Gender-based preferences from PDS: A Bihar case study with emerging evidence from Odisha and Uttar Pradesh

Mamata Pradhan(University of East Anglia, UK)

In collaboration withwith IFPRI team

(Devesh Roy, Vinay Sonkar, Avinash Kishore and Sitaram Bisnoi )

Focus of the study• Needs and preferences• Delivery systems• Selection mechanisms• Product portfolio• Analysis based on :• Quantitative analysis • Qualitative analysis• Focus on

• Gender• Social Identity• Pathway of Homophily in

delivery systems

• 3 districts in Bihar (Patna, Darbhanga and Banka)• Odisha (Kalahandi, Kandhamal)• Eastern UP-Maharajganj

Coverage

Key findings (from Bihar)• In terms of performance- PDS gets an

average grade• This is in spite of about three fourths of

respondents believing that performance of PDS has improved over time• Clear preference for cash transfer in Bihar

as a delivery mechanism• Quantitative analysis-

• Limited variation across gender• Across social groups• Cannot capture some effects in a regression

framework• Some important findings such as preference of

minority women for cash transferYes

74%

No 19%

Do not know7%

Has the performance of PDS (in meeting your needs) improved?

Very good; 2.45

Good; 33.12

Average; 37.19

Poor; 21.53

Very poor; 5.71

In terms of your experience in shopping at PDS please rank on a scale of 1 to 5 with 1 being the highest and 5 being the lowest.

Food Coupon PDS Cash Transfer0.00

10.00

20.00

30.00

40.00

50.00

60.00

First Preference among Male and Female

Male Female Combined

Key findings: continued• Rice and wheat not to be substituted- rice variety that is delivered currently not

preferred• Coarse cereals not preferred

• social stigma• Time use issues for women- more labor intensive

• Pulses introduction there is buy in but there is generic fear that being dear- it would likely get diverted- experience from other commodities • Also the fear about continuity

• Adulteration with ‘Khesari dal’ (which has health hazards) • Regression results-SCs do not prefer pulses

• Tea and sugar also being preferred as PDS commodity • Last node delivery- homophily based on gender or social identity not trusted to

deliver (for example more than 90 percent believe that women at helm not likely to alter outcomes)• Similar finding along caste lines

Preferences of women from PDSProduct portfolio: Preference for Rice/wheat:

1. Preference for ‘usna’ rice (par boiled) over ‘arwa’ rice (fine rice): sell, exchange for usna, feed the cattle or make pancakes in worst case2. Perception that ‘arwa’ rice leads to gastric ailments3. Suboptimal/inferior quality of PDS rice4. Time use in cleaning the PDS rice5. Demand for wheat: Better quality than PDS rice

Delivery system• Majority of SC/OBC/minority women cited preference of inclusion criteria over

exclusion. • More pronounced in widows/single women/separated

the asymmetry in power is more in exclusion criteria,• More prone to manipulation• Applicable on few people

• Majority agree that ration card be targeted to women of the household; • Source of empowerment• Men will respect the woman of the household • Though in contrast some men were not in favour. • Very important- Majority favoured seasonality for disbursement of food

grains but with caveats• Agricultural labourers preferred that they get more wheat for those

months when rice is in plenty and vice versa• They get rice or wheat (depending on the season) in lieu of wage

Initial findings from Odisha and Eastern UP

1. Rice non-negotiable in Odisha, no substitution, pulse as an addition preferred, low preference for coarse cereals

2. UP in favour of substitution with pulse; low preference for coarse cereals

1. No preference for Cash in Odisha

2. Nearly 50-50 in favour of cash and food coupon

1. Preference for inclusion criteria

2. Not so favourable for SHG

3. Seasonality not preferred (fear of further manipulation)

Final possible Policy implication

• Need for needs assessment• Heterogeneity important for effectiveness of food systems

• Limits to needs assessments but there are aggregate policies over which need assessment can help design issues• Example: Product portfolio, Cash transfer vs other choices

• Policies based on demonstration effect could result in suboptimal outcomes• Example: Punjab introducing pulses in PDS has low uptake

• Gender context in food delivery• Time use issue (product portfolio)• Women’s experience in delivery system

Thank you

EXTRA SLIDES

Does the gender and caste of the FPS manager matter?

Very Important Important Somewhat Important Not Important Irrelevant0

10

20

30

40

50

60

70

80

How important it is that the FPS manager is from your caste?

Male Female Combined

Very Important Important Somewhat Important Not Important Irrelevant0

10

20

30

40

50

60

70

80

90

How important it is that the FPS manager be a women

Male Female Combined

Male Female Combined0

10

20

30

40

50

60

70

80

Do you think leakages will be lower if women were the FPS managers?

