Land Reforms in West Land Reforms in West BengalBengalGeography and demography of the stateGeography and demography of the state1.1. Situated in the Eastern Coast of India, Situated in the Eastern Coast of India,

bordering the states of Bihar and Orissa bordering the states of Bihar and Orissa and the neighbouring country Bangladesh.and the neighbouring country Bangladesh.

2.2. Population density of 904 per square Population density of 904 per square kilometers as compared to the national kilometers as compared to the national average of 324.average of 324.

3.3. In 2001, 71.97 per cent of population was In 2001, 71.97 per cent of population was in rural areas. in rural areas.

4.4. In 1999-2000, 65.9 per cent of household In 1999-2000, 65.9 per cent of household budget was spent on rice consumption.budget was spent on rice consumption.

5. In 1999-2000, 90.62 per cent of total 5. In 1999-2000, 90.62 per cent of total area for cultivation of food grains was area for cultivation of food grains was under rice.under rice.

6. Area under food grains in 1999-2000 6. Area under food grains in 1999-2000 was 4.1 times the area under non food was 4.1 times the area under non food grains (cash crops and vegetables)grains (cash crops and vegetables)

7. In 1999-2000, 92.6 per cent of total 7. In 1999-2000, 92.6 per cent of total food grains production was in the form food grains production was in the form of rice.of rice.

8. In 2000, from administrative point of 8. In 2000, from administrative point of view West Bengal had 17 districts view West Bengal had 17 districts divided into 341 development blocks divided into 341 development blocks and 3248 cluster of villages having and 3248 cluster of villages having 40,911 villages (called Mouzas).40,911 villages (called Mouzas).

History of Land History of Land TenureTenure

West Bengal had a land tenure system known West Bengal had a land tenure system known as as Permanent SettlementPermanent Settlement which promoted which promoted absentee landlords called absentee landlords called ZamindarsZamindars

The revenue collection pressure created a The revenue collection pressure created a layer of intermediarieslayer of intermediaries

The lowest strata of actual cultivators were the The lowest strata of actual cultivators were the sharecroppers, known mainly as sharecroppers, known mainly as BargadarsBargadars

After Independence in 1947, Zamindars were After Independence in 1947, Zamindars were replaced by new landlords called replaced by new landlords called JotedarsJotedars

The Jotedars, mainly rentiers from the The Jotedars, mainly rentiers from the erstwhile zamindars, again turned out to erstwhile zamindars, again turned out to be not the actual cultivators in general be not the actual cultivators in general and many of them were also absentees.and many of them were also absentees.

The rights of the Bargadars, in spite of The rights of the Bargadars, in spite of various land reforms measures, remained various land reforms measures, remained insecure till the late seventies. Most of insecure till the late seventies. Most of them were unrecorded, having no them were unrecorded, having no hereditary rights of cultivation. The share hereditary rights of cultivation. The share of crop violated legal stipulations more of crop violated legal stipulations more than often. Threat of eviction always kept than often. Threat of eviction always kept the sharecroppers on the defensive.the sharecroppers on the defensive.

Leadership, Commitment Leadership, Commitment and Politics of Changeand Politics of Change

The major movement of Sharecroppers to The major movement of Sharecroppers to ensure 2/3rds share of crop was backed by ensure 2/3rds share of crop was backed by the communists dominated Peasants the communists dominated Peasants organization organization All India Kisan Sabha (AIKS)All India Kisan Sabha (AIKS)

The Congress party, which had socialist The Congress party, which had socialist leanings but basically a centre-left party, leanings but basically a centre-left party, ruled since independence and had the ruled since independence and had the backing of the jotedarsbacking of the jotedars

The First non-congress communists The First non-congress communists dominated government was installed in 1967dominated government was installed in 1967

For the first time, sharecroppers showed some For the first time, sharecroppers showed some militancy in the rural areasmilitancy in the rural areas

The present Communist party of India The present Communist party of India (Marxist) led left front came to power in 1977 (Marxist) led left front came to power in 1977 general electiongeneral election

In 1977, an amendment to land reforms act In 1977, an amendment to land reforms act made cultivation in absentia an exclusionary made cultivation in absentia an exclusionary clause for eviction of sharecroppers. clause for eviction of sharecroppers. Sharecroppers were provided heritable rights Sharecroppers were provided heritable rights and the place of crop share was shifted to and the place of crop share was shifted to sharecroppers homestead plot.sharecroppers homestead plot.

In 1978, Registration of names of In 1978, Registration of names of sharecroppers started in an unprecedented sharecroppers started in an unprecedented scale under the name “Operation Barga” along scale under the name “Operation Barga” along with redistribution of ceiling-surplus land.with redistribution of ceiling-surplus land.

Who are the major stakeholders in the Who are the major stakeholders in the Land Reform process?Land Reform process?

