The report of the expert group (EG) on "Development Issues to Deal with the Causes of Discontent, Unrest and Extremism' associated with the Naxalite movement, set up by the Planning Commission two years ago, has the merit of making the relevant issues visible in an official milieu blinded by a "security-centric' view of the movement. But will the powers that be heed the change in "policy perspective and strategy to deal with the movement' that the EG recommends in its report, Development Challenges in Extremist Affected Areas? (Editorial)

India's states have employed several land reform measures, including reforming tenancy, imposing land ceilings, distributing government wasteland, and allocating house sites and homestead plots. With relatively modest revisions, some of the existing laws and policies can further their original intent of increasing the poor's access to rural land and providing for secure land tenure. But old land reform approaches, such as blind adherence to land ceilings and tenancy reform, need reconsideration.

In the past, research on land distribution in rural India has pointed out that the surveys by the National Sample Survey Organisation have yielded underestimates of the extent of land inequality and landlessness. In a fresh analysis, this paper, using household level data from the 48th and 59th rounds (1992 and 2003-04) of the NSSO, finds that (within the limitations of the data) more than 40 per cent of households in rural India do not own land, as much as 15 million acres is in ownership holdings of more than 20 acres, and inequality in ownership has worsened between 1992 and 2003-04.

The national economy is growing at near double-digit rates but neither industry nor non-agricultural activities in rural India have been able to provide livelihoods for millions of rural workers. It is this failure that underlies the spurt in rural violence that has highlighted once again the issue of the poor's access to land, water and forests. It is gradually being recognised that further deterioration of economic, social and political conditions of the rural poor can neither be arrested nor reversed without a significant policy shift towards a comprehensive land reform programme.