Plantation Report

REPORT
OF THE
TASK
FORCE
ON
PLANTATIONS
SECTOR
INDEX
Subject Page
Executive Summary 5–6
Chapter-I Introduction 7 – 11
II Background 12 -14
III Methodology 15
IV Sectoral Overview 16-30
V Future Challenges 31-39
VI Problems faced by 40-42
the Plantation Sector
VII Policy Options 43-88
VIII Funding of the 89-99
proposals
IX Proposed Role and 100-101
Structure of PSFT
X Implementation 102-108
Annexure – I 109-111
Annexure – II 112-114
Bibliography 115
2
PREFACE
Government of India has been concerned with the problems faced by the
growers in the Plantation Sector and more particular those faced by the smaller
growers whose entire subsistence is dictated by the forces of nature. Yields differ
from year to year and the period of busts faced by the plantation industry leaves
much distress among the growers. With this background, Government had
constituted a Task Force on 24th July, 2006 to examine particularly the problems
faced by the smaller growers.
The first meeting of the Task Force was addressed by the Hon’ble Minister
for Commerce and Industry who highlighted the necessity to look into the problems
faced by the small growers with some compassion and with a fresh approach which
will lead to long lasting results.
The Task Force met from time to time and meetings were held in Delhi,
Mumbai and Hyderabad. The Task Force invited representatives from the different
stake-holders and had been very ably assisted by the Secretariat of the Department
of Commerce. The Task Force is highly obliged to the assistance and guidance
rendered to it by the officers of the Government.
The Members of the Task Force were highly impressed by the presentations
made by the individual Commodity Boards in- charge of the different constituents
of the plantation industry. They had given their view-points and also put forth the
problems of plantation sector particularly of the smaller growers. The Task Force
also invited some small growers who gave their views. The Task Force also had
detailed discussions with the Bankers, Insurance companies, NABARD etc. What
came out of these discussions is that whilst some immediate measures must be taken
to solve the present problems of liquidity of the small growers in the background of
a falling market in respect of some sectors of the plantation industry, a better
3
solution would be to find a more enduring method by which the growers would be
protected right from the planting stage to marketing of their produce.
The Task Force has attempted to suggest long term solutions and in the
pages that follow it has given its views on the subject. For the Members of the
Task Force it was a great learning experience to know about the problems faced by
the growers. The interactions the Task Force and the Members of the Government
on one side, and the growers and the Commodity Boards on the other, revealed the
true dimensions of the problem which beg for a solution.
The Members of the Task Force are hopeful that the suggestions made, if
implemented, over a time frame would yield to a resolution of some of the problems
faced by the industry and the growers. With this hope, the Task Force recommends
its suggestions to the Government for adoption.
Before concluding, the Members of the Task Force would like to place on
record their grateful thanks to the officers of the Department of Commerce, most
ably led by Shri O.P. Arya, Additional Secretary and equally ably assisted by Smt.
Aditi Das Rout, Director, Shri Vijay Kapoor, Under Secretary and Shri T.
Narasimhan, Section Officer. In our recommendations on the strengthening of the
Price Stabilization Fund Trust (PSFT), we were very lucky to have the assistance
and guidance of Shri Amit Chatterjee, CEO, PSFT.
We should also recognize the help and guidance received from the Chairmen
of all the Commodity Boards who had placed relevant data and material with us for
our analysis and study. A special word of thanks is also due to Shri K.N Rao, Chief
Manager, Agricultural Insurance Company of India Ltd. whose knowledge on risk-
management and insurance was greatly helpful to us in projecting our suggestions.
The Task Force was provided with the assistance of two experts, Prof. S.
Gangopadhyay and Dr. Bharat Ramaswamy whose expertise on these issues have
greatly helped us in making the suggestions contained in the Report.
4
EXECUTIVE SUMMARY
1. Today there is no credible alternative facility available to a grower to meet the

risks of price movements and the art of price risk management is unknown to the small
growers. (In this entire report, the Task Force designates a grower upto 10ha of holding
plantation land as a small grower). To provide this, the Task Force recommends that an
insurance cover may be provided to the small growers and the periodical premium may
be shared between the beneficiary and the Government – PSFT, roughly on 50-50 basis.
2. The Task Force also feels that there is an urgent need to provide the personal
accident cover to small growers. This facility is also to be extended to the plantation
workers who are solely dependant on the plantations. The premium, in this case, also
should be shared between the Government and the beneficiaries. We understand that
such a facility is available on a pilot basis and is monitored by the Price Stabilization
Fund Trust (PSFT). This has to be enlarged and made available to people as indicated
above.
3. The Task Force would suggest that farmers, processors and exporters should be
enabled to utilize the instrument of derivative contracts and options instituted by the
Commodity Derivatives Exchanges of India. At present, such contracts exist for pepper,
cardamom, chillies, coffee, natural rubber, coconut oil and copra. The Task Force
understands that the facility for derivative contracts and options is being used only by
large growers. To facilitate small growers also to derive the benefits under this scheme,
the Task Force suggests that the small growers should be encouraged and enabled to form
cooperatives.
4. An innovative market literacy programme on trading in general and future trading

in particular is to be launched. This could be initiated at three levels (a) producers and
processors (b) traders and (c) exporters and small corporates. The programme should be
so designed as to be contextually appropriate and customized to be organization or
household specific.
5. Option for subscription to IOU may be implemented on a pilot basis and in due
course, the Task Force suggests a proper institutional framework to be put in place to
replace the crop insurance programme. This will result in price rise management to be
feasible.
6. The current system of banking regulations does not allow non-investment banks
to participate in derivative trading. In view of the Task Force, this needs to be modified
and all the banking institutions with exposures to futures trader’s commodities, should,
subject to position limits, be allowed to participate in futures trading.
7. The Task Force is of a view that development of infrastructure facilities in

plantation areas will go a long way in providing market access. This will result in
5
remunerative prices to the growers for the crops. With this in view, the Task Force
recommends the institution of plantation development bonds to be subscribed by the
members of the public to be wholly available to development of infrastructure and
plantation areas. The bond could be of long-term duration say of 10 years.
8. The Task Force feels that the above bonds should be issued by the PSFT already
established by the Government and this Trust must be made into a statutory body
considering the various recommendations that the Task Force has made that will make
the Trust the focal body. Once this is done, the Price Stabilization Fund Trust would
become very effective resulting in synergies between price stabilization functions in the
sector and its management.
9. The Task Force recommends the introduction of measures to facilitate commodity

boards – PSFT to help self-help groups and other farmers groups - in fair marketing for
their produce. Today, part of the problem faced by the small growers is inadequate
realization for their produce considering the ultimate price which the consumer pays for
the final product. Such measures which enable the growers or groups of growers to
process, store and market the products would enable them to realize a much better price
for their products than what is happening today.
10. As far as tobacco is concerned, the Task Force advocates extension of group
insurance and group life insurance to tobacco growers and labourers. As far as price
stabilization is concerned, the Task Force notes that the price volatility for Flue Cured
Virginia (FCV) tobacco has been somewhat tempered by the market intervention
measures adopted by the Board, prescription of quota limit that constrains supplies and
keeping FCV tobacco prices coming down. In this background, therefore, the tobacco
crop stands in somewhat a different manner than other commodities for which price
stabilization measures have been recommended by the Task Force.
***
6
CHAPTER – I
INTRODUCTION
1.0 Agriculture has been the oldest form of activity practiced by people in the
civilized world. Though many of the developed countries have moved away from
agriculture as their main stay of economic activity, there is no ruling out of agriculture as
part of the basic economic activity in any part of the world, there are still certain areas of
the globe, where agriculture is predominant and influential in determining the well-being
of the people. India is one such country which is attempting to get out of a situation
where agriculture was exclusively important to a stage where agricultural operations are
still a major avocation to many of its citizens. This probably is due to the fact we in India
have a large land mass given to growth of species. In recent years, however, the share of
agriculture to the total gross domestic product (GDP) of the country has been coming
down, but still retains an important role in the economy of the country. Plantation is a
part of agriculture – in that the cultivation of crops is on a longer time-frame and is better
organized and sophisticated. In that, there are organisations which have been in the
business for hundred years and more and where the farming methods have been to a large
extent modernized. The total number of people engaged in the plantation industry
directly comes to more than two million but if one were to take note of the sprinkler
effect of people who are peripherally connected to the sector and agencies that inter-act,
the total number of people engaged in the sector would be more than three times the
number directly employed.
7
1.1 The cultivation of plantation crops has been taken up in areas which are
conducive to their growth and they are mainly dictated by considerations of rainfall,
altitude where estates are situated and the availability of labour. It is seen that the
traditional areas of plantation crops are undergoing a change and newer and newer areas
are taking to growing plantations crops. Such an expansion has been dictated by more
than one ground, namely, the availability of land, the growth in markets both domestic
and foreign which make the growth of plantation crops in non-traditional areas also
worthwhile and the necessity to provide employment opportunities to a large number of
people who are rurally bound.
1.2 Some of these crops which are peculiar to the Indian conditions and where their
growth potential has been found to be in sync with the climatic conditions and the
availability of cheap labour have encouraged a spread to non-traditional areas; other
countries fastly emerging from under-development have also adopted the strategy of
growth of this crop areas, as foreign exchange earners and have tended to modernize
production processes. These new areas get over the problems faced by the traditional
areas like fairly old aged plants needing replacement, lower yields, the soil getting
affected due to longer cultivation periods affecting once again the average yield of crops
leading to increased cost of production making such a production uncompetitive in the
world markets in a free market economy. It is for this reason that countries which have
taken to growing plantation crops in the recent past such as Vietnam, Combodia, parts of
Africa etc. enjoy price advantage over the Indian producers. This also makes the Indian
sector uneconomic compelling the government to step in with assistance during the
periods of financial stress and otherwise. The continuance of the operations in the sector
8
is something which can not be compromised due to the strategic importance, potentiality
to earn foreign exchange and above all the number of people who are directly and
indirectly engaged in the sector. Economic, social and political reasons compel the
continuance of operations in this sector as a matter of necessity and strategy.
1.3 A plantation crop normally is mono-culture and includes growing of a variety of
products like Tea, Coffee, Rubber, Pepper and other spices. In a larger coverage, spices
also include products such as chillies, cinnamon and other products normally used in the
Indian kitchens. Tobacco also is classified under this category.
1.4 The domestic production from the Indian plantation sector had been in the past
beyond the absorbing capacity of the indigenous market and hence there was a necessity
to tap their export potential. Various schemes were put in operation by the Government
either on its own or through the Commodity Boards which have been set up by the
Government to enable quick and proper attention to be paid to the growers. The sector
has also been subject to a catena of enactments which brought into existence a regulatory
procedure. For each of the commodities, a Board exists under an Act of Parliament like
the Coffee Board, the Rubber Board, Tea Board, the Spices Board, etc. Some of these
Boards have extensive inter-action with the growers of their respective commodities and
in effect provide all allied services necessary to make a product of the sector eminently
marketable. These procedures, however, had to undergo a significant change where the
growers fell that too much of their freedom had been affected and the Commodity Boards
acted in a restrictive manner affecting their freedom. Some of these Boards still act as
large store houses, where commodities are bought at the best possible prices by the
9
Boards and held till remunerative prices are prevalent for their sales. Some others like
coffee growers have moved away from this concept to create individual niches in the
market by production of quality products.
1.5 The importance of the plantation sector in the general firmament of the Indian
economy would be realized, if one were to know that 15% of the total agricultural export
earnings come from crops like tea, coffee and rubber – although these industries occupy
only one percent of the total plantation area. Another feature noticed in the sector is the
prevalence of holdings by small, intermediate and large growers. Surprisingly, it is seen
that the largest number of owners of coffee estate fall in the category of ownership of
upto 10.12 hectares. Whereas in the case of tea, the situation is entirely different where it
is noticed that 80% of the plantation area and production is controlled by big companies.
The prioritization of the requirements of the sector have received recognition now at the
hands of the Government because of the changing demography of these estates, a fall in
production of the crops because of their age and the volatile nature of the international
market which determines directly or indirectly the realizations from the product of the
sector. In the absence of an organized market which would respond to the prevalent
conditions, the prices of the Indian plantation crops get determined by the prices of these
commodities prevalent in the world market though Indian producers may claim that the
productivity and the acceptability of their product is much better than what is given to the
products from the countries like Brazil, etc. Since the average cost of production of a
product in the other producing countries is lower than what it costs to produce that
product in India, there is always a fear that the Indian products and the Indian production
still suffer because of the pricing mechanism adopted by the foreign growers.
10
1.6 Of late, the realizations on the tobacco and the rubber products has been very
good and the Indian levels of productivity are found to be larger than the productivity of
the some of the countries where these products are grown. In the case of tea, a certain
amount of depression seems to overhang in the market. There are certain incidental
issues which have been raised by the representatives of the growers which merit an
immediate attention and to which we have referred in the subsequent part of this Report.
All said and done, the Indian plantation industry is today governed by the development in
the international plantation arena and to a large extent movement of prices out side India
decide the comparative strength of Indian growers.
1.7 Government has been seriously contemplating a measure to correct these
developments and some references to these are made in the subsequent chapters.
11
CHAPTER – II
BACKGROUND
2.0 As was mentioned in the concluding part of Chapter – I, the Indian Plantation
Industry is not free from the effects of the development of the International Plantation
Industry. Many of the producing countries in Asia which divert a part of their production
to their domestic markets, continue to rely on the London market or New York Stock
Exchange where their products will be put on public display and with the efforts of
intermediaries markets for the Indian produce would be determined and sustained. Tea
options, coffee options, etc., take place outside India which decide the sort of support as
far as price is concerned which the growers in the plantation sector in the country would
receive.
2.1 In the recent past, the performance of the coffee market in India has been so
violent that the recoveries often times have been at below the cost. Though traditionally,
we have been looking at the coffee business from the Indian organizational set up within
the country – the fact of the matter lies in that the whole prospect of growth and
marketing of the products gets indirectly assessed and determined by the world factors.
In the last five years or so, the Indian coffee market has suffered a big blow – in that its
projected realizations on the basis of coffee crop has been found not to meet even the cost
of the production leave alone provide a margin for the growers.
12
2.2 Certain measures taken to strengthen the hands of the producers by grant of loans,
etc., at lower rates of interest, have led to a position where not much is being achieved.
Price support measures taken by the Government by establishment of a price
stabilizations trust have received only sporadic support from the industry and the
growers.
2.3 To sustain the sector as a whole and to make the sector viable and economic and
to suggest measures that could be adopted by the Government of India in regard to failure
of the crops, etc., Government came out with the proposal to constitute a task force
consisting of the following individuals :
(1) Shri N. Rangachary, Chairman, Task Force
(2) Dr. Vijay Kelkar, Member, Task Force
(3) Prof. A. Damodaran, IIM, Bangalore
(4) Prof. S. Gangopadhyay, IDF, New Delhi
(5) Prof. Bharat Ramaswamy, Indian Statistical Institute
2.4 The constitution of the Task Force, the Experts co-opted and terms of reference
are given in Annexure – I to this Report.
2.5 It will be seen that one of the primary conditions which the Task Force has to deal
with is the creation of a mechanism by which the volatility in the market regarding prices
13
may be eliminated and in more ways than one, adoption of non-traditional methods of
tackling this problem have been prescribed to be desirable.
14
CHAPTER – III
METHODOLOGY
3.0 The taskforce had intensive interaction with each commodity board/agency
dealing with these products. Each organisation made a detailed presentation before the
task force. The Task Force also had interaction with all other stakeholders particularly
the growers and their organizations and identified the main issues of concerns that need
immediate redressal. The Task Force further assessed the export potential of various
plantation crops, tobacco, spices and floriculture and their potential to earn foreign
exchange for the country. They were detailed discussions with bankers and insurance
companies as well.
3.1 The Task Force held detailed discussions with the Chairpersons and officials of
the Commodity Boards and also interacted with representatives of small growers,
insurance companies, NABARD and commercial banks.
3.2 Apart from this, the task force analysed the historical performance of each sector
trend of growth, productivity, prices trends in international market over a period of the
last 10-15 years leading to a comparative position vis-à-vis other competing countries.
The task force also analysed the average cost of cultivation of each crop and also the
financial burden in the form of taxes, transportation cost and various duties like central
excise, custom duty, VAT etc. on major inputs that are required for sustaining the
plantation crops.
15
CHAPTER – IV
SECTORAL OVERVIEW – TEA / COFFEE / RUBBER / SPICES
4.0 Keeping in view the differences in background, contexts and the industry needs,
this section briefly highlights respective sectoral profiles followed with an overview of
the emerging challenges facing the plantations in India keeping in view both the domestic
and the overseas market conditions in the post-WTO regime.
4.1 The Plantation Sector has been instrumental in developing under-developed
regions in different areas of the country. Tea is cultivated in remote, hilly regions and
coffee is an integral part of the ecology of the Western Ghats. While the bulk production
of coffee, natural rubber and spices are dominated by small-holdings, in tea nearly 80% is
accounted for by the corporate sector. This section briefly highlights respective sectoral
profiles followed with an overview of the emerging challenges facing the plantations in
India keeping in view both the domestic and the overseas market conditions in the post-
WTO regime.
(A) TEA
4.2 India is the world’s second largest producer of black tea employing a workforce
of more than 2 million people. India produces around 927 million kgs accounting for
27% of world production. India is also the world’s largest consumer of tea. Domestic
consumption has gone up from 17 million kgs in 1951 to 790 million kgs at present.
16
4.3 Production of tea is an important economic activity in Assam and West Bengal in
the North and Tamil Nadu and Kerala in the South. Tea is also grown in non-traditional
areas such as Himachal Pradesh, Uttarakhand and Kishanganj district of Bihar. Tea grows
from the plains to an elevation of nearly 2500 metres, spread over different climatic
zones which enables India to produce different types of teas.
4.4 The area under tea cultivation is presently around 5.2 lakh hectares. The Tea
Board of India and Indian Tea Association give a cut-off line of 10 ha cultivation area
between small growers and estates. Small growers who number about 1,27,366 account
for 21% of the total area under tea. Their contribution is presently about 21% of all India
tea production with around 213 million kgs production of tea. The organized sector
comprising around 1600 tea estates above 10.12 ha. Accounts for about 80% production
of tea. Half of these are located in the North Eastern State of Assam, a quarter in West
Bengal and the rest in South India. The state-wise and size-wise distribution is as follows:
State-wise distribution – (2005-06)
o Assam 476 million kg (51.2%)

