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Jawahar Gram Samridhi Yojna will have the following objectives:
Creation of demand driven community village infrastructure including
Generation of supplementary employment for the unemployed poor in the rural areas.
Special Safeguards For the Weaker Sections of the Community.
The programme will be implemented as a centrally sponsored scheme on cost sharing basis between the Centre and the States in the ratio of 75:25. In the case of Union Territories, entire funds under the scheme will be provided by the Centre.
Programme Strategy
The programme will be implemented through the village Panchayats.
Criteria for Allocation of Resources
The Central assistance will be allocated to the States/UTs on the basis of proportion of rural poor in a state to the total rural poor in the country or as per criteria to be decided by the Government/National Development Council from time to time. The poverty estimates prepared by the Planning Commission will be used for this purpose.
At the district level,the allocation of funds will be made on the index of backwardness formulated on the basis of equal weightage to the proportion of rural SC/ST population in a district to total SC/ST population in the state and inverse of per capita production of the agriculture workers in the district.
From the district,the entire funds allocated to each district will be distributed to the village panchayats.DRDAs/Zila Parishads will release the funds directly from Centre or State. They would not wait for matching share either from Centre or State.
For the purpose of allocation of funds to the village panchayats,the population of each village panchayat having less than 1000 population will be taken as 1000.There will ,however, be no upper ceiling on population for the purpose of allocation of funds of village panchayats.Weightage will be given to population of SCs/STs/60% of the resources earmarked for village panchayats will be distributed on the basis of adjusted Sc/ST population and 40% on the basis of adjusted total population (including Sc/ST population).The manner of calculation is given at Annexure-1.
Central assistance will be released every year directly to the DRDAs/ZPs in two installments,subject to the fulfillment of the following conditions:
The funds to village Panchayats will be distributed by the DRDAs/ZPs within fifteen days of the receipt of the funds by the DRDAs/ZPs from the Central or the State Governments.
In so far as forest villages are concerned DRDAs/ZPs will place the allocated funds at the disposal of the respective district level forest official for taking up works under the programme in these villages.The forest authority at the district level will utilise these funds,take up works in the forest village through a committee of five members,consisting of at least one SC/ST and a women,as per belt need of the village community.
All works that result in the creation of durable productive community assets can be taken up under the programme as per the felt need of the area/people by the village panchayat.The works that can be taken up under the programme are given in following paras.
Priority shall be given in the following order
In taken up these works,the village panchayat may take into consideration the facilities being created indoor Basic Minimum Services and other Centrally Sponsored Schemes or State Governments schemes.For instance,while formation of roads is taken up under JGSY,black topping of roads may be taken up under other programmes.
While creating rural infrastructure,the wage material-ratio of 60:40 may be suitably relaxed so as to enable the build up of demand driven rural infrastructure. Care may,however,be taken to ensure purely material oriented works are not taken up and simultaneously efforts should be made to take up labour intensive works with sustainable low-cost technology.To provide supplementary wage employment to the rural poor.the wage material-ratio shall be as close to 60:40 as possible.
In keeping with the above guidelines,each village Panchayats shall prepare before the beginning of each financial year. An Annual Action Plan equivalent of value of 125 per cent of its share of funds allocated in the preceding year before the beginning of each financial year.No work can be taken under JGSY unless it forms part of the Annual Action Plan.
While preparing the Annual Action Plan prepared by the village Panchayats should be thoroughly discussed in the meeting of the Gram sabha.The Gram sabha shall approve the Annual Action Plan including the individual works to be taken up for SCs/STs.This exercise shall be completed before May, 31 of each year.
The Panchayats will thereupon execute the works.The Panchayats will have the power to execute works/schemes upto Rs. 50,000/- with the approval of Gram Sabha.No other administrative or technical approval will be necessary.However, for works/schemes costing more than 50,000/- after taking approval of the Gram Sabha,the Village Panchayat shall seek the technical/administrative approval of appropriate authorities.
In case of shortage of technical staff or otherwise,it shall be permissible for the village panchayat to have the projects technically apprised by even private technically qualified people. State Government should lay down norms for employment of such private technical qualified staff.
The programme will be implemented through the Village Panchayats,who will be responsible for planning and execution of the Yojana,The technical supervision will be the responsibility of the Panchayat Samities and DRDAs/ZPs.
