red sea and gulf of aden strategic ecosystem management ...€¦ · web viewthe red sea and gulf...

Document ofThe World Bank

FOR OFFICIAL USE ONLY

Report No.: RES23514

RESTRUCTURING PAPER

ON A

PROPOSED PROJECT RESTRUCTURINGOF THE

RED SEA AND GULF OF ADEN STRATEGIC ECOSYSTEM MANAGEMENT PROJECT (TF014701)

AUGUST 29, 2013

TO THE

REGIONAL ORGANIZATION FOR THE CONSERVATION OF THE ENVIRONMENT OF THE RED SEA AND GULF OF ADEN (PERSGA)

May 22, 2023

Environment and Natural Resources Global PracticeMiddle East and North Africa Region

This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

ABBREVIATIONS AND ACRONYMS

GEF Global Environment FacilityGEO Global Environment ObjectiveISR Implementation Status and Results ReportM&E Monitoring and EvaluationMMA Marine Managed Area MNA/MENA Middle East and North Africa RegionMPA Marine Protected AreaMS Moderately SatisfactoryMTR Mid-Term ReviewMU Moderately UnsatisfactoryPAD Project Appraisal DocumentPDO Project Development ObjectivePERSGA Regional Organization for the Conservation of the Environment of the Red Sea

and Gulf of AdenRSGA Red Sea and Gulf of AdenWB World Bank

Regional Vice President: Hafez GhanemRegional Programs and Partnerships Director:

Acting Senior Global Practice Director:Franck Bousquet Julia Bucknall

Practice Manager: Benoit Paul BlarelTask Team Leader: Africa Eshogba Olojoba

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MIDDLE EAST AND NORTH AFRICA REGIONRed Sea and Gulf of Aden Strategic Ecosystem Management Project

CONTENTS

A Summary of Proposed Changes.........................................................................................2B. Project Status.................................................................................................................3C. Proposed Changes...........................................................................................................4

Annex 1: Revised Results Framework 12

ii

.

DATA SHEETWorld

Red Sea and Gulf of Aden Strategic Ecosystem Management GEF Project (P113794)

Environment & Natural Resources.

Report No: RES23514.

Basic Information

Project ID: P113794 Lending Instrument: Investment Project Financing

Regional Vice President: Hafez M. H. Ghanem Original EA Category: Partial Assessment (B)Regional Programs and Partnerships Director: Franck Bousquet Current EA Category: Partial Assessment (B)

Senior Global Practice Director: Julia Bucknall (Acting) Original Approval Date: 29-Aug-2013

Practice Manager/Manager: Benoit Paul Blarel Current Closing Date: 31-Jan-2018

Team Leader(s): Africa Eshogba Olojoba.

Borrower: Regional Organization for the Conservation of the Environment of the Red Sea and Gulf of Aden (PERSGA)

Responsible Agency:

Regional Organization for the Conservation of the Environment of the Red Sea and Gulf of Aden (PERSGA)

.

Restructuring TypeForm Type: Full Restructuring Paper Decision Authority: Board of Executive Directors

Restructuring Level: Level 1.

Financing ( as of 12-August-2016 )Key Dates

Project Ln/Cr/TF Status Approval Date Signing Date Effectiveness

DateOriginal Closing Date

Revised Closing Date

P113794 TF-14701 Effective 29-Aug-2013 04-Nov-2013 04-Nov-2013 31-Jan-2018 31-Jan-2018

Disbursements (in Millions)

Project Ln/Cr/TF Status Currency Original Revised Cancelled

Disbursed

Undisbursed

% Disbursed

P113794 TF-14701 Effective USD 3.00 3.00 0.00 1.21 1.79 40.

1

Policy WaiversDoes the project depart from the CAS/CPF in content or in other significant respects? Yes [ ] No [ X ]

Does the project require any policy waiver(s)? Yes [ ] No [ X ].

A. Summary of Proposed ChangesThis Restructuring Paper seeks the approval of the Executive Directors to revise the Global Environment Objective (GEO) to align it with intended outcomes of the project, revise associated results indicators, and revise disbursement estimates to account for implementation delays.