o West Bengal 216 million kg (23.2%)
o Tamil Nadu 155 million kg (16.7%)
o Kerala 67 million kg (7.2%)
o Others 16 million kg (1.7%)
Size-wise distribution – (2005-06)
o Tea estates greater than 100 hectares – 1079 gardens (74.5% area)
o Total for greater than 10.12 hectares -1614 gardens (78.8% area)
o Upto 10.12 hectares (small growers) – 1,27,366 (21.2% area)
17
4.5 The tea industry occupies an important place in the plantation sector in India not
only because of the significant level of production of tea but also because this sector is
related to the livelihood concerns of a large number of people employed directly and
indirectly in this industry and its ancillary activities. The tea sector impacts the livelihood
of 3 million persons comprising women and disadvantaged sections of society. This
workforce possess no skills other than plucking green leaf and are mostly landless.
4.6 In India the small growers are mainly located in Nilgiris (Tamil Nadu) but the
number of small growers is growing significantly in West Bengal, Assam, Bihar and NE
States as well. In the last 10 years, there has been phenomenal growth in the small
growing sector compared to the traditional organized tea sector. During mid 1990s many
small farmers in Assam and North Bengal and unemployed youth started taking up tea
cultivation given the abundance of uplands, proven agro-technology, skilled labour and
assured green leaf market.
4.7 The smallholders only grow tea whereas the corporate sector has manufacturing
facilities as well which transforms the green leaf into a ready to consume beverage. The
fairly large quantity of ‘ordinary’ tea produced by the small growers is sent to bought-leaf
factories for processing. This often results in low returns to the grower and impacts prices
in the market. The bought-leaf factories produce approximately 175 million kgs of tea,.
Concerted efforts have been made by the Tea Board to help the small growers to not only
improve their plucking standards, but also handle the plucked leaf in a proper manner.
18
4.8 The gains from productivity and profitability which arise in processing for the
market are not always passed on to the smallholder. Smallholdings in India, especially in
the south, generally use their own family labour. Their reliance on hired workers is
minimal. Some of these smallholders even work as wage labour in the estate sector.
4.9 Women workers on tea plantations have their own labour identity. In North India
the division of labour between men and women, is based on shared relationships rather
than on domination and exploitation. Which exists in most rural households.
Table showing important parameters : 2005-06
Parameters Tea
Production 930,850
Area ( in lakh ha) 5.21
Productivity (kg/ha) 1785
Exports : Quantity (MT) 181,060
Exports: Value (Rs in crore) 1631.60
Imports : Quantity (MT) 16,400
Imports : Rs. In crore 99.26
Prices Rs/ Kg. 58.06
(B) COFFEE
4.10 Some of the world’s finest Arabicas and Robustas are grown in India on high
elevations in thirteen geographically unique regions including the Anamalais (Tamil
Nadu), Araku Valley (in Orissa), Bababudangiris (Karnataka), Shevaroys (Tamil Nadu),
Nelliampathys and Wayanaad (Kerala). Indian coffees are shade grown, hand-picked and
sun-dried on plantations abundant with rich flora and fauna. India cultivates all of its
coffee under a well defined two-tier mixed shade canopy, comprising evergreen
19
leguminous trees. A wide variety of spices and fruit crops like vanilla, orange and banana
grow alongside coffee plants.
4.11 Coffee is produced in an area of around 3.5 lakh hectares, pre-dominantly in
Karnataka, Kerala and Tamil Nadu. The share of Karnataka, Kerala and Tamilnadu are
70.7%, 21.3% and 6.9% respectively whereas the share of NTA & NE Region is 1%.
The estimated production of coffee is 2,81,900 tonnes comprising of 98,550 tonnes of
Arabica and 1,83,350 tonnes of Robusta (35% & 65% respectively).
4.12 India has over 1.78 lakh coffee growers, out of which 1,75,475 of which fall
within the small growers’ category and balance 2,833 holdings fall under large holdings
(above 10 Ha category). Small holdings account for about 71.8% of the total area i.e,
2,54,932 ha. Due to its labour intensive nature, it is an important source of rural
employment for men & women, especially in parts of South India.
4.13 The coffee sector has inherent limitations in increasing the productivity to bring
down the cost of production. Coffee is grown in harsh conditions under unpredictable
weather situations, lack of options for organizations and accessibility and infrastructure
bottlenecks in hilly coffee growing tracts etc.
4.14 Although India contributes only around 4.5% of the world production, Indian
coffee has created a niche for itself in the international market, particularly Indian
Robusta which is highly preferred for its good blending quality. The Indian Coffee
Industry is now gaining recognition among reputed global roasters, who are sourcing
coffees from India for their numerous blends
20
Parameters Coffee
Production 274,000
Imports : Quantity (MT) 24028
Prices Rs/ Kg. Arabica: 114.29
Robusta: 53.37
I RUBBER
4.15 Rubber plays an important role in the industrial and economic development of the
country. Rubber plantations provide the principal raw material required for manufacture
of around 35,000 items of rubber products ranging from toy balloons to tyres of giant
earth moving equipments.
4.16 Cultivation of rubber was introduced in the country during the first decade of this
century. Rubber is primarily grown in the State of Kerala and adjoining Kanyakumari
district of Tamilnadu, which are the traditional rubber growing areas of the country. Both
areas are geographically and agro-climatically suitable for rubber cultivation. However,
there has been a shift in the geographical composition of area over the years due to the
Rubber Board’s policies and programmes implemented during the VI and VII Five-year
Plans for the introduction and promotion of rubber cultivation in non-traditional regions,
especially in the North-east. Currently, Rubber is also grown in Tripura, Assam,
Megahalaya , Mizoram, Manipur, Goa and Coastal Karnataka. Besides, rubber has
21
recently been introduced in the states of Orissa, Andhra Pradesh, Madhya Pradesh and
West Bengal.
4.17 Rubber plantations are spread over 5.78 lakh hectares in 16 states of the country.
The production sector of the country is dominated by small holdings, which accounts for
91% of the production and 88% of area with an average holding size of 0.5 hectare.
There are nearly 1 million producers and about 0.7 million people engaged in the
plantation sector as workforce either directly or indirectly.
4.18 With sustained research and development activities being carried on by the Rubber
Board coupled with extension and advisory services and transfer of technology to the
fields, India has become the fourth largest rubber producer in the world next to Thailand,
Indonesia and Malaysia with an average productivity of around 1796 kg. per ha., the
highest amongst the major natural rubber producing countries in the world. The country is
also the fourth largest consumer of natural rubber.
Parameters Rubber
Production 803,000
Prices Rs/ Kg. 66.99
22
(D) SPICES
4.19 India is the land of oriental spices. Indian spices are used in over 130 countries
and their intrinsic quality in terms of taste, flavour, colour and fragrance has further
increased the demand for Indian spices. Major spices and spice products, exported from
India are Black Pepper, Cardamom, Ginger, Turmeric, Chillies, Seed spices, Mint Oils
and Oleoresins. The world demand of spices is projected at 7.50 lakh tones valued at
1650 Million US $ during 2003-04.
4.20 Spices are cultivated in almost all the States in the country. There is an area of
about 25.3 lakh ha. (2004-05) under spice cultivation. 75 spices out of the 109 spices
listed in ISO list are grown in this country and production is about 4.04 million tones.
The major spice producing states in India are Kerala, Karnataka, Tamilnadu, Andhra
Pradesh, Madhya Pradesh, Gujarat, Maharashtra, Orissa, Rajasthan and North Eastern
states.
4.21 India is endowed with a rich diversity and excellent collection of spices having
intrinsic quality. The center of origin of two major spices, viz., Black Pepper and
Cardamom are the western ghats of India. The country has excellent infrastructure for
research and development of spices with Indian Cardamom Research Institute (Spices
Board), Indian Institute of Spices Research, Directorate of Arecanut and spices
development, State Agricultural Universities etc. Value addition in spice industry is well
developed in the country. The organic spices market is also showing desirable annual
growth rate. There is an expanding global organic market for organic spices. Alternative
systems of medicine are gaining importance in the western world and India has a rich
23
tradition of Ayurveda and many of the spices are having medicinal properties and are
mainly used in Ayurvedic medicines. Research efforts are being put into validate the
medicinal, therapeutic and nutraceutical properties of Indian spices in the modern
medicine.
4.22 Although historically India is the land of spices, India’s leadership position has
been facing ups and downs both in volume and value terms. The major constraints in
spice production and export are low productivity leading to insufficient exportable
surpluses, increasing stringency in quality norms of the importing countries (such as
pesticide residues, mycotoxins, microbial infection and poor quality control) and
increasing competition from newly emerging producers in South East Asian countries
like Vietnam, with practically no internal demand.
4.23 Effort of Spices Board is to address issues like low productivity, improvement in
quality and high end value addition and for broadening the export basket of spices from
India.
Following tables show the important indices of the spices.
TABLE SHOWING IMPORTANT PARAMETERS
Parameters Spices Year

Production 4.04 Million tones 04-05
Area ( in lakh ha.) 25.3
Productivity (kg/ha.)
1. Cardamom (Small) 209 06-07
2. Cardamom (Large) 195
3. Pepper 310
4. Ginger 4636
5. Turmeric 4536
6. Chilli 1608 04-05
24
Parameters Spices Year
7. Cumin 479
8. Fennel 1279
9. Fenugreek 1245
10. Coriander 726
Exports : Quantity (MT) 320527
Exports : Value (Rs. In crore) 2295.25
Prices : Rs/Kg
1. Cardamom (Small) 215.56
2. Cardamom (Large) 107.84
3. Pepper 66.44 05-06
4. Ginger 99.40
5. Turmeric 49.45
6. Chilli 24.57
7. Cumin 64.47
8. Fennel 57.58
9. Fenugreek 16.72
10. Coriander 20.72
(E) FLORICULTURE
4.24 India produces a wide variety of flowers- rose, chrysanthemum, marigold ,
jasmine, heliconias, carnations, etc., in various agro-climatic conditions in the country.
115921 hectares of land is under floriculture cultivation. Major states producing flowers
are Tamil Nadu, Karnataka, Haryana, Andhra Pradesh, Maharashtra, West Bengal and
Gujarat. The total production in 2004-05 is estimated to be 654837 metric tons and 19515
lakh stems. This includes open air cultivation and green house cultivation.
25
4.25 Department of Commerce is concerned with the export oriented floriculture viz the
green house cultivation. 500 hectares is presently under green house cultivation. The
export of floriculture products is given below.
(Qty in Mts;Value in Rupees crs)

2002-03 2003-04 2004-05 2005-06
Qty Value Qty Value Qty Value Qty Value
-- 165.86 30659.53 249.55 26262.35 210.99 NA 305*
(*Fresh cut flowers accounted for exports valued at Rs 74.13 crs.

This includes dry flowers, greens, potted plants etc.)
4.26 Trade in floriculture is one of the most rapidly expanding global enterprises
today. The international trade in floriculture is expected to grow to US$ 16 billion by the
year 2010 from the present level of US$ 11 billion. Although, the value of export of
floriculture products from India has registered impressive growth from Rs. 18.83 crores
in 1993-94 to Rs. 305.00 crores in 2005-06, India is still only a marginal player in the
world floriculture trade with less than 1% share. With the wide range of agro-climatic
conditions available in the country, India could emerge as a major supplier to the
international flower market provided we address some of the constraints impeding our
competitiveness in the world market. The growth in exports would generate rural
employment and income to the farmers and bring in efficiency to the entire production
process through better technology and international quality standards.
4.27 A large number of floriculture units had come up during the early 1990’s with
focus on exports. For various reasons they could not perform well and a large number of
26
them are sick and declared NPA’s by banks. APEDA had entrusted a study of these units
with a view to assist in their revival/rehabilitation. The reasons for their sickness range
from lack of due diligence on the risks associated with the projects on the part of the
promoters due to lack of technical knowledge, high capital costs, poor yields, older
varieties etc.
4.28 Most of the floriculture units are not operationally sick, i.e. at the operational
level the business is generating profits, albeit only at a marginal level and most units do
make cash profits before providing for their interest obligation. However due to the high
interest burden most units have become financially sick and unable to repay the lenders.
4.29 The banks and financial institutions have provided either fully or a large part of
the loans based on the RBI provisioning norms for NPAs. Most of the cases have been
referred to the Debt Recovery Tribunal (DRT) or to Civil Courts by the lenders.
4.30 Steps are underway to assist in rehabilitation of the sick units which should pave
the way for renewed interest and activity in this sector which has a very good potential
for exports and for employment generation.
(F) TOBACCO
4.31 Tobacco is one of the most important crops in India, with around 26 million
people relying on it for their livelihood, both directly and indirectly. India is the second
largest producer of all types of tobacco after China constituting 10% of world production
of tobacco. It is the sixth largest exporter of all types of tobacco having 4.5% share in the
27
world market. India is the only country growing different types of tobacco in varied
agro-climatic conditions. Tobacco in India is grown mainly in A.P. and Karnataka, and
to a small extent, in Maharashtra, Gujarat and Orissa. It is a significant source of foreign
exchange with Rs. 1345.83 crores being generated through export of tobacco & tobacco
products export in 2004-05 and Rs.1404.72 crores in 2005-06.
4.32 Approximately 680 million Kgs. Of tobacco is produced annually in about 4 lakh
hectares in India of which the share of various categories is as below:-
Flue Cured Virginia (FCV) Tobacco 35%

Beedi Tobacco 30%
Hookah Tobacco Paste 10%
Snuff and Cigars 5%
Chewing Tobacco 12%
Natu, Burley and others 12%
4.33 FCV tobacco is the most important of these varieties; both from the point of view
of export earnings and excise revenue. It constitutes about 70% of tobacco exports. India
is the 5th largest producer of FCV tobacco in the world after Brazil, Zimbabwe, USA and
China and it is primarily grown in the states of Andhra Pradesh and Karnataka.
4.34 The Tobacco Board was constituted in 1976 with the objective of promoting the
planned development of the tobacco industry, under the overall control of the Union
Government. The Board regulates the production, curing and marketing of FCV tobacco.
It also monitors fluctuations in market demand, both domestic and international. For FCV
tobacco in order to help in devising appropriate market strategies. In addition, it conducts
28
extension and developmental programmes for the benefit of the growers. In essence, its
function is to further the interests of the growers, manufacturers and exporters of FCV
tobacco, while keeping the larger interests of the nation in mind
4.35 As per the Tobacco Board Act, the FCV Tobacco Industry has been brought under
the control of Government of India. The Tobacco Board is responsible for regulating the
production and curing of Virginia tobacco keeping in mind the demand for tobacco, both
domestic and international, the marketability and the need for crop rotation. The Board
carries out is responsibility by registering the nurserymen and growers and licensing the
barn operators. Every year, the Board lays down the production policy, fixes the crop size
and registers the growers and
barn operators. FCV tobacco is marketed through auctions conducted on the auction
platforms of the Tobacco Board.
Period of harvest and auctions etc.:-
Andhra Pradesh Karnataka

rd
Plantation 3 week of September to Last week of April
2nd week of December to May end
Curing 4th week of November to 1st week of July
February end August end
nd
Marketing 2 fortnight of January September 2nd week
Auctions May to December end.
AP includes AP + Maharashtra + Orissa (Source: Tob. Board)
29
4.36 The Department of Commerce is concerned with regulation of the production,
curing and marketing of FCV tobacco. The details of production of the same are given
below.
PRODUCTION STATISTICS
(Area in Ha., Crop in M.Kgs.)
Crop No. of Crop Crop Area Area Crop Mar

Season State growers size autho Regd. Planted keted
Regd. fixed Rised
1998-99 A.P. 44546 99.82 99.29 90640 129230 147.18
Karnataka 18371 40.00 39.97 27588 54236 54.69
Total 62917 139.82 139.26 118228 183466 201.87
1999-2K A.P. 44629 101.61 101.28 89883 128760 131.37
Karnataka 18427 40.00 39.98 38221 51989 45.30
Total 63056 141.61 141.26 128104 180749 176.67
2000-01 A.P. CRO HOL I D AY
Karnataka 18131 P 23.46 19512 40012 41.98
Total 18131 25.00 23.46 19512 40012 41.98
25.00 41.98 41.98
2001-02 A.P. 44029 107.45 102.58 86884 87754 120.04

