldian sense. Given that digitalisation is not fool proof, it inevitably leads to further marginalisation of the marginalised.
Acknowledgements: Subodh Kumar, Arjun Dubey (IHD) and Chhaya Sharma for data collection.
This blog post uses findings from an ERSC-funded project entitled: Digitalising food assistance: Political economy, governance, and food security effects across the Global North-South divide (https://digitalisingfood.org/). For the working paper on India see https://digitalisingfood.org/digital-food-assistance-in-india-towards-a-digital-welfare-state/
Opinions expressed in Bliss posts reflect solely the views of the author of the post in question.

C Sathyamala is the Co-Principal Investigator and India lead researcher of the project. She is a Senior Visiting Senior Fellow at the Institute for Human development (IHD), New Delhi, and a Visiting Fellow at the International Institute of Social Studies (ISS), Erasmus University Rotterdam, The Hague. Her areas of interest include food politics, political economy of health, reproductive rights, environmental justice, and medical ethics.

Somjita Laha is a Visiting Senior Fellow at the Institute for Human development (IHD), New Delhi, and is trained in Heterodox Economics, and Development Policy and Management. She is interested in interdisciplinary research on political economy of labour, global value chains, environmental sustainability and gender in development.
Are you looking for more content about Global Development and Social Justice? Subscribe to Bliss, the official blog of the International Institute of Social Studies, and stay updated about interesting topics our researchers are working on.








