The proposed changes are based on a request from the Regional Organization for the Conservation of the Environment of the Red Sea and Gulf of Aden (PERSGA), and reflect the results of the March 2016 Mid-Term Review (MTR) and agreements reached between the Bank and the project counterparts over the last few months.

Change in Implementing Agency Yes [ ] No [ X]

Change in Project's Global Environmental Objectives Yes [ X ] No [ ]

Change in Results Framework Yes [ X ] No [ ]

Change in Safeguard Policies Triggered Yes [ ] No [ X ]

Change of EA category Yes [ ] No [ X ]

Other Changes to Safeguards Yes [ ] No [ X ]

Change in Legal Covenants Yes [ ] No [ X ]

Change in Loan Closing Date(s) Yes [ ] No [ X ]

Cancellations Proposed Yes [ ] No [ X ]

Change to Financing Plan Yes [ ] No [ X ]

Change in Disbursement Arrangements Yes [ ] No [ X ]

Reallocation between Disbursement Categories Yes [ ] No [ X ]

Change in Disbursement Estimates Yes [ X ] No [ ]

Change to Components and Cost Yes [ ] No [ X ]

Change in Institutional Arrangements Yes [ ] No [ X ]

Change in Financial Management Yes [ ] No [ X ]

Change in Procurement Yes [ ] No [ X ]

Change in Implementation Schedule Yes [ ] No [ X ]

Other Change(s) Yes [ ] No [ X ]

Appraisal Summary Change in Economic and Financial Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Technical Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Social Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Environmental Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Risk Assessment Yes [ ] No [ X ]

2

.

B. Project Status1. The Red Sea and Gulf of Aden Strategic Ecosystem Management Project is funded by the Global Environment Facility (GEF) grant, which was approved by the Board of Executive Directors on August 29, 2013 and became effective on November 4, 2013. The GEO is to improve management of marine resources in the Red Sea and Gulf of Aden in selected Marine Protected Areas (MPAs) building on resource protection and incentive systems for communities and the harmonization of the knowledge base of marine resources among PERSGA member countries. The project primarily supports implementation of the following: (i) Component 1 entails strengthening of marine management concept in selected MPAs to pilot zonation and multiple use approach in a participatory and community-based manner consistent with local communities' needs and benefits; (ii) Component 2 is aimed at strengthening coastal communities' capacity to identify, develop, and implement sub-projects; and (iii) Component 3 will strengthen the Regional Environmental and Socioeconomic Monitoring Network of PERSGA member countries to support ecosystem and community based benefits management. The project’s progress towards achieving the GEO and overall implementation progress are rated Moderately Unsatisfactory (MU) in the last Implementation Status and Results report (ISR) dated May 2016. Project disbursements remain low, although there has been an increase to 40% from 18% in November 2015. The client is in full compliance with legal covenants, as well as fiduciary and safeguards; and the revised disbursement schedule is supported by the current implementation schedule and procurement plan.

2. During March 20-24, 2016, the World Bank and PERSGA officials carried out a Mid-Term Review of the project in Cairo, Egypt. The MTR confirmed that the project design remains relevant with respect to the priorities, policies and current sector strategies of participating countries. It also confirmed its alignment with the respective Country Partnership Strategies/Frameworks of the individual PERSGA countries. The MTR also confirmed that the project will provide several global benefits, such as positive transboundary management effects of Marine Managed Areas (MMAs), marine resource protection, and the protection of fish stocks from illegal supranational fishing. To date, the project achievements include the following: contributing to identifying gaps in national marine and coastal legislation, policies, and management practices at the regional and national levels; communication and creating awareness on the challenges and potentials of marine resources; and capacity building initiatives for local fishermen. Furthermore, project activities have strongly contributed to: (i) sharing knowledge on a number of topics and themes such as MPA planning, regulatory frameworks; sustainable livelihoods development and marine/coastal monitoring guidelines; and (ii) improving relationships between resource managers and scientists at the regional level in order to better address specific marine resource management related issues. In addition, specialists from member states that attended regional training workshops organized by the project, now serve as resource persons to carry out capacity building initiatives at the national level. Despite these achievements, it was discerned at the MTR that many of the indicators, including that of the GEO, will not be attainable, underscoring the urgent need to revise the Result Framework.