Karnataka 18751 38.07 36.99 29852 47699 57.68
Total 62780 145.52 139.57 116736 135453 177.72
2002-03 A.P. 44782 105.48 103.77 88498 93209 127.67
Karnataka 19351 50.00 49.18 31063 56364 63.25
Total 64133 155.48 152.95 119561 149573 190.92
2003-04 A.P. 45583 111.06 110.42 94985 109188 147.98
Karnataka 19702 53.00 45.02 34225 69159 73.69
Total 65285 164.06 155.44 129210 178347 221.67
2004-05 A.P. 45187 111.06 108.16 89332 113334 153.01
Karnataka 39498 67.00 66.50 48844 69701 90.34
Total 84685 178.06 174.66 138176 18303 243.35
2005-06 A.P. 0.1**
Karnataka 58.97*
Total
*As on 11.1.2007 ** As on 18.1.2007
Note: - C.H. Crop Holiday (Source: Tobacco Board)
30
CHAPTER – V
FUTURE CHALLENGES
(A) Within the domestic market
Price Volatility
5.0 The plantation sector has witnessed growth with periodic booms and busts. The
prices of these commodities have been cyclical in nature and subject to international price
volatility. This is attributable to an over supply situation and increasing uncertainty in
market conditions. Volatile and unpredictable prices have inhibited investment and
adjustment to market conditions, particularly for small growers and destabilized their
incomes and savings. Low grower realizations lead to reduction in farm inputs and farm
operations resulting in reduced productivity.
5.1 While tea accounts for 27% of world production, coffee and rubber account for
4.5% and 8.6% respectively. In India, movements in the prices of these commodities are
caused by the international reference price but not vice versa due to the relatively low
share of India in global exports. In the long run, prices in India tend to move in
accordance with international prices.
5.2 As a commodity, coffee has mainly been an exportable product for almost all
producing countries. It is estimated that 70% of global coffee is grown in farms of less
than 10 ha. Traditional producers who are not cost competitive are subjected to a severe
competitive squeeze. In India, small farmers in the coffee community accounting for a
major share of the total output do not have a realistic option of diversifying into a crop or
activity that provides a viable return when coffee cultivation does not yield the desired
31
returns. Small holders find it most difficult to adjust to free market conditions especially
when they were hitherto protected by pooled marketing systems. The challenge therefore
is how to achieve an orderly market balance where coffee prices will guarantee a
reasonable return not just to the efficient producer but to the average and smaller
producers.
Supply-Demand Equilibrium
5.3 Historically, the tea and coffee sectors have had excess supply over demand. In
tea, persistent surplus production and intense competition among major producers for
increasing respective shares in stagnant markets has driven down international prices of
tea.
5.4 In the world coffee economy the supply constraint caused by the frost in Brazil in
the mid nineties was followed by a period of abnormally high prices which in turn
prompted a surge in production that substantially altered the global production structure
leading to the worst ever coffee crisis in terms of producers’ income. Coffee growers
went through a period of serious crisis on account of historically low prices that prevailed
between 2000 and 2004, owing to a supply – demand mismatch. The growers are still to
come out of the economic trough owing to the overhang of accumulated debt
commitments of the past 4-5 years.
5.5 Small and marginal holdings account for 91% of the production of Natural
Rubber in the country involving about 1 million small growers among whom more than
15000 are ‘jhumia families’ in the North East. Violent fluctuations in price would
32
therefore have far reaching socio-economic consequence for this sector. In India the
production sector is dominated by sheet grades and there exists also a captive domestic
market. Domestic rubber consumption is dominated by the unorganized non-tyre sector
which primarily consumes sheet grades of rubber. The emergence of this fast growing
consuming industry ensured that not only the entire rubber produced was consumed but
the gap between production and consumption was also filled up through import. Since
the supply, in general, was short of demand, domestic rubber commanded a better price
than in the international market. This position was maintained up to the 1990s by
protectionist policies. The situation changed during 1990s in the post-WTO scenario
when liberalization policies were adopted.
Pests and diseases / Vagaries of weather
5.6 Plantation farming activities are vulnerable to biotic and abiotic disturbances,
specifically to pests and vagaries of weather. The latter include rainfall- its deficit or
excess, distribution, extreme temperature conditions, hail incidence, extreme wind speed,
humidity variations etc. While biotic risks (typically pests, diseases, weeds ) can be
mitigated with the use of technology/appropriate inputs, the challenge lies in providing
risk mitigation measures for abiotic risks.
5.7 In the coffee sector, drought conditions and build up of temperature in coffee
growing regions are conducive for the white stem borer pest to manifest and spread
rapidly in all most all Arabica growing tracts. The quality of coffee beans is also affected
as the beans harvested out of dying borer attacked plants produce hollow/light beans. For
long term sustainability in the plantation sector, necessary relief is required to be made
33
available to growers by providing insurance cover against adverse weather incidence
whose frequencies and impact are generally correlated with the eco-zone. The tea sector
has been affected by drought conditions and with pests like tea mosquito. NR is prone to
natural calamities (fire, earthquake and other natural hazards). High crop loss in NR is
due to abnormal leaf fall disease.
Competing beverages and presence of overseas suppliers
5.8 With the onset of globalization, the sector is today faced with different challenges
including that of new global competition from low cost producers and shrinking markets.
The larger beverage market has numerous competing products. While tea and coffee
compete amongst themselves for the larger share of the consumer market, they also face
competition from the soft drinks sector. Imports are also being effected into the domestic
market with the onset of trade liberalization. For sustained development in the face of
stiff international competition, especially from new entrants such as Vietnam, it is
imperative to arrest declining productivity, boost global competitiveness and render
plantation operations viable. In tea, it is difficult to establish a direct correlation between
the auction price and the retail price on the tea as the product is transformed from a
“commodity” as the auction level to a “brand” before it reaches the final consumer. The
emergence of a large number of players has also distorted the domestic tea market.
5.9 Small growers in tea are fragmented. This enables the leaf collection agents to
play a larger role which further distances the farmer from the primary market price of
made tea. Small growers are ‘price takers’ and do not exercise any control over green leaf
34
pricing. Further, since the green leaf price paid to the small growers is linked to the
auction price, any price fluctuations in the auctions directly affect the price realized by
the small grower, more noticeably in South India. Since small growers cannot control
green leaf price, their emphasis often shifts to increasing volumes (to increase earnings)
at the cost of quality.
Non-Availability of credit and Debt overhang
5.10 The low prices prevailing over the last four-five years has resulted in small
growers being unable to recover their cost of production. In the coffee sector, adverse
weather conditions during the past few years, resulting in lower production of coffee,
added to the difficulties faced by them in servicing their debt burden, which related
mainly to loans taken when the prices were at peak levels during the mid 1990s.
5.11 At present, the growers are not in a position to take up capital investments like
replanting, in addition to regular estate operations. Due to the existing debt burden, the
banks are also not forthcoming to extend further loans to the growers for making capital
investments. Hence, credit flow to the coffee grower sector is very crucial. The
Government had introduced a package of relief measures primarily aimed at debt
amelioration to bail out the coffee industry and to ensure its future growth.
Inability to shift to alternate economic activity
5.12 Plantation growers are linked to the land and the standing crops they have
harvested for generations. Being unskilled, they cannot take up any other economic
activity. Further, they lack other economic assets. The majority comprise women and
35
persons from economically deprived sections. The size of the labour (direct as well as
indirect) and their dependants is huge.
(B) Shrinking international markets
Emergence of low-cost competitors
5.13 The major reasons for overall decline in the share of the Indian tea in the world
market are the stiff competition being faced from other low-cost competitors and
exporting countries like Sri Lanka, China, Indonesia, Vietnam & Kenya, various tariff
and non-tariff measures imposed by some of the tea importing countries like Russia,
Egypt and Iran, lower offtake by Russia due to change in consumer preferences and
higher prices of Indian tea due to high cost of production. Further, due to a substantial
domestic market, export of tea has not been a primary concern for the tea industry. The
focus was on the domestic market, rather than on creation of a competitive product to
meet global demand. Traditional coffee markets have like Russia have seen competition
from low cost producers like Vietnam. The situation with regard to other plantation
crops and spices is facing stiff international competition. And the domestic prices are
also affected by the volatility of international prices. Even in floriculture crops, there is a
very tough competition from African countries where costs of production are lower and,
in any case, their products are cheaper in the international markets due to lower costs of
transportation whereas Indian industry suffers due to freight disadvantage.
36
Growth of Mature/differentiated markets
5.14 In today’s competitive global market, the scenario is fast changing. In developed
markets tea and coffee are no more merely commodities. They are niche and lifestyle
products. On the contrary, in India they are still perceived to be commodities. The
instant coffee market in India, however, has been a duopoly of Nestlé and Hindustan
Lever for decades. Of late, other players have come in. These players differentiate their
products through branding and packaging. Hence, the challenge before the industry,
today, is to graduate to these niche markets though a process of constant differentiation of
products. The industry has to reconfigure to become a fast changing, high value adding
creator of markets to cater to the demand for niche-products. At the same time, the
challenge would lie in addressing the issue of price percolation to the grower for
sustainable development. There has to be greater synergy between the industry and the
growers of these commodities.
5.15 Possible Remedial Mechanisms analysed in various sections of this report seek to
protect growers’ incomes in the face of price volatility and put in place risk mitigation
measures for tackling Pests / Diseases / Weather / Natural Calamities as per individual
sectoral needs.
Treatment of Plantation Crops under the WTO Regime
5.16 Due to its labour intensive nature, these sectors are an important source of rural
employment for men & women. A huge rural population is dependent on their
cultivation. In the absence of alternative economic employment opportunities, the
37
sustainability of these sectors is vital for protecting the livelihood concerns of people
directly and indirectly engaged in production in these sectors. Coffee is cultivated in
fragile eco systems, and the contribution made by the coffee farming communities
through maintenance of tree cover is extremely significant, both for the sustenance of
flora and fauna in the region and for safeguarding the socio economic fabric of these
remotely located regions. Small farmers do not have a realistic option of diversifying into
a crop or activity that provides a viable return when cultivation of these commodities do
not yield the desired returns. This is partly due to restrictions of market access to other
crops in developed countries. Further, several commodities which are of great
significance for food security in developing countries are subjected to high levels of
export subsidies in developed countries. These subsidies artificially depress international
prices and lower the farm incomes of producers in importing countries and thus adversely
affect their livelihood.
5.17 WTO members adopted a framework on 31st July 2004 for establishing
modalities in agriculture. This framework has drafted provisions for according Special
and Differential Treatment (SDT) to Developing Countries as part of the Doha Round.
The two instruments/components proposed under the SDT include the following:-
(a) Designation of Special Product (SPs)

(b) Special Safeguard Mechanism (SSM)
5.18 Products designated as SP would be submitted to special treatment in terms of
market access commitments. Provisions on SSM would provide developing countries
with an instrument to address import surges and price drops. India needs to establish a
38
strong case for designating tea and coffee and other plantation commodities as ‘Special
Products’ in the context of a developing country such as India. This is in view of the
following:-
A significant proportion of the domestic consumption of plantations in its

unprocessed or processed form is met through domestic production;
The domestic consumption of the product is significant in relation to total

world exports of that product (as in the case of tea);
A significant proportion of the total domestic production is produced on

farms or operational holdings of size 20 hectares or less;
A significant proportion of the producers engaged in the production of the

plantation crop are low income, resource poor or are subsistence farmer
or disadvantaged producers;
A significant proportion of these plantation commodities is produced in

drought-prone or hilly or mountainous regions;
A significant proportion is produced by vulnerable populations such as

tribal communities, women, aged people.
39
CHAPTER – VI
PROBLEMS FACED BY THE PLANTATION SECTOR
6.0 The main problems plantation sector have been facing are (a) Unremunerative
prices in certain years due to volatility of prices in the international market. The fall in
prices is almost a cyclical phenomenon and takes place every 4-5 years. Since most of
the produce is exported, the prices in the international market do have very strong impact
on the domestic prices. As has been stated earlier in the international market exports are
being made from other producing countries at very low prices. Though the cost structure
of plantation in these countries have not been studied in comparison to the cost structure
in India, the fact remains that international prices do go down because of the low prices
quoted by other producing countries. And in fact the Price Stabilization Fund Trust was
established in 2003, primarily from the point of view of giving some relief to the growers
on this account. Though the scheme did not succeed and problem still stands and in fact
it is getting aggravated as other countries increase their production and strengthen their
presence in the international market. So the first issue is remunerative prices to the
growers so that the plantation sector remains an attractive economic option.
6.1 Apart from the price, the plantation sector including spices, floriculture and
tobacco are exposed to weather risk disadvantages. This results in decrease in
productivity and sometimes wipes out the plantation crops altogether. In the recent past,
the plantation sector has not seen very good results. It is not possible for the growers to
undertake best practices for plant protection, irrigation, rejuvenation and replanting
wherever it is necessary. Most of the plantations have become very old and due to lack
40
of intensive management, their productivity has also declined. The question is to find a
mechanism by which the growers are in a position to fund best farm practices and create
surpluses to rejuvenate the plantation. In this context, the first requirement is to insure
crops against both biotic and abiotic risks.
6.2 Together with this, it would be necessary to make the finance available to the
growers so that they can undertake replantation and rejuvenation well in time and not to
allow the plantations to grow very old much beyond the stage of their prime productivity.
The interest rates on bank borrowings appear unaffordable to the plantation growers.
6.3 The other issue which needs redressal particularly in the case of very small
growers is some kind of personal social security in the event of accidents and death. The
plantation workers who have been traditionally working on the plantation and have no
other skill to seek alternate employment also have to bear the consequences of low prices,
low productivity and crop failures. They also need to be provided with some kind of
social security so that in the event of permanent disability and death, their families do get
some financial assistance.
6.4 The other factor which is most important in ensuring proper prices for the produce
is the infrastructure. As most of the plantations are located in remote areas in the
country, they do not have easy access to markets and the infrastructure in these areas is
extremely poor. The time and the cost involved in getting the produce from the
plantations to the market centres is sometimes prohibitive and if the product is to be sold
in international market, exporters have to compete with countries where the costs of
41
production and transport are much lower. This factor also contributes substantially in
lowering the returns to the farmer. So it is very essential that plantation sector is
provided with proper infrastructure and till such time it is not in place the disadvantage
needs to be compensated by giving transport subsidy. This would, to a large extent,
ensure that the increasing costs of transportation that are passed on to the growers in
some form or the other at present are taken care of and to that extent the growers do not
lose.
42
CHAPTER – VII
POLICY OPTIONS
(A) PRICE RISK IN PLANTATION SECTOR
7.0 Agricultural enterprises in general and plantation commodities in particular are
known to experience many risks and notably those arising from volatility of commodity
prices. Price volatility affects every layer in the commodity value chain. However its
effects are extreme for the primary producers, namely, farmers. Plantation farmers take
the brunt of falling prices, in the form of reduced price realization. All the same, they also
do not experience any perceptible increase in price realization at the farm gate level
during price upswings.
7.1 One of the main consequences of price related risks are that farm level
investments get adversely affected. While during the downswings, there are clear
constraints on farm investments due to liquidity crunch, during upswings, farmers tend to
keep away from investments in their holdings, as they have to meet the debts incurred by
them during the downswing phase. Since every act of capital investment in plantation
agriculture is associated with property improvement and more specifically with new
planting or replanting activities, where cash outflows tend to be greater than cash
inflows, there is a relative disinclination to carry out capital investments. For crops such
as coffee, pepper, cardamom, tea and rubber, the gestation period of 5 to 6 years
associated with tree/ horticultural crops causes farmers who take up new planting
activities undertake new planting to suffer from liquidity crunch.
43
7.2 Table below provides details of the subsidies administered by different
commodity boards. Studies by Prof. Damodaran (1999) on Coffee Board subsidy
schemes bring out the fact that these subsidy schemes are not adequate to meet the
liquidity crunch of coffee farmers. Similar is the situation for tea and rubber
enterprises. Figure 1 captures the situation of adverse net cash flows for plantation
enterprises. As the figure indicates a new plantation or a re – planted estate or holding
suffers from greater outflows of cash as compared to inflows due to the fact that
yields of new plantations do not attain economic levels until they are 5 to 6 years of
age. Once the economic yield levels are attained, the situation of negative net cash
flows gives way to a break-even situation and finally to a net cash inflow situation
with advancing years. Though Commodity Boards have a long-established system of
paying subsidies for re–planting and new planting activities these subsidies are not
adequate to the cash flow positions of growers.(Damodaran,1999) .
44
SUBSIDIES GIVEN BY THE COMMODITY BOARDS UNDER VARIOUS SCHEMES DURING THE X PLAN PERIOD
1. TEA BOARD 2. COFFEE BOARD 3. RUBBER BOARD 4. SPICES BOARD
X Plan X Plan X Plan