Sharecroppers were the direct beneficiary. Sharecroppers were the direct beneficiary. By implication the poorer sections of By implication the poorer sections of peasantry, namely, marginal and small peasantry, namely, marginal and small farmers, benefited the mostfarmers, benefited the most

Agricultural Labourers, the other major Agricultural Labourers, the other major section of the rural poor, were the other section of the rural poor, were the other beneficiary. They benefited directly from beneficiary. They benefited directly from redistribution of confiscated land and redistribution of confiscated land and indirectly from any wage rate rise.indirectly from any wage rate rise.

The major section to lose was the absentee The major section to lose was the absentee landlordslandlords

The major issue in the political economy The major issue in the political economy of reform is whether the target group of reform is whether the target group was correctly chosen?was correctly chosen?

Data just before independence in 1945, did Data just before independence in 1945, did show that more than 1/3show that more than 1/3rdrd of operational area of operational area was under sharecropping. was under sharecropping.

Data also show that percentage of families Data also show that percentage of families with primary occupation as agricultural with primary occupation as agricultural labourers had a continuous decline during the labourers had a continuous decline during the 15 years prior to independence in 1945.15 years prior to independence in 1945.

Thus, the decision to concentrate on Thus, the decision to concentrate on sharecroppers during post-independence sharecroppers during post-independence years was politically correct years was politically correct

Number of Bargadars RegisteredNumber of Bargadars Registered

YearYear Cumulative Nos. Cumulative Nos. Registered (Cumulative % Registered (Cumulative %

to total)to total)

Up to 1978 Up to 1978 (Pre OB)(Pre OB)

0.25 Million (11%)0.25 Million (11%)

19811981 1.20 Million (52%)1.20 Million (52%)

19841984 1.31 Million (57%)1.31 Million (57%)

19911991 1.43 Million (62%)1.43 Million (62%)

19951995 1.47 Million (64%)1.47 Million (64%)

Share of West Bengal in Share of West Bengal in implementation of distribution of implementation of distribution of

ceiling surplus land among all major ceiling surplus land among all major rice producing states in India as in rice producing states in India as in

March, 2001March, 2001

States States Per cent to National TotalPer cent to National Total

West Bengal 47.14West Bengal 47.14

Andhra Pradesh 9.83Andhra Pradesh 9.83

Uttar Pradesh 5.40Uttar Pradesh 5.40

Tamil Nadu 2.62Tamil Nadu 2.62

Institutional Innovations and Institutional Innovations and ImplementationImplementation

1. Bringing Bureaucracy close to the Villages1. Bringing Bureaucracy close to the Villages Replacement of traditional Revenue Court Replacement of traditional Revenue Court

approach to register names of sharecroppers approach to register names of sharecroppers by the Rural Camp Methodby the Rural Camp Method

Operation Barga was carried out in six stages-Operation Barga was carried out in six stages-

a. Identification of villages with the help ofa. Identification of villages with the help of

settlement records and peasants settlement records and peasants

organisationsorganisations

b. Squads of Officers from Land Settlement b. Squads of Officers from Land Settlement

and Land Management Branch formedand Land Management Branch formed

c. Dates of evening camps were settledc. Dates of evening camps were settled

d. Government Officials explained thed. Government Officials explained the

benefits of registration of namesbenefits of registration of names

e. Next day was reserved for claime. Next day was reserved for claim

verificationverification

f. Government officers recorded names off. Government officers recorded names of

the sharecroppers and gave them the sharecroppers and gave them

certificates. They were entered into thecertificates. They were entered into the

village records later.village records later.

Thus, essentially, quasi property rights were Thus, essentially, quasi property rights were

Bestowed upon registered sharecroppersBestowed upon registered sharecroppers

2.2. Delegation of financial and planning Delegation of financial and planning activities to Local Elected Governmentactivities to Local Elected Government

Local elected government have three Local elected government have three tiers, known as ‘Panchayats’tiers, known as ‘Panchayats’

Top tier worked at the district level Top tier worked at the district level called called Zilla ParishadsZilla Parishads

The next tier worked at the block level The next tier worked at the block level called called Panchayat SamitisPanchayat Samitis

The lowest tier worked at the grassroots The lowest tier worked at the grassroots level of a cluster of small number of level of a cluster of small number of villages called villages called Gram Panchayats (GPs)Gram Panchayats (GPs)

Quantifiable Tasks of PanchayatsQuantifiable Tasks of Panchayats To carry out central government funded schemes To carry out central government funded schemes

like Food for Work (aimed at creating off season like Food for Work (aimed at creating off season jobs) or creation of non-farm rural assets. The jobs) or creation of non-farm rural assets. The major success was in the creation of unsurfaced major success was in the creation of unsurfaced rural roads and clearing of ponds and tanks.rural roads and clearing of ponds and tanks.

