ࡱ> ` ebjbj .%    III8IfJ $nKK"KKKwww$h8 S|w"wS|S|8KK+M+++S|2K K+S|++  KbK ATxI}c0ƃ, wx+Qyyvwww88̀^wwwS|S|S|S|   9E   E     VOLUNTARY SECTOR INVOLVEMENT IN PARTNERSHIP WORKING IN BROMLEY A MAPPING STUDY Melanie Nock For Bromley Voluntary Sector Reference Group February 2008 Voluntary sector involvement in partnership working in Bromley; a mapping study Introduction In September 2007, the Bromley Voluntary Sector Reference Group (VSRG) commissioned a mapping study of voluntary sector participation in local partnership working. The aim of the study was to document the extent of participation and the way in which it happens and then to assess the effectiveness of it. The study involved interviews with key members of each of the voluntary sector forums, senior members of Community Links Bromley (CLB) and representatives of other networks. A full list is at Appendix 1. The report describes - in words and diagrams how partnership working in Bromley is organised and how the voluntary sector participates. The second part of the report comments on the effectiveness of those processes and issues arising from them. The report concludes with a set of recommendations. This report may usefully be read alongside the 2007/8 Business plan for the ChangeUp Consortium. The VSRG also fulfils the role of consortium for ChangeUp purposes. This is another form of partnership working although it is not further described in this report. The Structures a) Health and Social Care and Community Safety Generally The diagram below shows the principle multi agency partnership working structures for health and social care issues and community safety from a statutory agency perspective in Bromley.  SHAPE \* MERGEFORMAT  The Voluntary Sector has its own structures to support its input into these partnership arrangements. The diagram below gives a broad overview. Partnership structures are shown shaded.  Voluntary Sector Reference Group This body coordinates the input of other representative/second tier groups within the borough. This includes the voluntary sector forums representing the different health and social care client groups, as well as groups representing minority ethnic communities in Bromley, geographically based community development and specific services across client groups including advocacy and carers interests. However, at present the Children and Families Forum has chosen not to be part of it. It has an independent chair, elected by its membership who also elect the voluntary sector representatives on the Health and Social Care Partnership Board. Over time, it has come to be accepted that one place should be taken by a representative of carers. Changes/additions to the VSRGs membership are determined by the VSRG itself. It includes representatives of groups who feed in directly to Safer Bromley (in recognition of Safer Bromleys status as directly accountable to the LSP) although it rarely has an opportunity to discuss Safer Bromley issues. It also includes the chair of Community Links Bromley who has a place as of right on the LSP (and who was chair of the HSCHPB during 2007 as part of a rotation). The Chief Officer of Community Links Bromley also has a place on the LSP and also attends the VSRG. Other non statutory members of the LSP such as the Chair of Broomleigh Tenants Association do not, however, attend the VSRG. Meetings provide an opportunity to discuss the sectors response to issues on the Health and Social Care Partnership Boards agenda; where time allows, to the LSP agenda; and to consider issues of concern to specific partnership boards or which are relevant to the sector more generally. Over the last year, the group has overseen the development of the Compact and has served as the ChangeUp consortium for Bromley. The Group is serviced by Community Links Bromley. b) Specific Health and Social Care Client Groups Each client group area has its own structures and arrangements for partnership working. These are now described individually. A summary table at Appendix two gives details of constitutions, membership, funding etc for each of the Forums. Mental Health  Within Mental Health, the Mental Health Forum is the primary focus of partnership working. It comprises individual users and carers, voluntary sector providers and some statutory providers and has a total membership of 68 with an average of 20 -30 people attending bi-monthly meetings. It is regularly used as a consultation mechanism by statutory bodies and undertakes its own campaigning an example is pursuing the issue of designated beds with Oxleas. The Chair represents the Forum at the VSRG. The Forum is represented by its Chair on the Mental Health Partnership Board which brings together Senior Executives from the PCT, Oxleas, LBB and the Voluntary Sector. There is one place for a service user/carer. The Chief Executive of Bromley Mind represents the Forum on the Mental Health Commissioning and Planning Group which reports to the Partnership Board and convenes the Mental Health Partnership Group, the local implementation team for the National Service Framework for Mental Health. This has broad representation from the Voluntary Sector, BME communities, the PCT and Oxleas. In a separate structure, the Forum is represented on the Develop Partnership, a social inclusion partnership driven by Oxleas