Outlay Outlay Outlay X Plan Outlay
Scheme Scheme Scheme Scheme
[Rs. In [Rs. In [Rs. In [Rs. In Crores]
Crores] Crores] Crores]
1. Tea 98.59 Step up 21.68 Replanting / 67.61 Productivity 9.86
Plantation Production, Newplanting improvement
Developmen Productivit of small and
t y & Quality large
cardamom
2. Quality 76.80 Support to 22.30 Rubber Plant 9.07 Post harvest 17.49
Upgradatio small Project for improvement
n& grower Tribal of spices
Product sector Settlements &
Diversificati Producvity
on enhancement
3. Market 104.61 Interest 38.00 Assistance for 15.08 Development 1.37
Promotion Subsidy to NT area of Exotic and
& HRD Growers [Groups & High value
[small & SHG’s] & prices
large] other
components
Orthodox 65.00 Transport 9.69 Integrated 18.22 Organic 6.33
subsidy subsidy & village level farming
Scheme Infra.Devpt. Rubber
from AED capacity Development
Funds building & and Quality
Trfr. Of Upgradation
Tech.
5. Price 23.25 - - - - Export 7.71
Subsidy oriented
Scheme Spices
Development
in North East
6. - - - - - - Export 12.28
Development
& Others
TOTAL 368.25 91.67 110.00 55.04
GRAND TOTAL: Rs. 625 crores.
45
Figure 1: Cash Flow Patterns For a New Plantation
46
7.3 What adds to the problems is the volatility of commodity prices mentioned earlier
which prevents plantation enterprises from meeting their debt re-payment obligations
during the phase when the physical productivity of their holdings reaches economic
levels of yield. Plantation commodities undergo cycle of booms and busts. These last for
6 to 7 years duration for coffee. In the case of tea, Cashin, Liang and Mc Dermott (1999)
assess that the price shocks last from 7 to 21 months. In the case of rubber, price shocks
last for 18 months and above.
7.4 Based on spot and futures prices maintained by the Multi-Commodity Exchange
(MCX), the country’s commodity exchange that is the largest in terms of trading
volumes, an analysis of price volatility has been attempted in the ensuing sections. It may
be noted that for tea and coffee, analysis of futures prices have not been attempted, as
futures trading does not exist for the former while it has been of miniscule volume for the
latter. For tea the problem is compounded by the fact that auction wise prices are not
available.
Analysis of Spot Prices for Coffee
7.5 Spot Prices for Arabica Coffee during 2006 showed high volatility as the figures
below indicate. Prices have fallen below the trend line on 8 occasions during the period
from January to July 2006 when harvested crops enter the market. However during the
period from July to December 2006 though the frequency of downside prices was 10, and
the amplitude of fluctuations was comparatively low, the downside was protracted during
September.
47
Figure 2: Spot Prices of Arabica Coffee: January to July 2006
120
116
112
108
104
100
96
92
From 02-jan-06 to 01-jul-06
price of cof fee long-term trend
Figure 3: Spot Prices of Arabica Coffee: July to December 2006
130
125
120
115
110
105
100
95
From 01-jul-06 to 30-dec-06
Price of the coffee Long-term trend
48
Analysis of Spot and Futures Prices for Pepper
7.6 Figure 3 indicates how daily spot prices for Pepper have fluctuated during the
period from September 2004 to September 2005. The amplitude of fluctuations is sharp
as indicated by the gaps between the trend line and the actual spot prices. It is also clear
that downward volatility is a major problem that affects pepper crops. It is certain that
such volatility is fundamentally harmful for producers and primary traders of pepper in
India. During the year 2006, the price of black pepper ranged from Rs. 6005 /100 kgs to
Rs.13050 /100 kgs. Pepper futures markets show disturbing trends. As Figure 5 brings
out, during the year 2006 intra-day volatility was pronounced during November –
December and that too in the bearish direction as evidenced by closing rates being lower
than opening rates. This is not desirable, bad for sellers who tender or plan to give
physical deliveries in futures exchanges. It is likely that this is on account of inadequate
participation in futures markets by all stakeholders.
49
Figure 4: Spot Prices of Pepper 2004-2006
7600
7200
6800
6400
6000
5600
From 09/23/04 To 09/23/05
Long-run trend Pepper spot price
50
Figure.5: Technical Analysis of Daily Pepper Futures Prices – 2006
Pepper 1 (10,898.00, 11,178.00, 10,850.00, 11,030.00, +221.000)

16000
15500
15000
14500
14000
13500
13000
12500
12000
11500
11000
10500
10000
9500
9000
8500
1500
1000
500
28 4 11 18 25 3 9 16 23 30 6 13 20 27 4 11 18 26 1 8 15
2006 October November December 2007
Analysis of Spot and Futures Prices for Cardamom
7.7 Figure.4 indicates the situation with regard to cardamom during the period from
February 2006 to December 2006. The inter-day volatility is pronounced for cardamom
particularly during the latter half of 2006, indicating uncertainty for growers and traders.
However the incidence of downward volatility has not been pervasive for cardamom
except during the latter part of 2006. During the year 2006 prices of cardamom ranged
from Rs.234/ kgs to Rs.470/ kg.
51
Figure 6: Spot Prices of Cardamom 2006
550
500
450
400
350
300
250
200
From 02/14/06 to 12/27/06
Cardemom Spot Price Long-term Trend
7.8 Figure 7 provides technical analysis of daily cardamom futures prices during 2006.
Unlike in the case of pepper the incidence and frequency of intra-day volatility is more
for cardamom. Further the basic characteristic of cardamom futures indicates bearish
trends; though one also sees evidence of buoyancy the amplitude is less.
52
Figure.7: Technical Analysis of Daily Cardamom Futures Prices : 2006
Cardemom (396.000, 396.000, 389.500, 392.500, -2.50000)

650
600
550
500
450
400
350
1500
1000
500
11 18 25 3 9 16 23 30 6 13 20 27 4 11 18 26 1 8 15
2006 October November December 2007
Analysis of Spot Prices for Chillies
7.9 Figures 8 and 9 illustrate the behavior of daily prices for Red Chillies for the year
2006. The amplitude of price fluctuations is noteworthy, though not as pronounced as
that of cardamom and pepper. During 2004-2005, while the downward trend was evident
for Red Chilly prices, during 2006, the trend was one of fluctuations in the upward
direction (Figure 4).
53
Figure 8: Spot Prices of Chillies 2004-2006
3200
2800
2400
2000
1600
1200
from 10/01/04 to 10/01/05
Chilli spot price Long-run trend
54
Figure 9: Spot Prices of Chillies – 2006
8000
7000
6000
5000
4000
3000
2000
1000
0
From 10/01/06 to 12/27/06
Chilli spot price Long-term trend
Analysis of Spot and Futures Prices for Natural Rubber
7.10 Figures 10 and 11 illustrate the volatility of Natural Rubber spot prices during
2004 – 2006. As is evident from figure 5 the volatility of Natural Rubber during 2004-
2005 showed 6 instances of downward volatility as the number of occasions on which
spot prices fell below the trend line indicates. During the year 2005-2006 the frequency
of downward volatility was almost the same as in 2004-2005. However the amplitude of
downward volatility was comparatively less. During 2005-2006 spot prices of Natural
Rubber ranged from Rs.5000 to Rs.11500/ 100 kgs, which shows the wide range of
variations in prices. Indeed Figures 12 which illustrates the results of technical analysis
55
based on 2004 Futures metastock Japanese candle stick price, clearly brings out the
dynamics of intra-day volatility experience by natural rubber in the bullish direction.
Figure 10: Spot Prices of Natural Rubber (RSS – 4) : 2004 – 2005
7200
6800
6400
6000
5600
5200
4800
from 09/23/04 to 09/23/05
Long-run Trend Rubber spot price
56
Figure 11: Spot Prices of Natural Rubber (RSS – 4) : 2005 – 2006
12000
11000
10000
9000
8000
7000
6000
from 09/23/05 to 12/27/06
Long-run trend Rubber spot price
57
Figure.12: Technical Analysis of Rubber Futures Prices: 2006 – 2007
Rubber (10,035.00, 10,240.00, 9,951.00, 10,129.00, +115.000)
10000
9500
9000
8500
8000
7500
7000
2000
1000
17 26 30 6 13 20 27 4 11 18 26 1 8 15
2006 November December 2007
Price Analysis for Tea
7.11 Data on spot prices of Tea are not available with the Task Force. However based
on the annual average figures cited in Table 1, it is evident that Tea is also prone to major
fluctuations in prices. In 1997, annual average prices of tea moved up from Rs 48.77 per
kg to Rs 66.89/kg following a disastrous Kenyan crop. On the other hand prices fell from
Rs 64.54/kg in 2004 to Rs 58.05 / kg in 2005. Since Tea is a continuous crop, the
possibility of seasonal scarcity is less as compared to Coffee and Pepper. However
international developments such as a bumper crop in Kenya could fundamentally affect
domestic prices, the chances of price fluctuations positively.
58
7.12 It is clear that volatility of all the crops is a matter of grave concern. The NCAER
Report on Price Stabilization of Selected Commodities’ (2002) mentions how rubber and
coffee has been witnessing the alignment of domestic prices with international prices.
Similarly the same report also talks of how real domestic prices of tea had not exhibited
in a significant role during the 1990s in the northern markets, while significantly
declining in south. What is more significant is the NCAER observation that in the case
of rubber and coffee, fluctuations in domestic prices have been due to irregular factors
than in the case of tea and tobacco due to the fact that random effects in prices were
higher for the former.
(a) Price Stabilization Fund
7.13 The issue of price stabilization has been engaging the attention of Government of
India for some time. Conventionally, for plantation commodities such as coffee, price
volatility shocks could be cushioned by the Coffee Board, which was tied to the
international quota regime of the International Coffee Agreement until 1989. The other
traditional method was adoption of direct market intervention methods to mop up of
surpluses of commodities through procurement at designated floor prices. The current
emphasis of Government of India is on working out ‘indirect’ market intervention
methods. A notable scheme, which has been introduced by the Government of India, is
the price stabilization scheme for tea, coffee and rubber through the setting up of a price
stabilization fund trust in 2003. The Price Stabilization Fund Scheme which was
launched in April 2003 with a corpus fund of Rs.500 crores, kept in a public account of
the Government of India, is based on a price spectrum band in the range of + / - 20%
59
based on a 7 year moving average of international prices. When the domestic price falls
below the lower band, the same would be treated, as “Distress year” and the PSF trust
would deposit Rs.1000/- in the S/B account of the grower. However the domestic prices
role about the upper band the same would be treated as a boom year and grower would
have to contribute Rs.1000/- in his PSF S/B account. Thus every year an inflow of
Rs.1000/- would be credited to the account of grower and at the end of 10 years the
grower could withdraw the balance amount, including Government’s contribution and
interest earnings. Though nearly 11512 coffee growers, 14681 tea growers and 18591
rubber grower have been enrolled under the scheme until March 2005, the enrolment fee
deposited by the Government of India has been found to be extremely limited due to low
coverage. Further the real return by way of accrued interest on balances in saving banks
account has also been negative due to inflation rates been higher than the interest rates.
This has naturally limited the enthusiasm of farmers as well as that of the banking sector
since there is a time lag notice between assistance available to members of the plantation
community and loss suffered due to price decline. (Anon 2005)
(b) Futures Market
7.14 Though, since the 1990s, commodity derivatives markets have been active in
India, there has been no major effort to put in place a pro-active policy support for
promoting participation of agricultural producers and financial institutions providing
assistance to producers, to participate in these exchanges. There is a need to attend to this
issue in far greater detail. This is because the conventional instruments for price
intervention are fiscally unsustainable particularly when it is applied to commodities that
have long durations of price shocks as is in the case of rubber, pepper and coffee. Ensure
60
that farmers, processors and exporters actively utilize the instrument of derivative
contracts instituted by commodity derivatives exchanges of India. At present derivative
contracts exist for pepper, cardamom, chillies, coffee, natural rubber, coconut oil and
copra. Though a futures contract was developed for ‘Tea’, this has not been
operationalised for various reasons including lack of financial capabilities on the part of
the UPASI, which was given the license to launch the tea futures exchange in India.
Similarly Coffee futures contracts have not been functioning well in India. However, this
facility is not being made use of by the small growers at present because of their own
limitation. Collectivization of small growers should be able to enter this area.
Warehousing futures for the entire section have to be improved.
7.15 Therefore, new approaches need to be thought of that improve upon existing
approaches. It needs to be realized that there is no one solution for redressing the
problem of price uncertainty. A restructured price stabilization programme for Plantation
Commodities’ must provide varied options to producers, processors and financial
institutions dealing with plantation and agriculture products.
7.16 All plantation crops have a substantial presence of small and medium farmers. A
substantial majority of plantation farmers and primary processors depend on institutional
finances for meeting working capital and term capital needs. In absence of securitized
collaterals, it becomes difficult for them to source their liquidity requirements for
carrying out annual cultivation operations. Co-operative Banks and related financial
institutions have been deducting large margins on working capital loans sought for by
farmers on account of the uncertainty associated with prices of plantation commodities in
61
both international and national markets. Indeed Commercial banks such as the Canara
Bank and Syndicate Bank have high portfolio exposures to Coffee, Pepper and related
plantation commodities on account of providing working capital and term finance credits
to these farmers and exporters. On account of the fact that prices for these commodities
are highly volatile, these financial institutions run the risk of getting saddled with non-
performing assets and bad loans. The present system of banking regulations does not
allow non–investment banks from participating in derivative trading. In our view this
needs to be changed and all the banking institutions with exposure to futures trader’s
commodities, should, subject to position limits, be allowed to participate in futures
trading for commodities concerned.
C. Plantation Development Bonds
7.17 One of the critical limitations of the plantation industry in India is that it is located
in regionally disadvantaged zones of Western Ghats and eastern Himalayas.
Communications and transportation networks have been a major constraint and this has
affected movement of produce from farms to sea-ports and other domestic areas of
consumption. In recent times plantation industries have been considered as potential areas
for eco-tourism in view of their ecological attributes. It is also a well-known fact that
plantation industries surround forests and wetlands or are adjacent to them. Plantations
can absorb the pressures of tourism on wild life parks and sanctuaries. Further, eco-
tourism enables the plantation farmers to diversify their income base, thus reducing risks
arising from volatile commodity prices and adverse climatic conditions. For eco-tourism
to flourish in plantations, it is necessary for enabling infrastructure to be located in
plantation areas, which control pollution and provide for sustainable disposal of
62
municipal wastes. Another area of critical priority is the possibility of introduction of
clean technologies in the form of renewable energy and carbon offset projects, which
could address climate change concerns. Keeping in view this background, the task force
recommends the institution of ‘Plantation Development Bonds’ to finance infrastructure
development in plantation areas. The bond could be for a duration of 10 years and the
proceeds of the same will be utilized as investments in bankable infrastructure and eco-
tourism projects. The task force recommends that the price stabilization fund trust may
be converted into an authority or a public limited company, which could issue the
Plantation Development Bonds (PDB). The advantage of such an arrangement would be
that the price stabilization dimension of the Price Stabilization Fund Trust would become
more effective, resulting in synergies between price stabilization functions and issue of
bonds.
(d) Marketing Support
7.18 As has already been mentioned, plantation commodities are largely produced by
small and medium farmers who do not have the economic muscle to bargain for
improved farm gate prices. It is also a fact that middlemen and traders take away a
substantial margin of value added for pepper, rubber, cardamom and coffee. There are
many development schemes intended to improve the production and post harvest
processing and warehousing systems, administered by the Coffee Board and the Spices
Board which do not achieve their intended purpose of promoting the export
competitiveness for these products due to the absence of market access. Presently none
of the commodity boards has the mandate of carrying out marketing functions. Nor is it
63
desirable for them to enter into marketing and trading functions. At the same time
corporate enterprises in India have not displayed any interest in schemes that promote fair
trade practices that promise fair returns to producers. Accordingly, the Task Force
recommends that a public limited company may be promoted by commodity boards
concerned to facilitate participation of farmers and self-help groups in fair trade systems
through direct selling of small grower plantation products (including organic spices and
coffee) both in India and abroad. Besides, such a company could also carry out and
implement market literacy programmes for self-help groups besides providing them with
assistance to carry out futures trading for the commodities concerned. This company
would effectively intermediate on behalf of the farmers, thus enabling them to protect
themselves from volatility of prices. Considering the fact that state run undertakings do
not exhibit professional competence, it is recommended that the Commodity Boards may
facilitate promotion of such activities in private and co-operative sector.
(e) Put Options
7.19 The other recommendation of the Task Force is the institution of a price insurance
scheme based on put options contracts. While the existing efforts to link put options
contracts with international commodity derivative exchanges has proved to be
problematic due to a combination of regulatory and economic issues, it will be still
desirable to pursue a national price insurance scheme which provides for trading in
commodity option in national commodity exchanges. It is strongly recommended by the
Task Force that options trading may be introduced in India for principal commodities that
suffer from volatile prices. The Commodity Boards may be requested to provide
64
budgetary support by way of subsidizing premium payments that are presently considered
to be burdensome for farmers and farmers’ organizations.
B. Crop Insurance for Plantation Crops, Tobacco, Spices and Floriculture
Introduction
7.20 Growers have traditionally used a variety of strategies to reduce exposure to
production risks. These include crop diversification, intercropping, reliance on drought-
resistant crops and varieties, use of short-duration varieties, delayed sowing, and
investment in risk-reducing inputs such as pesticides and irrigation. These choices that
farmers make to ward off calamities – big and small – often mean turning away from
profitable opportunities.
7.21 The trade-off is most acute for small farmers because their opportunities for ex-
post management of risk through credit are limited. When all other measures fail,
farmers have no option but to neglect maintenance of their assets (principally perennial
trees in the case of plantations) or to migrate out to regions with better work
opportunities. Use of the first option affects adversely their future livelihoods while
distress migration is socially disruptive with the costs often borne by children. Thus,
coping with risk whether ex-ante or ex-post inflicts severe costs on poor farmers that
often have such long-term consequences as to keep them mired in poverty. This chapter
considers the feasibility of a risk management support mechanism to small growers to
mitigate the effects of adverse weather and pest related risks (point 4 of the terms of
reference of the Task Force). In particular, it proposes crop insurance schemes that could
assist growers in coping with production risks.
65
PRODUCTION RISKS
7.22 Production risks arise because of two factors: uncontrolled random inputs of
weather and exposure to pests and diseases. Weather risks could arise because of
fluctuations in temperature, rainfall, humidity, and wind and hail. Of all these, rainfall is
in most cases the variable that has the highest fluctuation and is the least predictable.
Weather also plays a big role in the development of diseases and growth of pests.
Usually, the pest and disease organisms are always present at a low level of intensity but
can multiply rapidly when the weather conditions are favourable and the plant susceptible
to attack. In particular, disease epidemics are almost always due to favourable weather
conditions. The causative relationship between weather parameters (such as rainfall,
temperature, humidity) and pest build up is however very complex and is specific to the
pest, crop, soil and management practices (Ramaswami, Ravi and Chopra, 2004). Tables
1 and 2 list the principal production risks for the plantation crops & spices.
CROP INSURANCE
7.23 An ideal crop insurance scheme would follow an ìndividual approach’ where the
insurance would indemnify the farmer to the full extent of losses and the premium would
be determined with reference to the grower’s past yield and loss experience. For the
fixation of premium on an actuarially sound basis, the ‘individual approach’ basis
necessitates reliable and accurate data of crop yields of individual farmers for a
sufficiently long period. The other difficulty is that of `moral hazard’ because the insured
risk also depends on actions of the grower. As a result, ìndividual approach’ insurance
is generally expensive.
66
7.24 Crop insurance on the basis of individual assessment has been extensively used in
the United States. Even though farm sizes are large and the number of growers is
relatively low in U.S. agriculture, the ìndividual approach’ has required subsidies in
excess of $3 billion dollars (or more than Rs. 13000 crores) annually (Glauber, 2004).
For this reason, the US program is regarded as a poor model for small-holder agriculture
in developing countries where the ìndividual approach’ would be even harder to
administer (Hazell, Skees and Miranda, 1999).
7.25 These difficulties were anticipated in India, where policies and programs have
emphasized an ìndex approach’. Here the underlying insured risk is an index which is
immune to grower actions (and hence moral hazard) and on which data is relatively easier
to obtain. The index that has been used most often is àrea yield’. In an area approach,
farmers are compensated for losses according to an index of yield for a region to which
they belong (e.g., village, taluka). The latter yield is called the area yield. The idea behind
such insurance is that individual yields would be correlated with the area yield provided
the area is reasonably homogenous. Further, area yield data is more easily obtainable than
individual yield data and is not subject to moral hazard in the same way as individual
yields. In an area approach, farmers within the same `homogenous area’ pay the same
rate of premium and receive the same benefits (as they are determined by the area yield
relative to its average), irrespective of their individual fortunes.
67
7.26 In recent years, an alternative index that has been considered is a weather index.
The appeal of this is transparent in rain-fed areas where rainfall is the dominant
production risk. There are, however, many attributes of rainfall – the relevance of the
onset date of monsoon and the distribution of rainfall through the season varies according
to crop and soil type and the rainfall index insurance would have to be appropriately
designed.
7.27 The existing National Agricultural Insurance Scheme (NAIS), which is a area-
yield index programme charges flat premium rates ranging from 1.5% to 3.5%, and,
hence, is not commercially viable. The Government finances the claims over and above
the premiums. If the premiums are charged on actuarial basis, which could be about
10% to 12%, the programme becomes viable. However, these actuarial rates are not
affordable to a great majority of farmers.
7.28 The Task Force, therefore, recommends an insurance model based on actuarial
premium pricing, supported by up-front subsidy in premium by the Government. The
insurance company having received commercial premium (partly from growers and
partly from the Government), would be responsible for all the claims.
Existing Insurance Schemes for Plantation Crops, Spices & Floriculture
7.29 Existing insurance programs in the agricultural sector provide risk protection to
only some of the plantation crops & spices. These programs range from input based cover
to yield protection. The details of these insurance covers are as follows:
68
i) Plantation insurance scheme of General Insurance PSU companies – The cover is
available against specified perils like fire, lightening, floods, cyclones, riot &
strike, specified pests & diseases, etc. The cover in the event of loss to trees due
to perils insured pays for the input cost. Some of the plantation crops insurable
under the scheme are Coconut, Rubber, Oil Palm, and Betel vine. Insurance
coverage under this scheme is miniscule. Rubber Plantation Insurance is
implemented by Rubber Board in collaboration with National Insurance
Company Limited (NIC), and New India Assurance Company Limited (NAC),
but the response has not been encouraging.
ii) State government run schemes: Kerala State government implements a Crop
Insurance Scheme from 1995-96 covering 25 Crops grown in the State, of which,
as many as 20 are horticultural/ plantation crops. The cover is against named
natural and non-preventable perils, and provides protection on per tree / palm
basis, which only covers the present worth of the tree / palm. The plantation
crops & spices insurable are: coconut, areca nut, rubber, cashew nut, pepper,
cardamom, ginger, turmeric, coffee, tea, cocoa, nutmeg, cinnamon, betel vine,
tobacco etc. The scheme is not popular and consequently the coverage is small.
Over the 7 years (1995-96 to 2001-02) the Scheme generated a premium of Rs.
2.84 crores and paid claims of Rs.10.62 crores. Coverage statistics reveal that in
terms of premium income, the major share is attributed to Banana (38%), Rubber
(35%) and Coconut (16%). Similarly in terms of claims outgo also, the major
share had gone to Banana (44%), Rubber (37%) and Coconut (11%).
iii) Area Yield Insurance (National Agricultural Insurance Scheme) of Ministry of