Forest Department in the District will be implementing the programme in forest villages in consultation with the people of the concerned forest village keeping in view the JGSY guidelines and forest(Conservation) Act,1980 as amended from time to time.
At the village level,the entire work relating to co-ordination,review,supervision and monitoring of the programme will be the responsibility of the village Panchayat.
At the district level,the DRDAs/ZPs and at the intermediate level the Panchayat Samities will have overall responsibility for guidance,co-ordination,supervision,periodical reporting and monitoring the implementation of the programme. The DRDAs/ZPs will also be accountable to the State Government to ensure that the returns/report in respect of the works taken up for execution in the district are furnished in time.
BROAD OUTLINE AND OBJECTIVES
OBJECTIVE
CRITERIA FOR ALLOCATION OF RESOURCES
Central assistance would be released every year directly to the DRDAs Who in turn will release 30% of the district allocation to the Zila Parishad and 70% to the Panchayat Samitis as per the formula prescribed.
Funds will be released in two installments.
First Installment:-The district which obtained second/subsequent instalment of funds in the preceding financial year shall automatically receive the first instalment.But those districts which did not receive the second instalment in the preceding financial year shall have to submit the proposal for the first instalment with necessary documents as mentioned under Para marked with *
In case of cold snow bound districts of Himachal Pardesh and J&K,districts of North-Eastern States,to be decided mutually between the Central Government and the State Government concerned ,which have a limited working season,the entire Central assistance,shall be released in one installment.
*Second instalment:- The second instalment of Central assistance will be released on request from the DRDA in the prescribed Proforma as per Annexure-1 and on fulfillment of the following conditions:
IMPLEMENTING AUTHORITY
Zila Parishad shall be the 'Implementing Authority' for the funds released to both Zila Parishad and Panchayat Samitis.The ZPs would be responsible for approval of Annual Action Plan,entrusting works to the implementing agencies,supervision and co-ordination of works and furnishing of necessary reports to the State and Central Government through the concerned DRDAs.
IMPLEMENTING AGENCIES
The implementing agencies of EAS within a district can be any line department,corporation of the State Government and panchayati Raj Institutions at all three levels.
An Annual Action Plan(AAP) shall be prepared every year.The responsibility for preparation of the Annual Action Plan shall be that of the Implementing Authority namely the Zila Parishad.
Zila Parishad would be responsible for the overall coordination and supervision of the works subject to overall control of the ZP.The Panchayat Samitis shall exercise of the works taken up with Panchayat Samiti Component.
In formulating the Annual Action Plan and while taking up the works,Zila Parishad shall give priority to the works of soil and moisture conservation,minor irrigation,rejuvenation of drinking water sources and augmentation of ground water,traditional water harvesting structures and such other schemes of individual nature which are integral to Watershed development. However ,since the nature of the works should be such that they could be completed in one or two years. Watershed development programme requiring commitment for four years may not be taken up. Other priority works may be formation of rural roads linking villages with other village,Panchayat Samiti H.Q., agriculture fields,drainage works and forestry in the community lands.(The roads taken up under Employment Assurance Scheme shall conform to certain minimum standard prescribed).Other than these,they should essentially take up works that are labour oriented.
The works taken up under the programme should result in durable assets. However ,further strengthening or upgradation of such works can be done by utilizing funds from other schemes.For example ,a road work taken up under EAS should be of such standard that the community should be able to use it as such.However, the road could be further strengthening /upgraded/black topped with other funds. But it will not be open to the implementing agencies to use EAS and the remaining works with departmental funds) or to use EAS funds for making payment for the wages for their departmental works.
THE FOLLOWING WORKS SHALL NOT BE TAKEN UP UNDER THE PROGRAMME
SAMPOORNA GRAMEEN ROZGAR YOJNA (SGRY)
Nature of the Scheme
1. The programme will be implemented as Centrally- sponsored Scheme on cost sharing basis between the Centre and the State in the ration of 75:25. In the case of Union Territories, the Centre would provide the entire (100%) funds under the scheme. Food grains are to be provided free of cost to the States/ Union Territories. The cost of transportation of the food grains from the FCI godown to the work site / PDS and its distribution will be remain the responsibility of the State/ UT Governments.
Objectives
2. Wage employment in the rural areas and also food security, alongside the creation of durable community, social and economic assets and infrastructure developments in these areas.
