India Explained
ImplementedBJPNarendra Modi

Pradhan Mantri Garib Kalyan Anna Yojana (free foodgrains, 2020)

Free grain for National Food Security Act beneficiaries, begun in April 2020 as COVID-19 relief; from January 2024 free for five years for about 81.35 crore people, at an estimated Rs 11.80 lakh crore.

Food security

Facts

  • The Solicitor General told the Supreme Court in June 2020 that under PMGKAY foodgrain at 5 kg per person per month was being distributed free for three months, April-June 2020, in addition to Antyodaya Anna Yojana and other entitlements [1].
  • The Economic Survey 2020-21 records that 80.96 crore beneficiaries were provided additional foodgrain above NFSA entitlements, free, until November 2020, with over 200 lakh metric tonnes and a fiscal outgo of over Rs 75,000 crore [2].
  • On 29 November 2023 the Cabinet decided that free foodgrains would continue for about 81.35 crore beneficiaries for five years from 1 January 2024, at an estimated Rs 11.80 lakh crore [3].
  • The Economic Survey 2025-26 states PMGKAY began as COVID-19 relief and now provides foodgrains free of cost to all NFSA beneficiaries, fully funded by the Centre [4].
  • The NFSA coverage base is 81.35 crore persons on 2011 Census numbers [4]; state-wise coverage shares were set from NSS 2011-12 data [5].
  • The Economic Survey 2025-26 reports that cross-database checks flagged 8.51 crore records and States removed over 2.12 crore ineligible beneficiaries [4].

Why

Reasons given by those who did it

  • The Cabinet decision of 29 November 2023 states the aim of continuing the scheme as to 'strengthen accessibility, affordability and availability of foodgrains for the poor and the vulnerable' and to ensure food and nutrition security [3].
  • The Economic Survey 2025-26 states that PMGKAY was launched initially as a COVID-19 relief measure to provide free foodgrains in addition to NFSA entitlements [4].

Criticism of that reasoning

No criticism of the stated reasons is recorded yet.

Benefits and concerns

Benefits (2)

  • Rapid relief to a very large population during the 2020 shock.80.96 crore beneficiaries received additional free grain; over 200 LMT of foodgrain by November 2020 [2].
  • Uniform free entitlement across States with portability for migrants.Cabinet decision: free grain through over 5 lakh Fair Price Shops under a common logo and portability under One Nation One Ration Card; the Government's example is that the economic cost of 35 kg rice for an Antyodaya family is Rs 1,371 per month, borne by the Centre [3].

Concerns (2)

  • Large, multi-year fiscal commitment.Estimated Rs 11.80 lakh crore over five years [3]; Rs 75,000 crore or more for the 2020 phase [2]. The Economic Survey lists food subsidy among central subsidy outlays [4].
  • Entitlement base is fixed to 2011 population and consumption data, and database checks show ineligible entries.Coverage 81.35 crore on the 2011 Census [4]; 2.12 crore ineligible beneficiaries removed after 8.51 crore records were flagged [4]; Supreme Court hearings on migrant labourers addressed access to ration cards [6].

Evidence points

+9.5
points, mean of two scorers (scale −25 to +25)
+9 to +10
range between the two scorers' totals
Medium confidence
scorers agree within 1 point on every criterion
ReachHow many people did the action materially affect?
Mean +5.0A +5B +5
Outcome evidenceDo official or independent data show the intended result (or its opposite), compared with the era baseline and peers?
Mean +2.0A +2B +2
Cost and sustainabilityIs the fiscal cost proportionate, and is the effect durable?
Mean −1.5A −1B −2
Process and rightsWas it made with debate, consultation and legal soundness, and did it respect rights and court rulings?
Mean 0.0A 0B 0
DeliveryWas it implemented as announced, on time and at scale?
Mean +4.0A +4B +4

Positive meanNegative meanScorer AScorer B

Scorer A. Rapid free grain reached about 81 crore people, but the estimated Rs 11.8 lakh crore multi-year cost and 2011-based coverage data raise sustainability questions.

Scorer B. Free grain reached about 81 crore people quickly in a shock, at a very large multi-year fiscal cost of Rs 11.8 lakh crore.

Context used when scoring

Era baseline
Before April 2020 NFSA grain was sold at subsidised central issue prices, and the NFSA coverage base was already fixed to 2011 data.
Lag before outcomes show
1 year
Shocks considered
covid-2020
Uncertainty
Medium confidence. Scorer totals are +10 and +9. How uncertainty is shown.

In depth

PMGKAY began in April 2020 as a relief measure during the COVID-19 lockdown. It gave NFSA beneficiaries an extra 5 kg of grain per person per month free of cost, on top of their normal entitlement at subsidised prices. In November 2023 the Cabinet decided to provide free grain to the same beneficiaries for five years from January 2024.

Official sources give the scale: more than 80 crore beneficiaries and a first-phase cost above Rs 75,000 crore, followed by an estimated Rs 11.80 lakh crore over five years. The Government presents it as a food and nutrition security measure for the poor. The Economic Survey describes it as part of food management supported by technology-based targeting.

The sources reviewed do not include an independent evaluation of nutrition or poverty outcomes from the scheme. The questions raised in the material are about scale and design: the fiscal commitment, an entitlement fixed to 2011 population data, and the role of database checks in identifying ineligible entries. Court hearings on migrant labourers have also considered access to ration cards.

Because the scheme uses the NFSA structure, its effects are difficult to separate from the Act (see the National Food Security Act entry), and it may be read as a change in price of the same entitlement rather than as a separate programme.

Sources

  2. Economic Survey 2020-21, Volume 2, Chapter 7 (agriculture and food management)
    Ministry of Finance, Government of IndiaOfficial data
  5. National Food Security Act portal: Act, coverage and entitlements
    Department of Food and Public Distribution, Government of IndiaPrimary

Last reviewed .Report an error orchallenge a score.

Related actions

  • ImplementedINCSocial Welfare & Inclusion

    National Food Security Act (2013)

    2013 law giving a legal entitlement to subsidised grain for up to 75% of rural and 50% of urban people (about 81 crore people on 2011 Census numbers), with 5 kg per person monthly and 35 kg for Antyodaya households.

    Evidence points +15.0 (range +13.0 to +17.0)

  • ImplementedJDSocial Welfare & Inclusion

    Targeted Public Distribution System (1997)

    From June 1997 subsidised grain in the public distribution system was targeted at poor (BPL) households with separate prices for others; a 2005 evaluation found about 58% of central-pool grain did not reach BPL families.

    Evidence points +2.5 (range +1.0 to +4.0)