which operates through a series of theme based sub groups and which involves a wide range of agencies with a stake in the different themes. Oxleas organises carers support meetings directly. The Forum chair is a co-opted member of the Councils Adult Services Policy and Scrutiny Committee. A separate voluntary sector mental health providers group meets from time to time as the need arises. Learning Disabilities  Within the Learning Disability field, partnership working is focused in practical terms more on the two large voluntary groups Bromley Autistic Trust and Bromley Mencap. The two groups between them supply the chair and vice-chair of a relatively small forum; this means that the two groups in many ways provide the resource for the forums a potential conflict of interest in terms of the use of time. Learning disabilities as a client group has a dense agenda as it looks at significant structural change within services for adults as the day centres close and people in out of borough placements are brought back into Bromley. In addition, a multi-agency strategy for autism is being developed by the autism standing forum which reports to the Borough disability strategy group. This covers a wide range of services and has been subject to broad consultation. A multi-agency special provision group led by the Glebe school with input from the LSC is developing a centre for excellence for learning disability for young people aged 14- 25 and there is an SEN working group although the forum is not currently represented on that body. The chair of the forum is a non voting member of the LBB adult services scrutiny and policy committee. A learning disability providers forum brings together a range of providers including larger independent providers such as Christie Care and Heritage Care as well as local providers. The heavy workload is proving to be a challenge for the Forum which has identified the need to increase its own numbers. Physical and Sensory Disabilities  The Physical and Sensory Disabilities Forum, now called Disability Voice Bromley, to distinguish it from the partnership board, has a membership of around 150, mainly individual members. It does not represent disabled children but is working to attract individual young adults into its membership. The Forum has an independent chair, reflecting in part the absence of any large voluntary group to provide it with the kind of support some other for a enjoy. In the last 18 months, the Forum has set up a sub-group, Disability Voice Vision. This is intended to represent the needs of those with sensory impairment and comprises a group of younger visually impaired people. This sub group feeds in directly to a complementary sub group of the partnership board. In the longer term, the Forum would like to establish a series of sub groups reflecting a range of issues such as transport. The Forum is represented on the partnership board; BATH also has a place in its own right but does not attend. There are also places for individual service users and for representatives of minority ethnic communities. The Forum is represented on the LBB corporate equalities group and is attempting to work more closely with other statutory agencies such as the police, health providers and colleges on their specific disability equality schemes with varying levels of success. The forum is taking a lead on trying to establish a mobility forum this is an expectation of all London Boroughs. It is also represented on the Adult Services scrutiny committee and also on specific projects, primarily the integrated equipment store project. The Forum sees a need to develop a stronger voice for people with disabilities but this is not a homogeneous client group and the task presents many challenges. Older People  Older peoples partnership working has a two pronged structure; the Council on Ageing (COA) primarily represents groups (although it has some individual members). The COA established the Older Peoples panel to represent individual older people. The Council on Ageings chair represents the voluntary sector on the Health and Social Care Partnership Board. The COA represents the older peoples voluntary sector on the Older Peoples partnership board and on the Adult Protection Committee. It is represented on a number of specific multi agency groups, currently the Occupational Therapy Board, the falls working group and the intermediate care strategy group. It is also represented on the National Service Framework Champions Group and the Adult services scrutiny and policy committee including one of its sub groups concerned with care homes. The Older Peoples panel makes its input via consultation and campaigning. It has been invited to contribute to consultation processes by a range of statutory and private sector agencies on issues ranging from podiatry to post offices. It s members meetings identify and explore issues of concern to older people and pursue these with the relevant authorities. Both the COA and the older peoples panel take a proactive approach to identifying and pursuing issues of concern. This has included holding events such as conferences and workshops on issues such as end of life care and dementia and also preparing an informed input into the day services commissioning strategy. Recent achievements include establishing