3. The project activities target the following MPAs: (a) Dungonab Bay – Mukkuwar Island Marine National Park (Sudan), (b) Wadi El Jemel-Hamata Marine National Park (Egypt), (c) Aqaba Marine Park (Jordan); and (d) Mosai and Maskali Islands Marine Protected Area (Djibouti). Out of these, Wadi El Jemel-Hamata Marine National Park and Aqaba Marine Park have existing management plans, and the project is supporting their implementation. The other two MPAs have no management plans. The project is assisting in preparing the plans and would support their implementation.

4. The project’s implementation delays could be attributed to: (i) lack of Egypt’s involvement in the project until October 2015; (ii) project activities in Yemen halted after September 2014 due to the ongoing conflict; and (iii) delays in commencement of the community sustainable livelihood sub-projects. Project disbursements are expected to increase due to the fact that some livelihood sub-projects have started in

3

Sudan and Egypt. Progress will be reviewed during the next implementation support mission in October 2016 and documented in the next ISR. It is expected that there would be substantial progress in the preparation and implementation of the management plans in the selected MPAs (Component 1) and the full commencement of the livelihood sub-projects in the selected pilot sites in Sudan and Egypt. As a result, 60% of the grant is expected to be disbursed by December 2016. The project funds are expected to be fully disbursed by the closing date of January 31, 2018.

5. Monitoring and Evaluation (M&E) was downgraded to MU due to deficiencies in the M&E and Results Framework explained above. At the MTR, the Bank and the client agreed on the need to better articulate and clarify the GEO along with its indicators and the intermediate indicators, given that a significant number of the indicators are not measurable or attainable. During the mission, a discussion was also held on the reformulation of the GEO and revisions to the results framework to better align them with the actual and planned implementation..

C. Proposed Changes.

Development Objectives/ResultsProject Global Environmental Objectives

Original GEOTo improve management of marine resources in the Red Sea and Gulf of Aden in selected MPAs building on resource protection and incentive systems for communities and the harmonization of the knowledge base on marine resources among PERSGA member countries.

Change in Project's Global Environmental Objectives

Explanation

The original GEO formulation includes both means (resource protection, incentive systems) and ends (improve management of marine resources, harmonization of knowledge base). Furthermore, it does not specify target beneficiaries for the improved management. The GEO has been revised for clarity and to focus on outcomes for which the project can be reasonably held accountable.

Proposed New GEOTo improve management of selected marine protected areas by local communities and strengthen information sharing between PERSGA member countries.

Change in Results Framework

Explanation:There are a few discrepancies in the Results Framework included in Annex 3 of the Project Appraisal Document (PAD) and also within the PAD in the section on arrangements for results monitoring and intermediate results indicators (see pages 11 and 12). The Results Framework has been streamlined to adequately reflect the project outcomes and align it with the GEO. The changes to the results framework (GEO-level and Intermediate Results Indicators) are summarized below and the revised Results Framework is presented in Annex 1..

Original Indicator Revision ExplanationGEOTo improve management of marine resources in the Red Sea and Gulf

Revised: ‘To improve management of selected marine protected areas

The GEO has been revised for clarity and to focus on

4

of Aden in selected MPAs building on resource protection and incentive systems for communities and the harmonization of the knowledge base on marine resources among PERSGA member countries.

by local communities and strengthen information sharing between PERSGA member countries.’

outcomes for which the project can reasonably be held accountable.

GEO IndicatorsMarine areas brought under biodiversity protection (ha)

Dropped This indicator has been dropped because the project does not focus on biodiversity per se and none of the activities aim to protect biodiversity.

Direct project beneficiaries (number), of which female (%)

Revised – end target End target has been revised downward as original target was too ambitious.

Number of alternative livelihood projects realized by communities (Number)

Revised and moved to intermediate level: ‘Alternative livelihood projects completed by communities’

The indicator has been revised for clarity.

Availability of harmonized parameters and database for PERSGA member countries (Yes/No)

Revised: ‘Agreed upon common Red Sea monitoring variables of water quality, fisheries and coral reef habitats accessible for PERSGA member countries on a regional database’

The indicator has been revised for clarity and to focus on strengthened information sharing through access to data on common variables for all participating countries.