Agriculture administered through AIC. The scheme operates on area basis (Block
/ Tehsil etc.) and is mandatory for borrowing farmers. However, the crop is
notified for insurance only in areas having 10 years historical yield data. Risk
insured is equivalent to amount of the loan availed. Compensation becomes
69
payable if the yield recorded at the area level (on the basis of sample crop cutting
experiments) falls short of the pre-defined threshold yield (60% / 80% / 90% of
preceding five years’ average yield). Coverage so far has been limited because of
area approach. The plantation / spices crops presently insurable are turmeric,
chilly, ginger, coriander, cumin, and fenugreek.
iv) Weather Based Insurance piloted by AIC & Private Sector Insurance Companies
– Rainfall based insurance model has been designed by AIC for coffee in the
states of Karnataka, Tamilnadu & Kerala against yield losses arising out of
deficit rainfall during blossom & fruiting stage and excess rainfall during
maturity stage. The index has been prepared at coffee zone level for about 45
coffee zones in the above three states. The proposal in terms of providing
premium subsidy to small growers has got cleared by the Group of Ministers
(GoM) and would go to the CCEA for clearance shortly. AIC is presently
conducting a pilot on use of satellite imagery and weather based insurance
triggers for tea crop. ICICI Lombard General Insurance Company is marketing
weather based insurance (temperature & relative humidity) for coriander in a few
districts of Rajasthan, which also enjoys some subsidy in premium from the state
government
Crop Insurance: A Proposal
7.30 A successful insurance product would satisfy the following conditions:
(a) it should be cheap enough that even small growers can afford it.
(b) it should provide significant and substantive risk cover
(c) it should involve a cap on the liability of the government
70
If conditions (a) and (b) are violated, the product will not be popular with
growers. If (c) is violated, it would be difficult to scale up the program to cover all crops
and growers.
7.31 The Task Force, keeping in mind the importance of various commodities within
plantation, spices & floriculture sector, and the ambit of Ministry of Commerce &
Industry, identified the following commodities for production risk insurance:
(a) Plantation crops: Coffee, Tea, Rubber

(b) Tobacco
(c) Spices: Chilly, Pepper, Turmeric, Ginger, Cardamom (small & large)
(d) Floriculture: Loose Flowers, Cut flowers & Cut Flowers for Export purpose
7.32 For perennials and tree crops (rubber, tea, cardamom, coffee etc), yield loss is one
dimension of production risk. The other dimension is the loss of the tree itself due to a
calamity such as wind or hail. Named peril insurance is the best approach for insuring
trees and bushes. Here the insurance is offered against damage due to specified perils
such as fire, lightening, floods, cyclones and specific pests & diseases. Such named peril
insurance already operates for rubber (although coverage among growers is limited).
Named peril insurance usually operates on the basis of individual assessment. The
proposed crop insurance scheme is directed at yield loss for a few commodities and asset
loss for others.
7.33 The proposal is likely to adopt the following insurance approaches for different
commodities:
71
Table-: Insurance Models for Plantation & Spices Crops & Floriculture
S.No Insurance Model Crops Nature of Protection

1 Traditional Insurance rubber, tea & Loss / damage to tree /
based on Named Peril cardamom, bush / plants
Insurance & individual floriculture
assessment
2 Crop insurance based on chilly, ginger, Loss of Yield
‘Yield assessment at turmeric, cumin,
Area level’ coriander, tobacco
3 Crop insurance based on coffee, tea, coriander, Loss of Yield
‘Weather Index’ (rainfall, pepper
temperature, relative
humidity, radiation)
Considerations of Insurance
7.34 The Task Force examined the plantation and spices crops for insurance and
identified the important crops for insurance. These are Rubber, Tea, Coffee & Tobacco
under Plantation crops and Chilly, Ginger, Turmeric, Pepper & Cardamom under Spices.
The Task Force also identified floriculture sector for insurance against production losses.
7.35 Task Force requested Agriculture Insurance Company of India Limited (AIC) to
work out the broad estimates of sum insured, coverage and premium at different coverage
level. Normally, a crop insurance program involves ‘deductible’ in coverage. Deductible
is a provision whereby an insured may be required to self-insure and pay part of the loss,
the insurance being excess over the amount of the deductible. Higher the deductible,
lower the premium rate and vice versa. Deductible is a provision / mechanism helps
generating affordable premium rates and to a large extent removes the taint of moral
hazard.
72
7.36 The Task Force accordingly have chosen and presented the premium at three
levels of deductibles, viz. (i) 15% / 20%; (ii) 30% and (iii) 40%. The insurance coverage
considered all the holdings of marginal / small growers in States predominantly growing
the identified plantation and spices crops, which ranges from 25% of acreage in case of
Tea and 85% of acreage in case of Rubber.
7.37 Sum insured is the maximum value of protection (risk), which becomes payable
in the event of total loss, and is the value on which premium amount is paid. Sum insured
for this purpose is chosen in the range of 100% - 125% of the cost of production for
different commodities, in consultation with commodity boards.
7.38 The premium rates would be worked out though at District level using the
insurance model appropriate for each commodity, the overall premium estimates are
made using a nationally weighted premium rate, which as per the estimates may range
from 3% for rubber to 10% for coffee at 80% coverage level. The annual premium for the
identified crops is estimated at Rs. 656.16 Crs; Rs. 443.70 Crs; and Rs. 334.22 Crs for
15% / 20%; 30% & 40% deductibles, corresponding to 85% / 80%; 70% & 60%
coverage, respectively.
Insurance Penetration & Premium Size
7.39 For the usual kind of insurance coverage, actuarial premiums are 8-10% of the
assured loss and sometimes even higher. It is quite clear that small growers find these
rates unaffordable. Hence if the goal of providing a safety net to small growers is to be
73
met, some state support in terms of a premium subsidy would have to be provided. What
form should this subsidy take and what should be the efficient provision of such a
subsidy?
7.40 The Task Force considered different ways of providing premium subsidy. These
are: (i) risk-layering into social insurance (coverage of 60%) and commercial insurance
(coverage between 60% and 80% / 85%) followed by higher subsidy (almost 80%) for
social layer and lower (about 20%) for commercial layer; (ii) different levels of premium
subsidy for marginal; small & other growers; (iii) Rupee subsidy per Hectare; (iv)
Premium capping for grower beyond which is the subsidy of the government; (v)
Percentage subsidy in premium; and (vi) Percentage subsidy with cap on subsidy amount.
7.41 The Task Force after examining the different subsidy options, and chosen the
‘Percentage subsidy with cap in subsidy amount’ applicable at each unit of coverage. As
an illustration, premium subsidy for Rubber could be 50% of premium subject to a
maximum of Rs. 2500 per Hectare. Further, subsidy could be availed only by those
growers with holding size upto 10 Hectares. The Task Force felt that it’s a simple and
straight forward method, with advantage for the government to cap the subsidy beyond a
point.
7.42 Assuming penetration levels of 25%, 35%, 50%, 65% and 80% in the course of
next five years, the government’s premium subsidy liability is estimated for XI Year Plan
at Rs. 836.60 Crs; Rs. 565.72 Crs; and Rs. 426.14 Crs at 85% / 80%; 70% & 60%
coverage, respectively.
74
7.43 The estimates of acreage considered for insurance, sum insured, premium
estimates, government’s premium subsidy liability and the phased insurance program
financial support required from the government for the XI Five Year Plan and are shown
in Table-3 to 5.for the three different levels of coverage, viz. 85% / 80%; 70% & 60%
coverage.
7.44 Task Force recommends that 80% coverage level be provided for all the
commodities, as levels lower than 80% may not be found attractive to the growers.
7.45 Task Force recommends that the proposed insurance program is thrown open to all
the insurance companies both in public sector and private sector. However, Agriculture
Insurance Company of India Limited (AIC), being the exclusive entity for agriculture
insurance created by the government, would take the lead.
Future Directions and enabling role by the Government & Commodity Boards
7.46 Crop insurance to be successful and farmer friendly, would need the infrastructural
support and enabling role of the government, apart from the premium subsidy support.
Some of the enabling roles of the government / commodity boards / financial institutions
are discussed below:
(i) Infrastructure: Insurance companies at least in the initial stages would need the
infrastructure support of the government / commodity boards at grass-root level,
both as insurance delivery mechanism, and as nodal agency to create insurance
education and awareness.
75
(ii) Linking with Other Support & Extension programs: Insurance could be
successful and cost effective when delivered along with other support and
extension programs run by the government / commodity boards for plantation &
spices sector. It’s, therefore, suggested that insurance is coupled with other
government programs to achieve maximum success.
(iii) Maximizing insurance penetration: Insurance to be successful should have

proper risk spread, both spatially and temporally. To have reasonably good level
of insurance penetration, it’s essential, at least, in the initial stages to make every
grower who receive other support from the government / commodity boards, join
the insurance scheme.
(iv) Credit Linkage: Banks have been lending large amount of operational credit to
the plantation and spices sector, making it possible for insurance to have credit
linkage. As incentive, banks may share a part of the premium with the farmer.
Alternatively, the farmers with insurance coverage may be offered lower rates of
interest.
(v) Service Tax Exemption: Presently insurance service is charged ‘service tax’ as
applicable for the insurance sector. Its 12% for the year 2006-07 + 2% (of service
tax) as education cess. In other words, service tax alone accounts for almost 1/8th
of the premium, making it highly dis-incentivized. It’s, therefore, proposed that
plantation & spices crop insurance be exempted from service tax, on the same
lines as National Agricultural Insurance Scheme (NAIS).
(vi) Weather Stations (AWS): Tamper-proof, accurate and timely reporting of

weather data is critical for implementation of weather based insurance. The
government / commodity boards may install such stations at 5 -10 km radius in
76
all the plantation / spice growing areas in due course to make the insurance cover
more realistic.
Table-1: Plantation crops – Important Abiotic & Biotic Risks
Name of Major Abiotic risks Major Biotic risks

crops Pests Diseases
Temp. Rainfall Humidity Wind/
Hail Sunshine
Areca High ---- Very high High High bug, Fruit rot,
nut temp humidity wind mites, bud-rot,
caterpilla yellow leaf,
r, scale die-back,
blight
Cashew Low Long dry Fog Cyclone Low borer, blight, die-
/High spell bug, back
temp thrips,
beetle
Cocoa Low Very Long Very Cyclone mealy black pod,
temp/Fro dry spells Low/High bug, canker, pod
st humidity aphids, –rot, pink
borers disease
Coconut Frost Drought Low Cyclone caterpilla root wilt,
/High r, bug, rot, Fruit –
humidity Scale, rot
termite,
borers
Coffee Lack of High Hailstone bug, leaf rust,
blossom humidity s/ High hairy black rot,
showers / Wind caterpilla berry
rain on day r, borer, blotch,
of blossom / thrips anthracnose
backing , Brown
showers eye spot
Rubber Low Drought / Low Cyclone scale shoot rot,
temperatur Dry spells humidity insect, powdery
e mealy mildew,
bug, bird’s eye
grub, spot, leaf
caterpilla and pink,
r mites rots
77
Tea Frost/ Drought / Low High mites, blister
High Dry spell humidity thrips, blight,
Temp. jassid, rust,
caterpilla wood, red,
r, borers brown,
black
roots,
Table-2: Spices crops – Important Abiotic & Biotic Risks
Major Biotic risks

Major Abiotic risks
Name of
Crops Wind
Temp Rainfall Humidity Sunshine Pests Diseases
/Hail
Black Excessive Long dry Low High High pollu beetle phytophthora
pepper heat and spells humidity wind / top shoot foot rot.
dryness before cyclone borer Slow decline,
flowering wilt
Cardamom - Heavy Low cyclone Too stem borer, katte disease
Rainfall humidity much capsule vein clearing
and or too borer, disease,
cloudy less thrips capsule rot
weather aphids ,root
grubs
Cinnamon - - - cyclone - - wilt
Clove High temp Water - High - stem borer Seedling wilt
stress wind ,leaf rot, bud
/cyclone shedding
Coriander High temp Frost- High High aphids Wilt,
during humidity powdery
flowering mildew
Cumin - Frost High - - aphids Wilt,
humidity powdery
mildew,
blight
Fenugreek - Cloudy High RH High Low aphids powdery
weather Wind mildew,
root rot
Fennel - High - High Low aphids, collar rot,
Rainfall, Wind midge blight
frost,
heavy
dew
78
Ginger High temp High - - - shoot rhizome rot,
rainfall-at borer, yellow
harvest rhizome disease,
scale bacterial wilt
Nutmeg High Dry Low RH cyclone - - Die back,
Temp climate blight
Turmeric Low High Too - - shoot rhizome rot
atmospheric rainfall at High/low borer,
temp harvest humidity rhizome
scale
Chilli High Excess High High - white fly , leaf curl,
temp rainfall, humidity wind thrips, bacterial wilt
cloudy mites, ,virus,
days fruit borer, mosaic
powdery
mildew
Garlic Heavy Low thrips, soft rot, leaf
rainfall mite, spot
rhizome fly
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Table-3:Plantation & Spices Crops - Insurance Proposal: 80% -85% Coverage Le
S. No. Important Area Area (% ) Area Sum Insured Premium Premium Total Pre m i u m
rate (at per Hecatre su bsi dy @
Plantation (Hectare) eligible for (hectares) (Rs. per Premium
losses (Rs.) 50% su bje ct
Crops insurance eligible for hectare) (Rs. Lakhs) to cap)
estimated insurance exceeding
15% - 20%)
1 Rubber 597410 85% 507799 110,000 3.0% 3300 16757.35 1650.00