Yes No Do Not Know

Preference of the beneficiaries from PDS

C a s h T r a n s f e r F o o d C o u p o n I n c l u s i o n _ e x c l u s i o n P u l s e

18.4

8

25.2

3

12.9 15

.43

81.5

2

74.7

7

87.1

84.5

7

60.2

3

72.6

7

25.3

3 28.5

PDS AttributesFemale Male Combined

Rank 1 Rank2 Rank 30.00

10.00

20.00

30.00

40.00

50.00

60.00

20.00

50.89

26.6726.83

35.9333.82

52.85

11.06

23.74

Ranking of Preference for Food coupons, PDS and Cash Transfer

Food coupons PDS Cash transfer

Substitution Preference for either rice or wheat

Commodities Rank 1 Rank 2 Rank 3 Rank 4 Rank 5

Other Coarse cereals 1.15 0.57 12.64 0.00 0.57

Pulses 76.44 16.67 3.45 0.00 0.00

Edible oil 19.54 63.79 8.62 0.57 0.00

Sugar 2.87 12.64 44.25 1.72 0.00

Reasons for Cash transfer preference Rank 1 Rank 2 Rank 3 Rank 4 Rank 5

It’s easier 38.12 11.44 11.44 3.81 0.59

money can be used the way we want to 19.65 31.09 24.05 6.45 0.59

I can buy better quality food since PDS quality is not good 22.87 40.76 26.39 3.23 0.29

If the money gets transferred automatically then i do not have to deal with officials

2.35 6.16 10.85 14.66 2.05

Money transferred in banks helps in planning what to spend what to save 1.17 5.28 18.77 13.78 5.28

I can have better proof if entitlements are not provided 15.25 4.40 1.47 4.69 1.47

Others specify 0.00 0.00 0.00 0.00 0.00

Basic regression results • Preferences dependent on caste (e.g product portfolio for SC-pulse)• No specific average gender effect but women (Including widow)

significantly against exclusion criteria: More than 50 percent of men and women prefer cash transfer and food coupons. Not much variation to have significant effect in regression results• Significant preference for cash by women-minority• Homophily important for some caste (SC) (e.g product portfolio and

exclusion-inclusion criteria)

Preferences of women from PDS: Qualitative analysis

Preference for Rice/wheat:Suboptimal/Inferior quality of PDS rice• Time use in cleaning

the PDS rice• Demand for wheat:

Better quality than PDS rice

Preference for Pulse:No substitution with rice or wheat; additional is always welcome

Lack of trust in the systemFear of the unknown: not sure if they will ever get or not

Diversion effect: Pulse is a ‘dear’ commodity Adulteration: ‘Khesari dal’ (which has health hazards) will be used to adulterate other pulses

Preference for coarse cereals:Coarse cereals not preferred:

Social stigma attached: Example, people who eat bajra have the social stigma of being very poor. ‘Those who can’t afford anything eat bajra’

Processing coarse cereals especially ‘bajra’ is labour-intensive. Women the burden of processing the bajra will borne by them

Most of them preferred sugar and tea including edible oil

• Majority of SC/OBC/minority women prefer inclusion criteria over exclusion.

• More pronounced in widows/single women/separatedthe asymmetry in power is more in exclusion criteria,

• More prone to manipulation• Applicable to few people

• Majority agree that ration card be targeted to women of the household; • Source of empowerment• Men will respect the woman of the household • Though in contrast some men were not in favour

• Very important- Majority favoured seasonality for disbursement of food grains.

• Lean period, post harvest• They get rice or wheat (depending on the season) in lieu of wage

Disbursement Mechanism

Significant number of women preferred either Cash or Food-Coupon, with the growing preference for Cash

• Minimize their interface with the dealer

• Inadequate quantity, Uncertain supply, waiting time in queues and the use of incorrect weights and measures

• Quality issue particularly in rice• Apprehensions:

• price indexation of food coupon or cash

• Views on domestic violence because of cash transfer

Delivery Mechanism

Initial findings from Odisha and Eastern UP

1. Rice non-negotiable in Odisha, no substitution, pulse as an addition preferred, low preference for coarse cereals

2. UP in favour of substitution with pulse; low preference for coarse cereals

1. No preference for Cash in Odisha

2. Nearly 50-50 in favour of cash and food coupon

1. Preference for inclusion criteria

2. Not so favourable for SHG

3. Seasonality not preferred (fear of further manipulation)

Is PDS working effectively in Bihar?

Yes35%

No 51%

Do not know13%

Do you feel that you get ration at quantities and prices fixed by the government?

Yes27%

No 69%

Do not know4%

Does the ration shop owner use fair means of weighing the commodity?

Yes73%

No 26%

Do not know1%

Do you get food coupons that Bihar had introduced?

Very good; 2.28

Good; 29.2

Average; 45.51

Poor; 17.46

Very poor; 5.55

How do you rank the timeliness of availability of ration?

Very good; 2.45

Good; 33.12

Average; 37.19

Poor; 21.53

Very poor; 5.71

In terms of your experience in shopping at PDS please rank on a scale of 1 to 5 with 1 being the highest and 5 being the lowest.

Yes74%

No 19%

Do not know7%

Has the performance of PDS (in meeting your needs) improved?