Female beneficiaries (percentage) Dropped This indicator is already included in the results framework as a sub-indicator to core indicator on direct project beneficiaries.

New: ‘Area in selected marine protected areas under improved management’

The indicator has been added to capture the revised GEO in relation to improved management of selected MPAs. Improved management is based on mesh size and restriction of access to fishing grounds during spawning season.

Intermediate IndicatorsParticipants in consultation activities during project implementation (number)

Revised – end target End target has been revised upward to reflect achievements to date.

Participants in consultation Revised – end target End target has been revised

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activities during project implementation - female

upward to reflect achievements to date.

Number of MPA plans updated with community input and with assigned rights for user groups (Number)

No change

Number of stakeholders trained and participating in developing/updating MPA master plans with a rights based approach (number)

Dropped The indicator has been dropped as it is deemed redundant: outcomes on training and participation are captured by other indicators.

Rights based management system established in two pilot MPA sites for community user groups (Yes/No)

Dropped The indicator has been dropped as it is unclear in relation to rights based management system.

Number of institutional MPA staff trained to work with local communities and in rights based approach (Number)

Dropped The indicator has been dropped as it is deemed redundant: outcomes on training are captured by other indicators.

Number of participants from five PERSGA member countries in regional meetings/exchanges for MPA counterparts on community-based MMA management (Number)

Dropped The indicator has been dropped since it is activity- and output-focused.

Availability of documentation of lessons learned from regional meetings/exchanges for MPA counterparts (number, types, and dissemination sites)(Number)

Dropped The indicator has been dropped because it does not assess improved knowledge sharing.

Percentage of community members involved in MPA plan and updating and management who are women (Percentage)

Dropped The indicator has been dropped as it is deemed redundant: female participation in consultations is captured by another indicator.

Percentage of fishermen involved in fisheries monitoring, control and surveillance activities (Percentage)

Dropped The indicator has been dropped since fishermen will not be involved in monitoring, control and surveillance activities.

Spawning sites for grouper (i.e. nagil (Plectropomus sp.), snapper (Lutjanis spp.) and other commercially relevant species under protection with community compliance (Yes/No)

Dropped This indicator has been dropped and replaced by a more precise indicator related to fishermen observing closed season.

6

Percentage variance in groupers (Percentage)

Dropped This indicator has been dropped as it is unclear as regards the link to the revised GEO and the definition of variance.

Percentage variance in corals (Percentage)

Dropped This indicator has been dropped as it is unclear as regards the link to the revised GEO and the definition of variance.

Percentage female beneficiaries of alternative livelihood projects (Percentage)

Dropped This indicator has been dropped because its link to the revised GEO is weak.

Number of PERSGA member Project report; country staff trained in common monitoring parameters and methods

Dropped The indicator has been dropped as it is deemed redundant: outcomes on training are captured by other indicators.

Number of member country routinely employing the monitoring methods developed by PERSGA

Dropped This indicator has been dropped because routine employment of monitoring methods will be captured by other indicators.

Number of regional exchanges on data collection and findings from new parameters

Dropped This indicator has been dropped because it is unclear with regards to new parameters and because regional exchanges are captured by other indicators.

Reporting on GEF IW indicators and participation in workshops

No change

Functionality of project management including FM, procurement and environmental and social impact monitoring

Dropped This is a project management indicator which does not belong in the Results Framework.

New: ‘Protected Areas with updated management plans that brought coral reefs under regular monitoring and surveillance with community participation.’ (Number)

This indicator has been added to capture improved management in ecologically sensitive coral reefs.

New: ‘Fishermen in selected marine protected areas using mesh size as per management plan’ (Number)

This indicator has been added to reflect improved management of marine protected areas in terms of behavior change.

New: “Fishermen observing closed season for major species as per management plan’

This indicator has been added to reflect improved management of marine

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(Number) protected areas in terms of behavior change.

New: ‘PERSGA member country staff trained on methods of monitoring agreed upon common variables’ (Number)

This indicator has been added to better capture regional activities in terms of monitoring common variables.

