Context

• There is a need to formulate official definitions of farmers that go beyond the land ownership criterion.

Definition of farmer

• The population census defines ‘cultivators’ as a person engaged in cultivation of land either ‘owned’ or held in kind or share. 
• The 59th round of the Situation Assessment Survey (SAS) of farmers, conducted by the National Sample Survey Office (NSSO), also stresses on ‘possession of land’ either owned or leased or otherwise possessed for defining ‘farmers’.
• Though various sources define farmers in its own way, the commonality between all of them is ownership of land.

Is ownership of land an appropriate criteria to define a farmer?

• Traditionally, land ownership is a mandatory criterion for availing benefits under various agricultural schemes in India. 
• Laws governing land leasing operate at different levels across India. 
• The Model Agricultural Land Leasing Act, 2016 was introduced to formalise land leasing based on the recommendation of an expert panel appointed by NITI Aayog. However, except a few States, a majority of State governments have not extended the scope of the Act to farmers.
• According to the 2015-16 agricultural census, about 2.65 million operational holdings are either partially or wholly leased.

Impacts on farmers who do not own land

• According to Census 2011, there are 11.8 crore cultivators and 14.4 crore agricultural workers.
• Most schemes meant for farmers’ welfare, including the procurement of wheat and paddy at minimum support prices, are effectively available only for land owners.
• Those who cultivate or work on the land but do not own it are excluded from access to agricultural credit and interest subvention for farm loans. 
• Access to subsidised crop inputs is difficult without identification as farmers. 
• In the event of crop failure, compensation is only given to owners. 
• Direct income support schemes such as PM-KISAN are limited to owners.
• Tax exemption is usually claimed by owners who give an unverified affidavit that they cultivate the land.
• The lessees do not benefit from crop insurance, loan waivers, moratorium and institutional credit and are forced to be at the mercy of moneylenders. The distress is reflected in the fact that tenant farmers account for a majority of farmer suicides reported in the NCRB data.

Way forward

• Refine the definition
• Delinking of land as the defining criterion for a ‘farmer’ was done in the 70th round of NSSO. 
• The definition adopted in the 70th Round of NSSO seems to be appropriate. It can be further refined to define a farmer as one who earns a major part of the income from farming.
• Similarly, the National Policy for Farmers, 2007 adopts a broad-based definition independent of ‘land ownership’ as well as ‘value of produce’. This definition includes everyone engaged in agriculture and allied activities for livelihood, including persons engaged in shifting cultivation and collection of non-timber forest produce.

Conclusion

• Adopting a broader definition of a ‘farmer’ is a short-term solution to ensure inclusive and sustainable growth.