Target Groups
3. The SGRY will be available for all the rural poor (BPL and APL) who are need of wage employment and are willing to take up manual on unskilled work in and around his or her village and habitation. However, the preference will be given to the poorest among the poor, Scheduled Castes/ Scheduled Tribes, and parents of child labour, withdrawn from hazardous occupation.
Strategy of implementation of the SGRY
4. The programme will be implemented in two streams:-
(a) The first stream will be implemented at the district and intermediate Panchayats levels; 50% of the funds will be earmarked out of the total funds available under the SGRY and distributed between the Zila Parishads (20%) and intermediate level Panchayats or Panchayat Samitis (30%).
(b) The second stream will be implemented at the village level; 50% of the funds available under the SGRY will be earmarked for the village Panchayats and distributed among the Gram Panchayats through DRDAs/Zila Parishads.
5. Under the programme, the funds and food grains would be allocated to the States/UTs. on the basis of the proportion of the rural population in a State to the total rural poor in the country or such other criteria as may be determined by the Government of India from time to time.
Allocation of funds under the First Stream from Districts to Zila Parishads and Panchayat Samitis.
6. 40% of the funds earmarked under the First stream will be reserved at the district level and would be utilized by the Zila Parishads in the areas affected by endemic labour exodus and in areas of distress, as per the Annual Action Plan approved by the Zila Parishad. In selecting the works to be taken up, preference would be attached to areas which are calamity-prone and susceptible to substantial migration of labour.
7. 60% of the funds earmarked under the First stream would be allocated to the Panchayat Samitis ( Intermediate Panchayats), 50% on the basis of the proportion of SC/ST and 50% on the basis of the proportion of the total rural population in the respective Panchayat samitis in the districts. The worked would be taken up as per the Annual Action Plans approved by the Panchayat Samitis, with preference being accorded to the areas which are calamity-Prone and / or face labour migration.
8. Under the first Stream, 22.5% of the funds will be earmarked for individual beneficiaries schemes for SC/STs for providing economic and social assets, and for developmental works on individual lands of BPL SC and ST families.
Allocation of funds and food grains under the Second Stream- from district to Gram Panchayats
9. Out of the total funds earmarked under the SGRY, 50% of the funds thus allocated to the districts under the Second stream, (Rs.1875 crores) would be released to the Gram Panchayats directly by the DRDA/ Zila Parishad.
10. While, during the current year (2001-02), the allocation and release of funds will continue as per the existing criteria for the JGSY, from the next financial year (2002-03) onwards, the allocation of funds would be made in a manner that each panchayat receives a minimum of Rs. 50,000/-. The present allocation for the year 2001-2002 to the State Governments and Union Territory Administrations is proposed to be treated as base for making allocation for each State/Ut each year in the future.
11. The Gram Panchayats will prepare their own Annual Action Plans for the approval of the Gram Sabhas; 50% of the funds earmarked for the Gram Panchayats would be kept for taking up of infrastructure development works in SC/ST localities.
Payment of wages under the scheme.
12. Under the scheme , 5kg of food grains (in kind) will be made available per manday. Should a State Govt. wish to give more than 5 k.g. of food grains per manday, it may do so within the existing State allocation. The state Govt. and U T Administrations will be free to calculate the cost of food grains paid as part of wages, at either BPL rates, or APL rates, or anywhere between the two rates. The workers will be paid the balance of wages in cash, such that they are assured of the notified Minimum Wages.
Annual Action Plan (AAP).
13. The Annual Action Plan (AAP) will independently be prepared every year at all the Panchayati Raj Institution levels. The responsibility for the preparation of the Annual Action Plan will be that of Zila Panchayat for the works to be taken at the district level. While Panchayat Samitis will be responsible for preparation and approval of their plans, in respect of the works to be taken up at Samitis level, the Gram Panchayat will be responsible for preparation of their own plans, which are to be approved by the Gram Sabha. The Gram Panchayat can take up any work with the approval with the respective gram sabhas. No financial limit has been proposed as several states have already delegated power to the gram panchayats and it would be left to the state Govt. to prescribed the same in the light of the prevailing delegation of power. The works will need to be approved and incorporated in the annual action plan, as approved by the gram sabha.