Distribution of Minikits, a package of seeds, Distribution of Minikits, a package of seeds, fertiliser and pesticidefertiliser and pesticide

Maintenance of tube wells for irrigation through Maintenance of tube wells for irrigation through the creation of beneficiaries committeesthe creation of beneficiaries committees

Non-quantifiable Tasks of PanchayatsNon-quantifiable Tasks of Panchayats Role of conflict resolution in case of disputes Role of conflict resolution in case of disputes

regarding land, water and wages, as well as regarding land, water and wages, as well as other social problems.other social problems.

Grass roots DemocracyGrass roots Democracy From 1985 onwards, the panchayats enjoyed From 1985 onwards, the panchayats enjoyed

financial devolution and planning financial devolution and planning responsibilities.responsibilities.

Operation Barga created more balance of Operation Barga created more balance of power in the village democracypower in the village democracy

All members of an electoral constituency are All members of an electoral constituency are supposed to meet twice every year in supposed to meet twice every year in Gram Gram SansadsSansads to discuss village level plans. to discuss village level plans.

In 2000In 2000, there were 3000 , there were 3000 Gram Sansads Gram Sansads of of which almost 90 per cent held meetings.which almost 90 per cent held meetings.

Percentage of electorates attending meeting Percentage of electorates attending meeting had shown a downward trend from 30 percent had shown a downward trend from 30 percent in 1996 to 5 percent in 2000.in 1996 to 5 percent in 2000.

Impact of Land ReformsImpact of Land Reforms

Impact on PovertyImpact on Poverty

0

10

20

30

40

50

60

70

80

72-73 87-88 93-94 99-00

West BengalIndia

Rates of Growth of Rice productionRates of Growth of Rice production

00.5

11.5

22.5

33.5

44.5

5

51-67 78-95

West BengalIndia

Distribution of Operational HoldingsDistribution of Operational Holdings

YearYear West West BengalBengal

IndiaIndia

Below 2 Below 2 hectareshectares

Below 2 Below 2 hectareshectares

NumberNumber 91.4%91.4% 78.2%78.2%

AreaArea 66.46%66.46% 32.4%32.4%

Regression Results for Causality for cultivators Regression Results for Causality for cultivators

Having operational land below 2 hectaresHaving operational land below 2 hectares

1) Log(yield) = -0.144 + 0.289** log(roads) + 0.359* 1) Log(yield) = -0.144 + 0.289** log(roads) + 0.359* log(labour) + 0.370*inter 25, log(labour) + 0.370*inter 25,

Adjusted RAdjusted R22 = 0.310 = 0.310

  

2) Log(yield) = 0.142 + 0.313** log(roads) + 0.292** 2) Log(yield) = 0.142 + 0.313** log(roads) + 0.292** log(labour) + 0.370***inter 20, log(labour) + 0.370***inter 20,

Adjusted RAdjusted R22 = 0.248 = 0.248

NoteNote: *, **, and *** refer to significant at 1, 5 and 10 per : *, **, and *** refer to significant at 1, 5 and 10 per cent levels respectivelycent levels respectively

  

Learning and Learning and ExperimentationExperimentation

The strengthsThe strengths Strong Political will backed by historical Strong Political will backed by historical

support to peasant struggles of the Left support to peasant struggles of the Left partiesparties

Choice of the right target group, namely Choice of the right target group, namely small scale sharecropping tenants and small scale sharecropping tenants and landless agricultural labourerslandless agricultural labourers

Quasi property rights bestowed on the Quasi property rights bestowed on the sharecroppers increasing their incentivessharecroppers increasing their incentives

Innovative implementation processInnovative implementation process

Better balance of rural powerBetter balance of rural power Active involvement of local level elected Active involvement of local level elected

governments in developmental works, governments in developmental works, especially construction of roads and especially construction of roads and excavation of canals and Tanksexcavation of canals and Tanks

Conflict resolution by the local level Conflict resolution by the local level elected representativeselected representatives

The weaknessesThe weaknesses Land dispossession especially of the Land dispossession especially of the

redistributed landholdersredistributed landholders Insignificant rise of agricultural real wagesInsignificant rise of agricultural real wages

The number of cultivators as a proportion of The number of cultivators as a proportion of agricultural workers is going downagricultural workers is going down

Poor Attendance in the village level meetings of Poor Attendance in the village level meetings of the panchayatsthe panchayats

Questions regarding fairness in electoral processQuestions regarding fairness in electoral process Indifferent attitude towards financial devolutions Indifferent attitude towards financial devolutions

and delegation of planning responsibilities to and delegation of planning responsibilities to panchayats by the state governmentpanchayats by the state government

Future DirectionsFuture Directions

To sustain fruits of land reform, diversification ofTo sustain fruits of land reform, diversification of

production base and increase in non-farm activities production base and increase in non-farm activities

are a must. Along with that, serious thought to be are a must. Along with that, serious thought to be

given on strengthening of grass roots democracy.given on strengthening of grass roots democracy.