2 Tea 521000 25% 130250 40,000 6.0% 2400 3126.00 1200.00
3 Coffee 354840 75% 266130 30,000 10.0% 3000 7983.90 1500.00
4 Tobacco 191200 80% 152960 40,000 6.0% 2400 3671.04 1200.00
Important Spice Crops
1 Chilly 834310 80% 667448 40,000 8.0% 3200 21358.34 1600.00
2 Ginger 85068 80% 68054 40,000 6.0% 2400 1633.31 1200.00
3 Turmeric 149430 80% 119544 40,000 6.0% 2400 2869.06 1200.00
4 Pepper 223086 80% 178469 20,000 6.0% 1200 2141.63 600.00
5 Cardamom 73125 80% 58500 50000 6.0% 3000 1755.00 1500.00
(small)
6 Cardamom 30008 80% 24006 50,000 5.0% 2500 600.16 1250.00
(large)
Floriculture
1 Flowers-Loose 115000 60% 69000 50000 8.0% 4000 2760.00 2000.00
2 Flowers-cut 10000 80% 8000 200000 6.0% 12000 960.00 6000.00
3 Flowers-cut 400 90% 360 2000000 5.0% 100000 360.00 50000.00
(export)
Total 65615.77
Note:
1. Area eligible for insurance has been estimated by reducing area of commercial establishments / large farms and insura
2. Subsidy allowed is 50% subject to a cap of Rs. 6000 per hect for cut flowers; 50000 per hect for cur (export) flowers
and Rs. 2500 per hect for Others
3. Subsidy is available for holding size upto 10 hectares for rubber, tea, & coffee and 4 hectares for other crops
Government's Liability for XI year Plan

S.No Year Penetration GoI
Levels Liability
(Rs. Lak h s)
1 2007-08 25% 8201.97
2 2008-09 35% 11482.76
3 2009-10 50% 16403.94
4 2010-11 65% 21325.13
5 2011-12 80% 26246.31
Total XI Plan 83660.11
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Table-4:Plantation & Spices Crops - Insurance Proposal: 70% Coverage Le
S. No. Important Area Area (% ) Area Sum Insured Premium Premium Total Pre m i u
rate (at per Hecatre su bsi dy
losses (Rs.) 50% su b
Crops insurance eligible for hectare) (Rs. Lakhs) to cap
30%)
1 Rubber 597410 85% 507799 110,000 2.0% 2200 11171.57 1100.0

2 Tea 521000 25% 130250 40,000 4.0% 1600 2084.00 800.0
3 Coffee 354840 75% 266130 30,000 8.0% 2400 6387.12 1200.0
4 Tobacco 191200 80% 152960 40,000 4.0% 1600 2447.36 800.0
1 Chilly 834310 80% 667448 40,000 5.0% 2000 13348.96 1000.0
2 Ginger 85068 80% 68054 40,000 3.0% 1200 816.65 600.0
3 Turmeric 149430 80% 119544 40,000 5.0% 2000 2390.88 1000.0
4 Pepper 223086 80% 178469 20,000 3.0% 600 1070.81 300.0
5 Cardamom 73125 80% 58500 50000 5.0% 2500 1462.50 1250.0
(small)
6 Cardamom 30008 80% 24006 50,000 4.0% 2000 480.13 1000.0
(large)
Floriculture
1 Flowers-Loose 115000 60% 69000 50000 6.0% 3000 2070.00 1500.0
2 Flowers-cut 10000 80% 8000 200000 4.0% 8000 640.00 4000.0
3 Flowers-cut 400 90% 360 2000000 4.0% 80000 288.00 40000
(export)
Total 44369.98
Note:
1. Area eligible for insurance has been estimated by reducing area of commercial establishments / large farms and ins

Levels Liability
(Rs. Lak h s)
1 2007-08 25% 5546.25
2 2008-09 35% 7764.75
3 2009-10 50% 11092.50
4 2010-11 65% 14420.24
5 2011-12 80% 17747.99
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Table-5:Plantation & Spices Crops - Insurance Proposal: 60% Coverage Leve
S. No. Important Area Area (% ) Area Sum Insured Premium Premium Total Pre m i u m
rate (at per Hecatre su bsi dy @
losses (Rs.) 50% su bje ct
Crops insurance eligible for hectare) (Rs. Lakhs) to cap
40%)
1 Rubber 597410 85% 507799 110,000 1.5% 1650 8378.68 825.00

2 Tea 521000 25% 130250 40,000 3.0% 1200 1563.00 600.00
3 Coffee 354840 75% 266130 30,000 6.0% 1800 4790.34 900.00
4 Tobacco 191200 80% 152960 40,000 3.0% 1200 1835.52 600.00
1 Chilly 834310 80% 667448 40,000 4.0% 1600 10679.17 800.00
2 Ginger 85068 80% 68054 40,000 2.0% 800 544.44 400.00
3 Turmeric 149430 80% 119544 40,000 3.5% 1400 1673.62 700.00
4 Pepper 223086 80% 178469 20,000 2.0% 400 713.88 200.00
5 Cardamom 73125 80% 58500 50000 3.5% 1750 1023.75 875.00
(small)
6 Cardamom 30008 80% 24006 50,000 3.0% 1500 360.10 750.00
(large)
Floriculture
1 Flowers-Loose 115000 60% 69000 50000 4.0% 2000 1380.00 1000.00
2 Flowers-cut 10000 80% 8000 200000 3.0% 6000 480.00 3000.00
3 Flowers-cut 400 90% 360 2000000 3.0% 60000 216.00 30000.00
(export)
Total 33422.48
Note:
1. Area eligible for insurance has been estimated by reducing area of commercial establishments / large farms and insura

Levels Liability
(Rs. Lak h s)
1 2007-08 25% 4177.81
2 2008-09 35% 5848.93
3 2009-10 50% 8355.62
4 2010-11 65% 10862.30
5 2011-12 80% 13368.99
Important Notes:
1. Crops like turmeric, chilly, ginger, etc. are to be insured under National
Agricultural Insurance Scheme (NAIS)
2. Crops like coffee, tea etc. are to be insured under Weather Based Insurance Model
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3. Plantation Insurance of General Insurance PSU would be adequately strengthened
to provide insurance for crops / losses covering natural and non-preventable perils
under ‘individual’ assessment basis (E.g. Rubber)
4. Insurance program to be administered with participation of all insurers in the form

of ‘Co-insurance Pool’. AIC shall lead the initiatives and the pool.
5. Insurance for some of the above crops would be taken up in a phased program
spread over next five years (first three years of XI Five Year Plan Period)
An Alternative to Crop Insurance
7.47 A major obstacle to the commercialization of the small farmer is the increased
uncertainty of the market place, compared to subsistence farming. The problem is
exacerbated by the fact that he has very little ability to absorb the risk of loss. Buying
insurance does not seem to be a workable solution, as the premium rates to cover these
risks appear to be too high. Consequently, government, policy makers and insurance
companies are involved in finding a mix of subsidies (for reducing premiums) and
different types of insurance products to solve this problem.
7.48 There is an alternative solution (Gangopadhyay, 2006), where each farmer

commits to pay a certain amount if conditions are good, in return for receiving something
when conditions are bad. Unlike in insurance, where the farmer pays the premium up-
front, here the farmer pays only when the conditions are good. This is effected by the
farmer selling pieces of paper of given face value to any one who wants to buy them.
Each of these papers promises to pay the face value when the conditions are good. It is
like a lottery ticket, which is sold by the farmer and bought by others. If the conditions
are good, the holder of the ticket wins the lottery and gets the face value on the ticket; if
the conditions are bad, the holder of the ticket loses the lottery, gets nothing and the
farmer gets to keep the price which the buyer paid. As Gangopadhyay (2006) shows, this
83
is equivalent to an insurance setup in outcomes, but does not have the standard problems
highlighted in the report that crop insurance has.
7.49 The fact that in the alternative solution the farmer makes no upfront payment, and
hence faces no liquidity issues, has already been mentioned. Observe that, in the
insurance mechanism, the farmer pays the premium before it has received any revenue. In
the alternative being proposed here, the farmer is called upon to make a payment only
after it has been verified that the crop is good and the farmer has the ability to pay.
7.50 Perhaps an even bigger advantage is the “credibility” of the proposed

arrangement. The Indian regulations make it mandatory for providers of general
insurance to have a paid-up capital of Rs. 1 billion. This is quite a large amount of money
and makes it impossible for the NGOs to enter into this business. This prevents them
from entering into an activity for which they are best suited. Insurance contracts of the
type being discussed here are affected by both adverse selection and moral hazard. The
only way out of this is to have insurance providers who have knowledge about individual
insurance buyers (avoiding adverse selection) as well as being in a position to monitor
them (preventing moral hazard).
Implementing the Alternative
7.51 The biggest problem with implementing this solution is the credibility of the
system. In principle, the lottery ticket being sold by an Andhra farmer can be bought by
any one sitting in Delhi. However, the person in Delhi will be unwilling to buy it because
she is not convinced that a particular Andhra farmer will pay up when the going is good.
7.52 One can think of the following steps in the implementation process.
(a) A growers’ collective can act as the integrator for the tickets of different farmers.
(b) The PSFT can put together the tickets from various grower collectives and sell them
to an institution that securitizes the tickets from various farmers producing different
crops.
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(c) The institution can sell it as a financial paper to the person in Delhi.
7.53 The PSFT deals with the grower collectives and the financial institutions and,
thereby, acts as the credible institution that enables the process. First, the PSFT has a
sufficiently large capital base to underwrite the ticket purchases should the farmers not
pay up when the conditions are good. Second, the PSFT by its exposure to grower
collectives can exercise sufficient leverage to keep the farmers honest.
7.54 One important issue is the price of the ticket. That is not a problem here since this
lottery ticket is nothing but an all-or-nothing option and, therefore, has a closed form
price formula.
7.55 The Task Force was apprised of the Personal Accident Insurance Scheme for the
plantation growers which was launched by the Price Stabilization Fund Trust (PSFT)
providing for an insurance cover of Rs.25,000/-. The premium for this insurance is being
paid by the PSFT from the interest earned on the corpus of the Fund available with it.
The premium is Rs.9/- per person per annum. It was also informed that the Government
is contemplating expanding this scheme so as to cover the permanent plantation workers
along with the growers and the insured amount is being increased from Rs.25,000/- to
Rs.one lac. The scheme is available to the plantation upto 10ha. However, in the
proposed revised scheme, the premium is to be paid on 50:50 basis by the beneficiary and
the PSFT. This has been proposed to inculcate a sense of involvement of the
beneficiaries in this scheme. The Task Force feels that this scheme is very much needed
given the economic status of small growers and the farm labour and recommends that the
scheme may be expanded to other sectors such as Spices and Floriculture.
85
Crop Loans at Reduced Rate of Interest
7.56 The Task Force noted that there have been failures of plantation activity and as a
result thereof the bank loans could not be repaid and the farms became sick. Large loan
amounts are lying outstanding against various growers. The Government in the past had
announced a number of policies for various sectors whereby interest was waived or the
interest burden was reduced by giving subsidy etc. It was a common demand of the
growers as also the Commodity Boards that the bank loan should be made available at a
cheaper rate of interest which can be afforded by the growers. Recently, the Govt. of
India has announced Special Purpose Tea Fund (SPTF) for replantation and rejuvenation
of tea plantations. In that, the rate of interest has been reduced by allowing the banks to
lend funds to the SPTF at government securities rate plus 1% and SPTF will on-lend
these funds to the growers at a margin of 0.5%. This would reduce the interest burden on
the growers. There was a demand from the growers that the crop loan should be made
available to them at the interest rate at which NABARD refinances the banks. The Task
Force feels that lending to the plantation sector/Spices/Floriculture units should be made
at the refinance rate of NABARD plus 0.5%, as has been devised for SPTF. Since the
plantation sector is export oriented and a large portion of its produce goes to the
international market where intense competition is to be faced, it is absolutely necessary
that the cost of money to this sector is reduced to the maximum extent possible.
Inadequate Infrastructure
7.57 The inadequacy of infrastructure and locations of these plantations have already
been discussed in the preceding chapters. Recognizing the disadvantages, the
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Government has been giving subsidy to various plantation products particularly for
export purposes like transport subsidy. The subsidy to offset locational and
infrastructural disadvantages needs extension. Government may examine these issues
separately and provide subsidy for exports wherever it is considered necessary. This
however, is not a replacement to creating adequate infrastructure. For creation of
infrastructure, the Task Force has recommended “plantation bonds” to raise funds
including from carbon trading and eco tourism which may be ploughed into infrastructure
projects.
RECOMMENDATIONS
On the basis of the discussions as contained in the preceding paragraphs of this

Chapter, the main recommendations are listed below:
1. Introduction of a crop insurance scheme – weather insurance and yield insurance

in respect of certain crops in preference to a price risk cover.
2. An enlarged personal accident cover and a cover for individual assets of the
growers as well as the permanent workers deployed on small plantations can also be
thought of.
3. The provision of modern market mechanisms by way of futures and options. For
this, the Task Force, inter alia, suggests the collectivization of small growers.
4. The availability of IOUs to enable the small growers to ensure ready liquidity at
the time of stresses.
5. The creation of infrastructure facilities in plantation areas to give better market

accessibility to the growers. The introduction of Plantation Development Bonds, in this
connection, is recommended.
87
6. Interest rates on crop loans to be reduced at refinance rates of NABARD plus 50
basis points.
7. The lending institutions to be encouraged to share the insurance premium liability

of the small growers so as to ensure easy recoverability of their advances.
8. The strengthening of PSFT organization to enable it to play a pivotal role in the

scheme of things.
*****
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CHAPTER – VIII
FUNDING OF THE PROPOSALS:
8.0 Before the mode of funding of the proposed projects is discussed, it would be
useful to do a funds-flow analysis regarding the present and future availability of funds
with the PSF Trust. The PSF Trust was initially projected to have a corpus of Rs.500 Cr.
As against this, the amount made available stands at Rs.432.88 Cr. This excludes
growers’ contribution of Rs.2.24 Cr, for which, the Government will have to take a view
regarding retention and usage. Thus, the total corpus available as on 31/12/2006 is
Rs.435.12 Cr. While the Corpus was proposed to be maintained at this level, the
organization funds was to be in the form of interest accrual at the rate of 8% of the
Corpus (Table-I). It would be seen from Table II that the interest accrued till 2005-06
is Rs. 67.16 Cr and with the capitalization of this component, a further Rs.39.89 Cr is
estimated to accrue by the end of 2006-07. The details of accrued interest and funds
released may also be seen from Table-II.
8.1 As regards utilization of funds, the details are indicated at Table-III. It is
understood that the utilization rate has been low on account of low membership of
growers due to disinclination to join the Scheme for unattractive compensation and also
the fact that member-growers have defaulted in depositing their share of contribution in
normal years.
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8.2. It emerges that the funds available with the PSF Trust are as follows:-
Corpus of Rs.435.12 Cr
Interest currently available Rs. 63.55 Cr
Interest estimated to accrue during 2006-07, Rs. 39.89 Cr
Thus, the total amount of organization funds by April, 2007 would be Rs.103.44 Cr.
8.3. Let us now indicate the likely availability of fund in the next five years on the basis
of two scenarios
(i) On the basis of the present corpus of Rs.435.12 crs