Monitoring and Evaluation :
14 Responsibility and accountability of the implementation of the programme will be of the states, UT's Govt. The programme will be regularly monitored by the Deptt. of Rural Development in accordance with the existing in - built Mechanisms through periodical reports, vigilance and monitoring committee and visits by the Officers of the State Govt. and by area officer of the Ministry of Rural Deptt. The programmes will also be evaluated through reputed institutions/independent institutions /Organizations which studies may be initiated by the Central & State Govt's.
Works to be taken up under the SGRY and their execution
15 The works to be taken up will be labour intensive, leading to the creation of additional wage-employment, durable assets and infrastructure, particularly those which would assist in drought proofing such as soil and moisture conservation works, watershed development, promoting of traditional water resources, afforestation and construction of village infrastructure and link roads, primary school buildings, dispensaries, veterinary hospitals, marketing infrastructure and Panchayat Ghars.
Works Prohibited under the Scheme
16. i. Buildings for religious purposes and the like.
ii Monuments, Memorials, Statues, Idols, Arch Gates/Welcome Gates and the like.
iii Big Buildings and big Bridges.
iv Government Office buildings and Componds walls.
v. Buildings for Higher Secondary Schools and Colleges.
There are a large number of households(below the poverty line and above it) in the rural areas,who could not be covered under India Awass Yojana,as either they do not fall within the range of eligibility or due to the limits imposed by the available budget.On the other hand ,due to limited re-payment capacity ,these rural housing finance institutions.The needs of this large majority can be met through a scheme which is part-credit and part-subsidy based.The introduction of a part-credit, part-subsidy based scheme will be an important step in the direction of redefining the role of the Government from that of a 'provider' to a 'facilitator' as envisaged in the national housing and Habitual Policy 1998.
The target group under the credit-cum-subsidy Scheme will be rural households having an annual income of upto Rs. 32000/-only .However ,Below Poverty Line Rural Households shall be given preference .At least a minimum of 60% of the funds allocated under this scheme as subsidy to each State shall be utilised in financing the construction of houses for the Scheduled Castes Scheduled Tribes and freed bonded labours.
The state may independently decide whether it decide desires to implement this Scheme throughout the state or within a few districts/blocks.The target areas that can be taken up under the Credit-cum-Subsidy Scheme should be solely the rural areas and at least 20 Kms away from the metropolitan and large towns and 5Kms away from the small and medium towns.
Identification of beneficiaries under the credit-cum-subsidy Scheme and the modus operandi to be adopted is the sole prerogative of the State.
The implementing Agency for the credit cum-subsidy Scheme for Rural Housing may be the State Housing Corporation ,specified scheduled Commercial Bank,Housing Finance Institution or the DRDAs/ZPs .The identification of the most appropriate implementing agency under the credit-cum-Subsidy Scheme shall be left to the State Government.
The subsidy element of the Credit-cum-Subsidy Scheme will be shared on 75:25 basis between the Centre and the States. The criteria of allocation of funds under the credit -cum-subsidy Scheme to the States shall be both poverty ratio as determined by the Planning Commission and the housing shortage.The proportion of the two variable shall be 50:50.The allocation of funds within the State can be decided by the respective State Government.It shall be the sole prerogative of the State Government to specify inter-district targets,once the State target has been communicated by the Ministry of Rural Development.
Ceiling of subsidy that can be given under this scheme is Rs. 10000/- per household. The upper limit of construction loan admissible under this scheme will be Rs. 40000/ -per household. The State Government is free to identify the agency from whom the loan will be sourced and distributed. This may be from either a Scheduled Commercial bank,Housing Finance Institution of State Government directly.
Overall monitoring of this scheme will be the responsibility of the Ministry of Rural Development.The following reports and returns should be submitted by the State Government under the scheme to the Ministry.
Central Assistance to the tune of 75% under the credit-cum-subsidy scheme shall be remitted to the State Government directly in case the state identifies the State Housing Board,state Rural Housing Corporation or a specified scheduled commercial bank as its implementing agency. In case the State wishes to implement this scheme through it DRDAs/ZPs,the funds be disbursed directly to the DRDAs identified by the State under intimation to the state. Matching grant the state Government of 25% should be contributed within 15 days of the receipt of the central allocation.