New: ‘PERSGA member countries that use common monitoring methods developed by PERSGA’ (Number)


New: ‘Regional exchanges on data collection and sharing of monitoring results of water quality, fisheries and coral reef habitats’ (Number)


FinancingDisbursement Estimates

Change in Disbursement Estimates

Explanation:The disbursement estimates are formally revised to reflect the current implementation pace. This will be reflected in the ISR after project restructuring is approved.

Fiscal Year Current (USD) Proposed (USD)

2014 450,000.00 300,000.00

2015 1,070,000.00 243,105.99

2016 1,190,000.00 474,095.23

2017 290,000.00 1,382,798.78

2018 0.00 600,000.00

Total 3,000,000.00 3,000,000.00

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Annex 1: Revised Results Framework

RED SEA AND GULF OF ADEN STRATEGIC ECOSYSTEM MANAGEMENT PROJECT

Project Name:

Red Sea and Gulf of Aden Strategic Ecosystem Management GEF Project

Project Stage: Restructuring Status: Final

Team Leader: Africa Eshogba Olojoba Requesting

Unit: MNARS Created by: Marie A.F. How Yew Kin on 03-May-2016

Product Line: IBRD/IDA Responsible

Unit: GEN05 Modified by: Phylicia Mortey on 23-Jun-2016

Country: World Approval FY: 2016

Region: Middle East & North Africa Lending Instrument: Investment Project Financing

.

Project Development ObjectivesOriginal Project Development Objective:The objective of the Project is to improve management of marine resources in the Red Sea and Gulf of Aden in selected MPAs building on resource protection and incentive systems for communities and the harmonization of the knowledge base on marine resources among PERSGA member countries.

Proposed Project Development Objective (from Restructuring Paper):To improve management of selected marine protected areas by local communities and strengthen information sharing between PERSGA member countries.

ResultsCore sector indicators are considered: Yes Results reporting level: Project Level.

Project Development Objective IndicatorsStatus Indicator Name Core Unit of Measure Baseline Actual(Current) End Target

New Area in selected marine protected areas under

Hectare(Ha) Value 0.00 0.00 40,000

Date 29-Aug-2013 18-August-2016 31-Jan-2018

9

improved management Comment This is a new indicator, added to capture the revised GEO with regards to improved management of selected MPAs.

Marked for deletion

Marine areas brought under biodiversity protection (ha)

Hectare(Ha) Value 0.00 0.00 40000.00

Date 29-Aug-2013 18-August--2016 31-Jan-2018

Comment This indicator has been marked for deletion because the project does not focus on biodiversity per se and none of the activities aim to protect biodiversity.

Revised Agreed upon common Red Sea monitoring variables of water quality, fisheries and coral reef habitats accessible for PERSGA member countries on a regional database

Yes/No Value No No Yes


Comment The indicator has been revised for clarity and to focus on strengthened information sharing through access to data on common variables for all participating countries.

Revised Direct Project beneficiaries Number Value 0.00 1200.00 1500.00


Comment End target has been revised downward as original target was too ambitious.

New Sub-indicator Female Percentage Value 0.00 15.00 30.00


Comment This is a sub-indicator of a core indicator “Direct Project Beneficiaries (number).”

Intermediate Results Indicators

Status Indicator Name Core Unit of Measure Baseline Actual(Current) End Target

Revised Alternative livelihood projects completed by communities

Number Value 0.00 0.00 4.00


Comment The indicator has been revised for clarity and moved from PDO level.

Revised Participants in consultation activities during project implementation (number)

Number Value 0.00 545.00 545.00


Comment End target has been revised upward to reflect achievements

10

Zhanar Abdildina, 08/15/16,

to date.

Revised Participants in consultation activities during project implementation - female

Number Value 0.00 165.00 165.00


Comment End target has been revised upward to reflect achievements to date.

No change Number of MPA plans updated with community input and with assigned rights for user groups



Comment

New Protected Areas with updated management plans that brought coral reefs under regular monitoring and surveillance with community participation



Comment This indicator has been added to capture improved management in ecologically sensitive coral reefs.

New Fishermen in selected marine protected areas using mesh size as per management plan

Number Value 0.00 0.00 300.00


Comment This indicator has been added to reflect improved management of marine protected areas in terms of behavior change.