(ii) On the basis of a corpus of Rs.500 crs, which would require an
injection of Rs.64.88 crs by the Government.
With a Corpus of Rs.435.12 crs :
Rs. In Crores
Interest
Interest
available
Cumulative bearing
for Administrative Surplus
Year surplus corpus &
disburseme expenses available
available capitalized
nt @ 8%
interest
accrual
1 2 3 4 5 6
(col.3 – 4)
2005-06 63.55 - 63.55 63.55
2006-07 39.89 0.5 39.39 102.94 538.06
2007-08 43.04 0.5 42.54 145.48 580.60
2008-09 46.44 0.5 45.94 191.42 626.54
2009-10 50.12 0.5 53.59 245.01 676.16
2010-11 54.09 0.5 53.59 298.60 729.75
2011-12 58.38 0.5 57.88 356.48
Total 356.48
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8.4 Therefore, organization funds to the extent of Rs.356.48 Cr would be available
during the 11th Plan period under the present Scheme of things. This is on the basis of
assumption of nil outgo. However, the amount available would be less, depending on
the quantum of outgo.
8.5 However, in case the Government makes an injection of Rs. 64.88 Cr into the
Corpus, the disbursable funds available would be as follows:
With Corpus of Rs.500 crores
Year Interest Administrative Surplus Cumulative Interest

available for expenses available surplus bearing
disbursement available corpus and
@ 8% accrual capitalized
interest
1 2 3 4 5 6
(col.3 – 4)
2005-06 63.55 - 63.55 63.55 498.67
2006-07 39.89 0.5 39.39 102.94 538.06
2007-08 48.23 0.5 47.73 150.67 650.67*
2008-09 52.05 0.5 51.55 202.22 702.22
2009-10 56.17 0.5 55.67 257.89 757.89
2010-11 60.63 0.5 60.13 318.02 818.02
2011-12 65.44 0.5 64.94 382.96
Total 382.96
* Injection of capital into Corpus by GOI at this stage.
Funds Required
8.6 Against the above backdrop, let us now consider the funding requirements of the
proposed projects:
8.7 Personal Accident Insurance Scheme: It is recommended that this Scheme be
extended also to permanent plantation workers who are deployed on the small plantations
91
and also that the cover be increased to Rs.1.00 lakh depending upon the severity of the
accident. The premium requirement for this Scheme for four commodities, Tea, Coffee
Rubber and Tobacco would be Rs.178.78 lakhs (with the target of 12.77 lakh and Rs.14
premium per annum for growers) and (Rs.715.12 lakhs for the workers @ 4 workers per
plantation.) Thus, the total requirement would be Rs.893.9 lakhs or Rs.8.93 Cr per
annum. Therefore, PSFT’s share will be Rs. 4.46 Cr per annum [@ 50% liability]. This
scheme should be funded from PSFT’s earnings.
8.8 Comprehensive Insurance Scheme : As already explained in Chapter VII, the
insurance scheme has been projected to cover 12 commodities, which constitute a major
share of the Plantation sector, and for which production is driven not only by
considerations of domestic demand but also export potential. These commodities are
exposed not only to volatility of international and domestic prices but also to vagaries of
domestic demand. It is important to give, within the limits of feasibility, a
comprehensive crop insurance cover, particularly to the small farmers.
8.9 The coverage has been proposed at three levels, namely, 80 – 85%, 70% and
60%. The highest level i.e. 80-85% entails Government’s annual financial liability to
the extent of Rs.328.08 cr followed by Rs.221.85 cr at 70% and 167.11 cr at 60%. It does
not require any reiteration that the goal should be to adopt 80 – 85% cover level, so as to
make the scheme attractive to small farmers. However, in terms of details calculated for
both 80 – 85% and 70% coverage, the requirement of funds during the first five years
would be Rs.836.60 cr and Rs.565.72 cr respectively.
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8.10 The Task Force has done an exercise on funding requirements of this project.
Views of the various members have been ascertained and after deliberations, the opinion
is that the funding could be in one of the following ways:-
(i) The project be funded fully through PSF Trust – This would require
injection of funds to increase the size of the Corpus of the Trust so as to
meet the requirements of the project.
(ii) The project be funded partly by PSF Trust and the uncovered gap be
met through budgetary support of the Government.
(iii) The project be funded fully through GOI budgetary sources and
implemented by the PSF Trust.
The above three scenarios have been detailed in the form of Tables IV & V.
It would be seen that at 80 – 85% coverage, the following Scenarios emerge:
93
8.11 Scenario A: Full Funding through PSF Trust Corpus:
The PSF Trust would be able to meet the requirements in the 1st year i.e.
2007-08
From the second year onwards funding gap would arise. It would be Rs. 9.99
cr in 2008-09, Rs. 118.53 cr in 2009-10 and would go on to Rs. 49.20 cr in
2011-12.
Additional Corpus funds required to be injected on this basis would be Rs.

124.87 cr in 2008-09, Rs.1481.62 in 2009-10, Rs. 615.12 cr in 2010-11 and
Rs.615.00 cr in 2011-12.
It is important to note here that the injection of additional Corpus would have
to be made at the beginning of the preceding year in which the gap arises, so
that the accumulation of interest of the value indicated year-wise in the Table
is available in the year of requirement. This means that Rs.124.87 cr would
have to be injected on 1.04.2007 so that the gap of Rs.9.99 cr can be met in
2008-09 and so forth.
The total amount of Corpus injection requirement is Rs. 2836.61 cr during the
11th Plan period and by the end of this Plan period, the PSFT corpus would be
Rs.3336.61 cr. This means at the beginning of 12th Plan period, the PSFT
would able to generate an annual interest of Rs.266.93 cr and it would be able
to sustain itself and implement this project in the future years from its own
resources.
94
8.12 Scenario B: Project Funded from Corpus of PSFT (Rs.500 cr) & balance from
GOI’s support:
Government’s budgetary support would commence from 2008-09 with Rs. 9.99 cr in
that year and increasing to Rs. 226.93 cr in 2011-12.
Total estimated budgetary during the 11th Plan period would be Rs. 543.15 cr.
While the funds requirement here is of a much lower order as compared to Scenario
A, it could be reasoned that in future years, beyond the 11th Plan period, similar
financial support would have to be extended to PSF Trust and would constitute a
permanent charge on the Budget.
8.13 Scenario C: Project Fully Funded by GOI Budgetary Support :
Funds required from the Government budget would be Rs.836.60 cr at the 80 –

85% coverage level and Rs. 565.72 at the 70% coverage level.
RECOMMENDATIONS
So the question which emerges is, which of the above options would be the most
favoured option? The Task Force is of the opinion that keeping in view the parameters, it
would be advisable to adopt Scenario A. This could be adopted as a part of the PSF
Trust’s restructuring process and also with the resultant benefits of making this project a
self-financing one from the Corpus 12th Plan onwards. However, keeping in view the
budgetary constraints of the Government, the Task Force recommends that “Project be
posed for international multilateral funding from World Bank, IDA & IFC
sources”.
95
Table 1. - PSF Corpus Fund:
Deposits in the PSF Corpus Fund as on 31st December 2006, is as under:
(Rs. In Crs)
As proposed Actual Position as on

under the 31.12.2006
Original PSF
Scheme
GOI Contribution 482.88 432.88*
Growers’ contribution 17.12 2.24
Total 500.00 435.12
*GOI is yet to provide Rs.50.00 crore towards PSF Corpus.
Table 2. – Status of Interest accrued position as on 31.3.2006:
(Rs. In Crs)
Year Interest accrued Interest released Surplus
to PSF Trust available
2003-04 2.68 0 2.68
2004-05 27.58 1.75 25.83
2005-06 36.90 1.86 35.04
67.16 3.61 63.55
2006-07 39.89
(Estimated)
96
Table 3. – Release of Funds to PSF Trust and its actual utilization thereof:
(Rs. In lakh)
Year Interest Expenditure
released Scheme Insurance Admn. Total
by DOC Payout Expenses
2003-04 0 0 0 18.91 18.91
2004-05 175.00 91.56 3.03 37.39 131.98
2005-06 186.00 13.95 2.51 23.98 40.44
2006-07 0 6.03 4.02 21.83 31.88
361.00 111.54 9.56 102.11 223.21
• For 2006-07, account status for April to December 2006 reported.

• Since August 2003 (i.e. for 8 months in 2003-04)
Table 4
LEVEL I : 80-85% coverage
Scenario – A : Project fully funded through PSF Trust Corpus
Rs. In Crore
PAIS
Premium
for 12.77 Funds
Additional Corpus
S. Penetration lakh available Total
Year GOI liability Gap needed to generate
No. level growers with Liability
the gap
and 4 PSFT
workers
@ Rs.7/-
9
1 2 3 4 5 6* 7(4+5) 8 (6-7)
[{Mod(gap)*100{/8]
1 2007-08 25% 82.02 4.47 150.67 86.49 64.18 0
2 2008-09 35% 114.83 4.47 109.31 119.30 -9.99 124.87
3 2009-10 50% 164.04 4.47 49.98 168.51 -118.53 1481.62
4 2010-11 65% 213.25 4.47 168.51 217.72 -49.21 615.12
5 2011-12 80% 262.46 4.47 217.73 266.93 -49.20 615.00
TOTAL 836.60 22.35 696.20 858.95 2836.61
Scenario B : Project funded from PSFT’s existing Corpus of Rs.500 crore and balance from
GOI’s Budget
Rs. In Crore
97
PAIS
Premium
for 12.77 Funds
S. Penetration lakh available Total Govt’s budgetary
Year GOI liability Gap
No. level growers with Liability support
and 4 PSFT
workers
@ Rs.7/-
1 2 3 4 5 6* 7(4+5) 8 (6-7) 9
1 2007-08 25% 82.02 4.47 150.67 86.49 64.18 0
2 2008-09 35% 114.83 4.47 109.31 119.30 -9.99 9.99
3 2009-10 50% 164.04 4.47 40.00 168.51 -128.51 128.51
4 2010-11 65% 213.25 4.47 40.00 217.72 -177.72 177.72
5 2011-12 80% 262.46 4.47 40.00 266.93 -226.93 226.93
TOTAL 836.60 22.35 379.98 858.95 543.15
Scenario C : Project fully Funded through GOI Budgetary support

Rs. In crore
Penetration GOI
S. No. Year
level liability
1 2 3 4
1 2007-08 25% 82.02
2 2008-09 35% 114.83
3 2009-10 50% 164.04
4 2010-11 65% 213.25
5 2011-12 80% 262.46
TOTAL 836.60
* Calculated on the basis of interest accrual plus balance carried forward from last year
TABLE – 5
Scenario – A : Project fully funded through PSF Trust Corpus
Level : 70% coverage
Rs in Crore
PAIS
Premium
for 12.77 Funds
Additional corpus
S. Penetration lakh available Total
Year GOI liability Gap required to generate
No. level growers with Liability
the gap
and 4 PSFT
workers
@ Rs.7/-
98
9
1 2 3 4 5 6* 7(4+5) 8 (6-7)
[{Mod(gap)*100{/8]
1 2007-08 25% 55.46 4.47 150.67 59.93 90.74 0
2 2008-09 35% 77.65 4.47 137.99 82.12 55.87 0
3 2009-10 50% 110.93 4.47 100.33 115.40 -15.07 188.37
4 2010-11 65% 144.20 4.47 55.06 148.67 -93.61 1170.13
5 2011-12 80% 177.48 4.47 148.68 181.95 -33.27 415.87
565.72 22.35 592.73 588.07 1774.37
Scenario B : Project funded from PSFT’s existing Corpus of Rs.500 crore and balance from
GOI’s Budget
Rs. In Crore
PAIS
Premium
for 12.77 Funds
S. Penetration lakh available Total Govt’s budgetary
Year GOI liability Gap
No. level growers with Liability support
and 4 PSFT
workers
@ Rs.7/-
1 2 3 4 5 6* 7(4+5) 8 (6-7) 9
1 2007-08 25% 55.46 4.47 150.67 59.93 90.74 0
2 2008-09 35% 77.65 4.47 138.06 82.12 55.94 0
3 2009-10 50% 110.93 4.47 100.51 115.40 -14.89 14.89
4 2010-11 65% 144.2 4.47 40.00 148.67 -108.67 108.67
5 2011-12 80% 177.48 4.47 40.00 181.95 -141.95 141.95
565.72 22.35 469.24 588.07 265.51
Scenario C : Project fully Funded through GOI Budgetary support

Rs. In crore
Penetration GOI
S. No. Year
level liability
1 2007-08 25% 55.46
2 2008-09 35% 77.65
3 2009-10 50% 110.93
4 2010-11 65% 144.2
5 2011-12 80% 177.48
565.72
* Calculated on the basis of interest accrual plus balance carried forward from last year
99
CHAPTER - IX
Role of Price Stabilisation Fund Trust
Background
9.0 Department of Commerce launched the “Price Stabilisation Fund Scheme” in
April 2003. Under this Scheme, it was envisaged that a Corpus fund of Rs.500 crore
would be kept in public account of Government of India and the interest @8% per annum
thereon would be released to the Trust Fund. The PSF Trust was registered as a public
trust on 11th September 2003 jointly by NABARD and Department of Commerce with
NABARD as “Settlor”.
9.1 The objective of the PSF Trust, its constitution and functions are given in the
Annexure – II.
9.2 PROPOSED ROLE AND STRUCTURE OF PSF TRUST:
In the light of the recommendations of the Task Force, the role of PSF Trust may
encompass the following additional responsibilities:
• Coverage of Spices (cardamom, chillies & pepper) and Floriculture

exports,
• Operationalisation of a Comprehensive insurance package for the
Plantation Sector,
• Issuance of Bonds and similar nature of financial instruments by way
of financial assistance to growers,
100
• Coordination with Commodity Boards relating to various
developmental schemes being implemented for the plantation sector.
The administrative structure of the PSFT will need to be strengthened in view of