The Central allocation of the State shall be released in two installments.However, the release of second installments shall be contingent on the submission of the following as specified in proforma-111:
swaranjayanti Gram Swarojgar Yojana(SGSY) will be a holistic programme covering all aspects of self-employment,viz,oganisation of the rural poor into self-help groups and their capacity building,planning of activity clusters infrastructure build up technology,credit and marking.
Each District will draw up a comprehensive plan of the resource and the strategies for poverty eradication .This would involve identifying 4 to 5 activity clusters in each block based on there sources but also on the occupational skills of the people. The existing infrastructure for the clusters of activities will be reviewed and gaps will be identified.
Each district will prepare project reports in respect of different activities to be taken up regarding the time and cost frams as well as the responsibility of different organisation. The banks and other financial institutions will be closely associated and involved in preparing these project reports so as to avoid delays in sanctioning of loans and to ensure adequacy of financing.
SGSY will focus on the Group approach.This would involve organisation of the poor and their capacity building.The formation of Self-help groups under DWCRA yields good results.Elsewhere too,the group approach was found to be very effective .The objective is to extend this approach to SGSY. Under SGSY,self-Help Groups(SHGs) will be formed and steps will be taken to nurture these groups to enable them to function effectively as well as to choose their economic activity. Efforts would be made to involve women members in each SHG.Besides,exclusive women groups will be continue to be formed as is currently being done under DWCRA.At the level of the Block,at least half of the groups will be exclusively women groups.
Suitable entry points such as thrift & credit will be identified at the local level for the Self-Help groups. SHGs will have to satisfy certain minimum norms before they can be considered for accessing credit. Revolving fund that is currently being given as one-time grant will be supplemented by expenditure to be incurred on the groups for capacity building.
Group activity will be given preference and progressively,majority of the funding will be for SHGs.Likewise,the major share of SGSY assistance will be in activity clusters. However ,a certain percentage (about 25%)may need to be made available for assistance to other activities,so as to give a certain flexibility.
The Gram Sabha will authenticate the list of families below the poverty line identified in the BPL census.Since group formation will involve voluntary action on the part of the members there cannot be any selection. In case of individual beneficiaries, their selection will be made in the Gram Sabha. A suitable design will be evolved in consultation with the banks to ensure a better selection of individual beneficiaries and their capacity building so as to prepare them to receive and manage credit.
SGSY will seek to lay emphasis on skill development through well-designed coures. The duration of training and the training curriculum will be designed in accordance with the needs of the identified activities as well as the needs of the groups/individuals.Training will take place only after the group has made a decision to take up a particular economic activity in consolation with the financing bank. Training will precede extension of credit so as to ensure efficiency of loan utilisation. Training or skill development would be imparted through recoginised training institutes, masters craftsman etc. Suitable provision for incurring expenditure on training will be made in the programme,DRDAs will be allowed to set apart upto 10% of the allocation on training.This would be maintained as SGSY-Training Fund and will also be used for setting up appropriate training facilities for the identified activities ,where none exist.
SGSY will seek to develop close linkage with the credit mechanism in such a manner as would promote multiple rather than a one-time credit injection' The credit requirements of the beneficiaries will be assessed and only that amount of credit as can be comfortably handled by the beneficiaries will be given.However credit will not be a one-time activity.The beneficiaries will be allowed and,in fact,Sencouraged to increase their credit intake over the years.This would involve
The subsidy admissible to the general individual beneficiaries under the integrated programme will be uniform irrespective of category or area at 30% (50% for SC/ST) of the project cost subject to a ceiling of Rs. 1.25 lakh will continue.Consequent to the merger of GKY community minor irrigation project as applicable earlier.There shall be no limit on the investment.
SGSY will seek to ensure that the infrastructure needs for the identified activities are met in full ,so as to enable the rural poor to derive the maximum advantage from their investments.The States will strive to provide for necessary investments will be made under SGSY subject to a ceiling of 20%(25% in the case of North Eastern States) of the total programmes allocation for each district.This amount will be maintained by the DRDAs as SGSY-Infrastructure Fund' and which can also be utilised to generate additional funding from other sources.Planning for infrastructure will be made in close concert with the banks,infrastructure needs and their fulfillment will be constantly and closely monitored.