New Fishermen observing closed season for major species as per management plan

Number Value 0.00 0.00 200.00


Comment This indicator has been added to reflect improved management of marine protected areas in terms of behavior change.

Marked for deletion

Percentage of female beneficiaries of alternative livelihood projects

Percentage Value 0.00 15.00 30.00


Comment The link to revised GEO and the definition of variance is unclear, therefore it has been marked for deletion.

Marked for deletion

Number of PERSGA member Project report; country staff trained in common monitoring parameters and methods

Number Value 0.00 50.00 40.00


Comment The indicator has been marked for deletion as it is deemed

11

redundant: outcomes on training are captured by other indicators.

Marked for deletion

Number of member country routinely employing the monitoring methods developed by PERSGA



Comment This indicator has been marked for deletion because routine employment of monitoring methods will be captured by other indicators.

Marked for deletion

Number of regional exchanges on data collection and findings from new parameters


Date 29-Aug-2013 18-August-2016 31-Jul-2018

Comment This indicator has been marked for deletion because it is unclear with regards to new parameters and because regional exchanges are captured by other indicators.

New PERSGA member country staff trained on methods of monitoring agreed upon common variables

Number Value 0.00 0.00 40.00


Comment This indicator has been added to better capture regional activities in terms of monitoring common variables.

New PERSGA member countries that use common monitoring methods developed by PERSGA




New Regional exchanges on data collection and sharing of monitoring results of water quality, fisheries and coral reef habitats





Comment

No change Reporting on GEF IW indicators and participation in workshops

Yes/No Value No Yes Yes


Comment

12

Marked for deletion

Number of stakeholders trained and participating in developing/updating MPA master plans with a rights based approach (number)

Number Value 0.00 150.00 100.00


Comment The indicator has been marked for deletion as it is deemed redundant: outcomes on training and participation are captured by other indicators.

Marked for deletion

Rights based management system established in two pilot MPA sites for community user groups (Yes/No)

Yes/No Value No No Yes


Comment The indicator has been marked for deletion as it is unclear in relation to rights based management system.

Marked for deletion

Number of institutional MPA staff trained to work with local communities and in rights based approach (Number)

Number Value 0.00 8.00 10.00


Comment The indicator has been marked for deletion since it is deemed redundant: outcomes on training and captured by other indicators.

Marked for deletion

Number of participants from five PERSGA member countries in regional meetings/exchanges for MPA counterparts on community-based MMA management (Number)

Number Value 0.00 33.00 45.00


Comment The indicator has been marked for deletion since it is activity- and output-focused.

Marked for deletion

Availability of documentation of lessons learned from regional meetings/exchanges for MPA counterparts (number, types, and dissemination sites) (Number)

Yes/No Value No Yes Yes


Comment The indicator has been marked for deletion because it does not assess improved knowledge sharing.

Marked for deletion

Percentage of community members involved in MPA plan and updating and management who are women (Percentage)



Comment The indicator has been marked for deletion as it deemed redundant: female participation in consultations is captured by another indicator.

Marked for deletion

Percentage of fishermen involved in fisheries monitoring, control



13

and surveillance activities (Percentage)

Comment The indicator has been marked for deletion since fishermen will not be involved in monitoring, control and surveillance activities.

Marked for deletion

Spawning sites for grouper (i.e. nagil (Plectropomus sp.), snapper (Lutjanis spp.) and other commercially relevant species under protection with community compliance (Yes/No)

Yes/No) Value No No Yes


Comment This indicator has been marked for deletion and replaced by a more precise indicator related to fishermen observing closed season.

Marked for deletion

Percentage variance in groupers (Percentage)



Comment This indicator has been marked for deletion as it is unclear as regards the link to the revised GEO and the definition of variance.

Marked for deletion

Percentage variance in corals (Percentage)

Percentage Value 15.00


Comment This indicator has been marked for deletion as it is unclear as regards the link to the revised GEO and the definition of variance.

Marked for deletion

Functionality of project management including FM, procurement and environmental and social impact monitoring

Yes/No Value Yes Yes Yes


Comment This is a project management indicator which does not belong in the Results Framework.

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