the additional roles.
101
CHAPTER – X
IMPLEMENTATION
10.0 In the chapters appearing before this, we had considered the possibility of putting
in place an insurance scheme for the small growers of plantation crops. The first of the
schemes dealt with the risks on yield affected by weather etc. and the second dealt with
price volatility and how by introduction of futures trading, the floatation of a plantation
bond etc., the woes of the small growers of plantation crops to a large extent be
ameliorated.
10.1 The Task Force had spent considerable time in deciding whether the measures
recommended by it should be made mandatory or optional. In case the optional route is
adopted, there is a distinct possibility of small growers not joining any scheme during the
years of plenty when they have no worries about the realization of their investment. Their
complaints would surface and Government would be forced to dole out assistance etc.,
when adversities happen and only in those years the growers would look to being bailed
out of their difficulties. This adverse selection is one of the relevant considerations
which compel the members of the Task Force to lay down that the measures suggested in
this Report may be made mandatory. In other words, the persons who would like to get
benefits out of the social insurance schemes regarding protection of yield and realization
as also the personal accident scheme must become members of an organization which
would enable the schemes to be implemented properly. The mandatory nature of the
schemes would enable the platform to be broadened and with more active participation of
102
small growers, it will work out better schemes for their mutual benefit. This will also
result in insurance premia coming down substantially with the result that the pressure
both on the growers and the Government in meeting the periodical premium would be
reduced.
10.2 We have noted that the Government has set up a Price Stabilization Trust Fund
under the Ministry of Commerce. This was conceived as a mechanism to provide
financial relief to the plantation growers when the prices of the commodities fell below a
specified level and did not resort to the Government undertaking any procurement
operations in situations where the market price fell below the cost of production. The
basic principle was to set up a pool of resources to support growers over a long period of
time and to reduce their burden in case of a sudden and unexpected fall in market prices.
The scheme was made available to the plantation growers in the areas of coffee, tea,
rubber and tobacco and where the operational holding of growers was up to 4 hectares.
Because of the prevalent market conditions, the tobacco growers opted out of the scheme
and the scheme as of today is applicable only to the rubber, coffee and tea growers. The
scheme is optional in nature and as against 12,77,000 eligible growers, today the
participation is only of 45247. Even here, complaints have been raised by small growers
that the deposit to be made at Rs.1,000 per hectare in the years of plenty does not yield
any great benefit to them and therefore according to them, the benefits are rather vague.
10.3 Internationally also, whenever schemes have been made optional in nature, the
participation of beneficiaries has been very minimum. It has been noticed by the United
States in the operation of their medicare programme that this adverse selection process
103
has resulted in a huge out-flow of resources bankrupting the schemes. In fact, some of
the big States in USA, like California are now contemplating an introduction of a
compulsory system of insurance where every citizen of the State is required to contribute
a minimum to the scheme which will enable a basic level of health care to be rendered to
these people. The health care may also include of maintenance of health in the periods
before a person actually falls sick.
10.4 We have, therefore, to decide a scheme which would take note of these basic
ingredients and since the Task Force has suggested a plan which would enable a large
part of the initial losses to be absorbed by the Government, the scheme should be notified
as mandatory and applicable to all small growers having plantation crops in land of 10
hectares or below. This scheme could be administered through the Price Stabilization
Trust Fund, which has already been established by the Government. Its operational
division and the objectives of the Trust could be suitably modified to reflect the current
requirements of the administration of the two schemes which the Task Force has
suggested. The Trust could be made into a statutory body, with the hope that gradually it
would assume greater powers of coordination between the Commodity Boards and the
growers to ensure not only a financial stability, but a commercially healthy growth in the
plantation industry.
10.5 The Task Force would not have made recommendations regarding the
establishment of a social insurance scheme, if it had not been convinced that the
continuance of the plantation sector is in the economic interest of the Nation. The social
needs of a large number of people employed in the industry should be taken care of and
104
the earnings in foreign exchange continued. The industry must be placed on a sound
footing to enable the Indian producers to compete with the foreign growers on an equal
level.
10.6 Elsewhere in the report, the Task force has projected the requirements of premium
over a five year period; Projections of the government’s share of the premium have also
been indicated. The task force is conscious of the fact that the extension of the scheme
that it has suggested, even on a mandatory basis, cannot be achieved over-night and that
there will be the provision of a risk cover gradually over a period.
10.7 On this basis, a projection of Rs.679.55 crores over the 11th Five Year Plan has
been made as government’s financial support for the scheme – split into Rs.64.18,
Rs.99.99 Rs.128.51, Rs.177.72 and Rs.226.93 crores over the different years. The Task
Force that this commitment should be organized by the Government as part of its
obligation to the small growers in the plantation industry – coffee, tea, rubber, tobacco,
chilly, ginger, turmeric, pepper and cardamom. While budgeting provisions are in order
to meet this commitment, attention is drawn to the fact that a Price Stabilization Fund
Trust has already been established by the government with a corpus of Rs.500 crores.
Due to lack of interest on the part of the growers to come under the scheme put through
by the Trust, the fund is lying idle. An annual interest accretion of around Rs. 40 crores
will be available to fund at least partly the commitment in the early years of the
implementation of the scheme – to be topped up by release of funds by the government
from time to time. The task force, therefore, recommends the schemes to government for
implementation.
105
10.8 The Task Force was given to understand that the Weather Link (Rainfall)
Insurance is being considered for coffee where the crops are being insured against
untimely and scarce rainfall. The premium is proposed to be shared between the
beneficiary and the Government. On 50-50 basis. The scheme is applicable to the
plantation upto 10 ha.
10.9 The crop insurance, that is being proposed here, will be in line with that for
coffee, however, considering the peculiarity of each plantation/crop, the parameters of
each insurance will be different and determined by the concerned insurance agencies.
However, the financial burden of payment of premium for each plantation crop and
spices, tobacco and floriculture will have to be shared by the Government to the extent of
50% at least for the first 5 years. After 5 years, the alternative proposal that the Task
Force has recommended like the IOU option would have become fully functional and at
that stage instead of crop insurance, the farmers may be motivated to accept the IOU
option.
10.10 A personal accident insurance scheme was experimentally launched by the PSFT
in 2005 under which premium is being paid out of interest earnings of PSFT fund for
personal accident cover of Rs.25,000/- for the growers. It is believed that the
Government is considering increase in the insurance cover from Rs.25,000/- to Rs.1 lac
and also inclusion of permanent farm labour along with the small growers. The Task
Force feels that personal accident insurance scheme will be beneficial to the small
growers and the workers. In any case, this scheme is available only upto 10 ha holdings.
The scheme needs to be expanded so as to cover other crops such as spices and
106
floriculture. However, the persons availing of this insurance will have to pay 50% of
premium and 50% of the premium should be subsidized by the Government through
PSFT’s earning.
10.11 The Task Force has also considered various other options to secure reasonable
price to the growers like futures markets, Put option, Plantation Bonds and IOU
mechanism. The IOU mechanism appears to be workable and if it succeeds, crop
insurance may not be necessary instead the growers would prefer this option. The
detailed mechanism of this option may be worked out with proper instrumentalities put in
place.
10.12 The Task Force has also considered an alternative scheme to insurance –
floatation of options which do not require any investment of cash by farmers upfront. In
making the recommendations, the task force has been aware of the fact that any system of
subsidy (where a major part of the benefit is funded by Government) tends to get self-
perpetuating; It will also lead to a demand from other sectors of the industry not covered
now for an extension and very soon not economic but political and social reasons will
tend to decide such issues. In the circumstances, the task force has examined the issues a
little more in depth and comes to the following conclusions :
(i) in the existing situation, where relief to the small growers is found as an “after
event” measure leading to calamitous situations amongst the growers and to
panic, it will be ideal to find a solution which will act upfront ;
(ii) in such a situation, taking note of the information availability among the
growers, the introduction of the crop insurance scheme as suggested by the
107
task force should be implemented as an immediate source of care and relief.
The period during which this scheme could be implemented can be fixed at
four to five years ;
(iii) simultaneously, the PFST should be recognized as the focal institution for
relief to growers and the issue of plantation funding should be entrusted to
this organisation to aid and finance infrastructure development ;
(iv) the alternative to insurance – the subscription to options etc. suggested in the
report should be put into effect. This obviously requires educating the small
growers on the benefits of the procedure and its technical features. The Task
Force feels that such an objective should be an on-going one for the next five
years or so.
With the running of the schemes at (ii) and (iv) on parallel lines, there should be a sun-set
clause presented for the crop insurance scheme and the entire benefit package being run
by scheme at (iv). We felt that some good progress on these lines should be possible by
the end of five years from now and before withdrawing fully the crop insurance scheme,
a quick pilot study can be made at that time to decide as to whether it was ripe for a
complete switch-over.
108
Annexure – I
F.NO.3/2/2006-Plant C
Government of India
Ministry of Commerce & Industry
Department of Commerce
Dated the 24th July, 2006
ORDER
The Department of Commerce hereby constitutes a Task Force for undertaking a study
to evolve a mechanism to protect the growers of tea, coffee, rubber and spices from the adverse
effects of price volatility in the Plantation Sector comprising the following:-
1. Shri N. Rangachari,
former Chairman, CBDT and IRDA - Chairman, Task Force
2. Dr. Vijay Kelkar, Former Finance Secretary - Member
3. Dr. Subhashish Gangopadhyay, Professor,
India Development Foundation, New Delhi - Adviser
4. Dr. Bharat Ramaswami,Professor, - Adviser
Indian Statistical Institute, New Delhi
2. The Terms of Reference for the Task Force for the Plantation Sector will be as
following:
I. Scope of the study
(i) Identification and assessment of the problem and extent of ‘price volatility’ faced by
growers of tea, coffee, rubber and spices ( only chilli, pepper & cardamom ).
(ii) The feasibility of making direct compensation to the growers for the losses suffered
by them based on a new scheme which may be either a supplement or alternative to the
existing Price Stabilisation Fund Scheme. Any compensation scheme could examine the
feasibility of disbursing claims to offset the difference between a weighted average cost of
production and weighted average international price of each commodity. Any cost of
production would factor in a minimum return on investments made by growers.
109
(iii) The feasibility of introducing an instrument which enables the growers to park surplus
funds during good crop years and offers market related interest rate. The instrument may also
enable the growers to have maturity proceeds which would be exempt from income tax subject
to the condition that the same would be ploughed back for development/upgradation of
plantation operations. These could include renovation of old field assets, promotion of water
augmentation/harvesting investments, promotion of group processing activities to improve
quality, combating environmental pollution etc. An amendment to Section 33AB of the Income
Tax Act could be also considered for this purpose.
(iv) The feasibility of a risk management support mechanism to small growers to mitigate the
effects of adverse weather and pest related risks.
(v) The feasibility of introducing a social sector insurance scheme to compensate small
growers for expenses on account of education, illness/critical illness, drinking water, sanitation
etc.
II. Fees & Travel
For carrying out the study, Shri N. Rangachari & Dr. Vijay Kelkar will be sanctioned a
professional fee of Rs. 2.00 lakh each which would include their travel and other incidental
expenses. Dr. Subhashish Gangopadhyay and Dr. Bharat Ramaswami will be sanctioned a
professional fee of Rs. 1.00 lakh each for the same purpose. The expenditure in this regard
would be met from the head “Professional Expenses”.
III. Duration of the study
The study may be completed within a period of 3 months commencing from the date of
issue of the sanction for this study. The study report may be submitted to Department of
Commerce within this time frame.
This issues with the approval Finance Division vide their Dy.No. 2139/FD/06 dated
21.7.2006.
Yours faithfully,
(Aditi Das Rout)

Director (Plantations)
Tel.No.2306 2530
e.mail: [email protected]
110
F.NO.3/2/2006-Plant C
Government of India
Ministry of Commerce & Industry
Dated the 8th August, 2006
ADDENDUM
In continuation of this Department’s Order of even number dated

th
24/25 July, 2006 regarding constitution of a Task Force for undertaking a study
to evolve a mechanism to protect the growers of tea, coffee, rubber and spices
from the adverse effects of price volatility in the Plantation Sector under the
Chairmanship of Shri N. Rangachari, former Chairman, CBDT and IRDA, it has
been decided to entrust the study to assess the long-term international
competitiveness of the plantation industries, namely, tea, coffee, rubber and
spices (pepper, cardamom and chilli) to the Task Force in addition to the above
mentioned study.
2. The scope of the study by the Task Force would take into account the
possibility of new producers entering the market, establishment of new
plantations in virgin lands of Africa, the age-profile of India’s plantations, wage
rates etc.
3. The other terms and conditions of the order dated 24/25th July, 2006
would remain the same.
This issues with the approval of Minister of State for Commerce & Industry.
(Aditi Das Rout)

Director (Plantations)
Tel.No.2306 2530
e.mail: [email protected]
111
Annexure – II
PRICE STABILISATION FUND TRUST
The Objective of the PSF Trust is to provide support to needy farmers/growers of coffee,
tea, rubber and tobacco in problems related to production, pricing and marketing of these
commodities through scheme(s) drawn by the High Powered Committee from time to
time and improve their financial position.
Price Stabilisation Fund (PSF) Trust will be the Nodal Agency for
operationalising the Price Stabilisation Fund (PSF) Scheme.
A Board of Trustees consisting of not less than 3 and not more than 7 Trustees
shall manage the Trust. The Trustees shall be appointed by NABARD with the approval
of the Central Government after obtaining their consent to act as trustee. Additional
Secretary (Plantation) will be the Chairman of the Board of Trustees. A Chief Executive
Officer will look after the day-to-day affairs of the PSF Trust.
Members of the Board of Trustees are:
(i) Additional Secretary (Plantation), Department of Commerce, Govt.

of India, New Delhi.
(ii) Additional Secretary & Financial Adviser, Department of
Commerce, Govt. of India, New Delhi.
(iii) Executive Director, NABARD, Head Office, Mumbai.
(iv) Chief General Manager, NABARD, Head Office, Mumbai.
(v) Chief Executive Officer, PSF Trust, New Delhi.
The Fund shall be operated by the Board of Trustees to realise and fulfill the
objectives of the Trust in the exclusive interest of the beneficiaries. All the expenses of
the Trust shall be borne out of income of the Corpus, consisting of annual payments made
by the Central Government under the Scheme and other resources available to it.
The Board of Trustees shall cause the accounts of the Trust to be audited by a
Chartered Accountant for every financial year and in such manner as directed by the
Central Government.
112
After 10 years from the date of coming into force of this Trust Deed or earlier, the
Trust shall be revocable at the instance of NABARD and in concurrence with the Central
Government and the surplus Fund, assets and other properties of the Trust shall be
transferred to another Trust having similar objects or shall vest in the Central
Government.
Salient features and Status of the Scheme:
The growers of Coffee, tea, rubber and tea having an operational holding of up to
4 hectares are eligible to participate in the scheme. Out of 12.77 lakh eligible
growers, it was decided to cover the most needy 3.42 lakh growers in the initial
phase.
A Corpus of Rs.500 crore would be deposited in the Public Account with
Government of India, out of which Rs.482.88 crore would be contributed by GOI
and Rs.17.12 crore by growers by way of non refundable entry fee at the time of
joining the Scheme.
Interest earnings on PSF Corpus @ 8 per cent per annum i.e. Rs.40 crore would
be given to the PSF Trust for implementation of the Scheme.
Corpus of the Fund would remain undisturbed and interest earnings alone would
be utilized for operationalising the PSF Scheme.
As on 30.11.2006, Corpus fund comprises of Rs.435.12 crore out of which
Rs.432.88 crore is contributed by GOI and Rs.2.24 crore by growers.
A High Powered Committee (HPC) comprising Officials of Department of
Commerce, Ministry of Finance, NABARD, and Experts from Commodity
Boards has been constituted to give policy guidelines and to monitor the Scheme.
The PSF Scheme will be implemented by the Trust in co-ordination with the
Department of Commerce, Commodity Boards and NABARD.
The members of the High Powered Committee are:
Additional Secretary (Plantations)

1. CHAIRMAN
Additional Secretary and Financial
2. Member
Advisor, Department of Commerce
Joint Secretary (EP-Agri Division),
3. Member
Joint Secretary (Banking Division –
4. Member
NABARD Affairs), Ministry of Finance
Director / Deputy Secretary,
5. Member
(Plantations), Department of Commerce
6. Chairman, NABARD Member
7. Chairperson, Coffee Board Member
8. Chairperson, Rubber Board Member
9. Chairperson, Tea Board Member
113
10. Chairperson, Tobacco Board Member
Shri Y.C. Nanda, ex-Chairman,
11. Member
NABARD
Shri Anil Sharma, Senior Principal
12. Member
Economist, NCAER, New Delhi
13. Economist (vacant) Member
Member
14. Chief Executive Officer, PSF Trust
Secretary
The PSF Scheme will be implemented over a period of 10 years i.e. 1.4.2003 –
31.3.2013.
Every year a Price Spectrum Band (PSB) would be announced within the range of
+/- 20 % of the Seven Years’ Moving Average of the International Prices and
categorization of years would be based on average domestic price of the
commodity vis-à-vis price spectrum band:
• If the domestic price falls within the band, the year would be declared as
“Normal Year” and the PSF Trust and the grower would deposit Rs.500
each in the PSF SB account opened in the name of the grower.
• If the domestic price falls below the lower band, the year would be
declared as “Distress Year” and the PSF Trust would deposit Rs.1000 in
the SB account of the grower.
• If the domestic price rules above the upper band, the year would be
declared as “Boom Year” and in that case, the grower alone would have
to contribute Rs.1000 in his PSF SB account.
• By this mechanism, every year Rs.1000 would be credited in the account
of the grower.
• A grower is allowed to withdraw only Rs.1000/- during a distress year.
• At the end of ten-year period, the balance amount in the account can be
withdrawn by the grower including the Government’s contribution and
the interest earnings.
A Personal Accident Insurance Scheme has been started since 2005 for the grower
members of PSF Scheme with a cover of Rs.25,000/- each. The premium of
Rs.9/- per annum per grower is borne by PSF Trust. 44704 growers have been
covered under PAIS till 30.11.2006.
114
REFERENCES & BIBLIOGRAPHY
1. J. W. Glauber (2004), “Crop Insurance Reconsidered”, American Journal of

Agricultural Economics, 86 (5): 1179-1195
2. Ramaswami, Bharat, Shamika Ravi and S. D. Chopra (2004), Risk Management,

State of the Indian Farmer – A Millennium Study, Volume 22, Ministry of
Agriculture and Academic Foundation.
3. Skees, J., P. Hazell and M. Miranda (1999), “New Approaches to Public/Private
Crop Yield Insurance”, World Bank.
4. Anonyomus (2006, A), Coffee Data Base, Coffee Board, Bangalore.
5. Anonyomus (2006,B), Tea Statistics, Tea Board, Kolkatta.
6. Anonyomus (2006,C), “Price Stabilization Fund Trust”, Annual Report

2003-04, 2004-05, P.S.F.Trust, New Delhi.
7. Cashin Paul, Liang Hong, Mc Dermott John C. “Do Commodity Price Shocks
Last Too Long for Stabilization Schemes to Work” Finance & Development,
September 1999.
8. Damodaran A, June 1999 – “Small Grower Subsidy Schemes for Coffee

Growing in India: An Evaluation,” submitted to Coffee Board of India,
Bangalore.
9. Peter, Sajen, (2006) “Price Movement of Natural Rubber”, PPTs, Rubber

Board of India, Kottayam.
*******
115

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REPORT

1. Today there is no credible alternative facility available to a grower to meet the

4. An innovative market literacy programme on trading in general and future trading

7. The Task Force is of a view that development of infrastructure facilities in

9. The Task Force recommends the introduction of measures to facilitate commodity

number directly employed.

worthwhile and the necessity to provide employment opportunities to a large number of

people who are rurally bound.

availability of cheap labour have encouraged a spread to non-traditional areas; other

leading to increased cost of production making such a production uncompetitive in the

continuance of operations in this sector as a matter of necessity and strategy.

1.3 A plantation crop normally is mono-culture and includes growing of a variety of

Indian kitchens. Tobacco also is classified under this category.

market by production of quality products.

prevalence of holdings by small, intermediate and large growers. Surprisingly, it is seen

decide the comparative strength of Indian growers.

1.7 Government has been seriously contemplating a measure to correct these

of the production leave alone provide a margin for the growers.

Price support measures taken by the Government by establishment of a price

consisting of the following individuals :

(1) Shri N. Rangachary, Chairman, Task Force

(2) Dr. Vijay Kelkar, Member, Task Force

(3) Prof. A. Damodaran, IIM, Bangalore

(4) Prof. S. Gangopadhyay, IDF, New Delhi

(5) Prof. Bharat Ramaswamy, Indian Statistical Institute

are given in Annexure – I to this Report.

tackling this problem have been prescribed to be desirable.

insurance companies, NABARD and commercial banks.

SECTORAL OVERVIEW – TEA / COFFEE / RUBBER / SPICES

and the overseas market conditions in the post-WTO regime.

4.1 The Plantation Sector has been instrumental in developing under-developed

zones which enables India to produce different types of teas.

State-wise distribution – (2005-06)

o Assam 476 million kg (51.2%)

Size-wise distribution – (2005-06)

of 3 million persons comprising women and disadvantaged sections of society. This

assured green leaf market.

than on domination and exploitation. Which exists in most rural households.

Table showing important parameters : 2005-06

elevations in thirteen geographically unique regions including the Anamalais (Tamil

grow alongside coffee plants.

4.11 Coffee is produced in an area of around 3.5 lakh hectares, pre-dominantly in

The estimated production of coffee is 2,81,900 tonnes comprising of 98,550 tonnes of

Arabica and 1,83,350 tonnes of Robusta (35% & 65% respectively).

employment for men & women, especially in parts of South India.

bottlenecks in hilly coffee growing tracts etc.

coffees from India for their numerous blends

earth moving equipments.

especially in the North-east. Currently, Rubber is also grown in Tripura, Assam,

plantation sector as workforce either directly or indirectly.

also the fourth largest consumer of natural rubber.

Table showing important parameters : 2005-06

1650 Million US $ during 2003-04.

Board), Indian Institute of Spices Research, Directorate of Arecanut and spices

medicinal, therapeutic and nutraceutical properties of Indian spices in the modern

surpluses, increasing stringency in quality norms of the importing countries (such as

like Vietnam, with practically no internal demand.

Following tables show the important indices of the spices.

TABLE SHOWING IMPORTANT PARAMETERS