SGSY will ensure upgradation of the technology in the identified activity clusters. The technology intervention will seek to add value to the local resources,including processing of the locally available material from natural and other resources for local and non-local market. For this purpose,existing institutional structures will be strengthened. Transmission of technology and necessary training to the rural poor will be carefully planned and ensured.Suitable institution will be identified in each district to cater to the requirements of the technology upgradation and dissemination. SGSY will also suitable link up with the banks.Infrastructure needs and their fulfillment will be constantly and closely monitored.
SGSY will ensure upgradation of the technology in the identified activity clusters.The technology intervention will seek to add value to the local resources including processing of the locally available material from natural and other resources for local and non-local market.For this purpose,existing institutional structures will be strengthen.Transmission of technology and necessary training to the rural poor will be carefully planned and ensured. Suitable institutions will be identified in each district to cater to the requirements of the technology upgradation and dissemination. SGSYU will also suitable link up with IRE Pof MNES.IREDA.REC etc. to provide for planning for rural resources and making available cheaper alternative sources of energy to the rural poor.
SGSY will provide for promotion of marketing of the goods produced by the SGSY beneficiaries. This would involve providing of market intelligence,development of markets,consultancy services,as well as institutional arrangements for marketing of the goods produced by the rural poor.This would also serve as a venue for buyer-seller meet. Suitable initiatives will be taken up for permanent exhibition-cum-sale points. Necessary linkage will be established with the different commodity boards.
Credit is a component in SGSY,subsidy being only a minor and enabling component. The success of any such self-employment programme depends considerable on the confidence with which banks and other financial institutions lend to the rural poor. It is therefore necessary that these agencies are fully involved and closely associated with the entire gamut of activities. It is proposed to involve the banks and other financial institution closely in the planning and preparation of projects,identifications of activity clusters,infrastructure planning as well as capacity building and choice of activity of the SHGs.Mechanisms will be put in place for closer association of banks in the selection of beneficiaries,per-credit activity as well as post-credit monitoring including loan recovery.
The objective under SGSY will be to bring every assisted poor family above the poverty line in a period of three years.
Subject to availability of funds SGSY will broadly seek to cover 30% of the rural poor families over the next 5 years in each district.
SGSY will seek to cover the rural artisans in a signification manner,enabling them to utilise the inherent skill to overcome poverty. Identification of activity clusters them to take into account the presence of the rural artisans among the BPL families. Improved toolkits to rural artisans will be financed from within SGSY in consonance improved toolkits but also to purchase raw materials and meet their working capital needs.
SGSY will be implemented by the DRDAs .The process of planning ,implementation and monitoring would integrate institutions in the district. DRDAs will be suitably revamped and strengthen.
SGSY will focus on improving the capacity of the delivery mechanism in such a manner as to effectively serve the poor. Emphasis will be laid on training of personal.
Funding for SGSY between the Centre and the States will be in the ratio of 75.25(It is necessary to have a uniform pattern of funding for all poverty alleviation schemes so as to ensure that any given programme does not suffer for lack of interest by the States on this account)
The funds of Government of India will be distributed as per poverty levels as per the present practice.However additional parameters such as absorption capacity,special requirements etc. will also be taken into consideration. (a) closer association of the banks and other financial institutions with the selection of the beneficiaries of projects:(b) a mechanism for post-credit monitoring,particularly in the case of individual beneficiaries:and (c) a responsibility on the part of the SHGs to repay the loan on time:
The subsidy admissible to the general individual beneficiaries under the integrated programme will be uniform irrespective of category or area at 30% (50% for SC/ST) of the project cost subject to a ceiling of Rs. 7,5000/-(10,000 for SC/ST).For Group beneficiaries, the existing pattern of subsidy at 50% of the cost of the scheme ,subject to a ceiling of Rs. 1.25 lakh,will continue.Consequent to the merger of GKY into SGSY,there will be no absolute monetary ceiling for the individual and community minor irrigation project as applicable earlier.There shall be no limit on the investment levels.
SGSY will ensure upgradation of the technology in the identified activity clusters. The technology intervention will seek to add value to the local resources,including processing of the locally available material from natural and other resources for local and no-local market. For this purpose,existing institutional structures will be strengthen. Transmission of technology and necessary Training to the rural poor will be carefully planned and ensured.Suitable institution will be identified in each district to cater to the requirements of the technology upgradation and dissemination.SGSY will also suitable link up with IREP of MNES/IREDA.REC etc. to provide.