that changes to eligibility criteria should be phased in over three years, increased funding for audiology to reduce waiting times and involvement in the appointment process for the Joint Commissioner for older people. Carers  Carers interests are in many ways a cross cutting theme and carers are represented on several forums and partnership boards and within the VSRG. Carers Bromley is also a co-opted member of the LBB Adult Services Scrutiny and Policy Committee. In addition, however, carers have their own structures. The Carers Organisations Group (COG) is chaired by an elected member of LBB, Cllr Anne Manning and brings together some 70 organisations concerned with the needs of carers. It has a small amount of independent funding channelled through the carers special grant. Most activity takes place via its executive committee and it is primarily a channel of information between all those concerned with carers although it also undertakes a small amount of lobbying. The carers forum brings together individual carers under an independent chair who is a member of the COG executive committee. Young carers have their own forum, chaired by a member of staff from Carers Bromley. Organisations and individual professionals with an interest in young carers are brought together in the young carers forum, also chaired by Carers Bromley which has informal links with the agencies for whom those professionals work and which feeds into the Carers Bromley Board. A multi agency strategy group was convened to produce the Bromley Carers Strategy but has now disbanded. The strategy recommended the establishment of a carers partnership board. Children  The Children and Family Forum has a very structured approach to representation. The 70+ member groups are organised into link groups reflecting different areas of activity or interest. Each link group elects a member of the Executive on an annual basis. Members of the Executive are then qualified to serve on multi agency partnership bodies. Representatives are paid for attending meetings but are required to file an email report to the forum on each occasion and the Forum has an administrative and membership officer hosted by Bromley Y. The forum receives more funding than the adult forums at 12500/year. All the Forums partnership work takes place under the auspices of the Childrens Trust Partnership but include some aspects of work (Drug Action Team) which also feed in to Safer Bromley. The partnership groups on which the forum serves range from the highest level strategic groups to specifically functional sub groups. The Forum is not represented on the VSRG. Longer term, it is considering becoming an independent charity in its own right. The Forum feels impact is hard to measure but are certain that a Forum rep has more influence than a representative from a single organisation. c) Other Communities of interest Ethnic Communities Programme  The Ethnic Communities Programme is funded by Social Services and hosted by the Pineapple club. It was established to encourage people from BME communities to access health and social care. Its activities are directed by a steering group of some 10 people drawn from both the statutory and voluntary sectors. It primarily works with the Somali, Asian and Caribbean communities. The programmes SLA provides for it to send representatives to partnership board meetings, consult communities on relevant issues and represent the views of those communities. In addition, the project manager chairs the BME mental health forum; this group invites providers to come and explain their services. The members then feed that information back to their communities. The Programme has some engagement with the police; the project manager chairs the independent advisory group to the police which brings together representatives from a range of community groups. The project manager sits on the LBB Corporate Equalities board and on the VSRG. In addition to representing ethnic communities in strategic partnerships, the programme has been involved in specific projects with health agencies including work around coronary heart disease and diabetes, work with the police on mentoring and work with community mental health teams about cultural expectations. Its SLA is due for renewal in March. Churches/ Faith groups The 150 + mainstream churches in Bromley are organised into Churches Together groups in the main centres of population within the Borough. These are sometimes used as consultation vehicles by the Borough. On the whole, churches tend not to see themselves as players within the partnership working arena. However, they are putting in a combined response to the Bromley Centre action Plan consultation process, emphasising the need for more good quality meeting and frontline delivery space in the town centre, reflecting the fact that many town centre churches are also community bases. They are also developing a response to the consultation process on the commissioning strategy for older people. There is little inter-faith activity within Bromley; the Christian Churches have seen little need for it. There does, however, seem to be a gap in this area within the Borough generally with little knowledge amongst either the church community or the statutory agencies about who the leaders are within other faiths. Homelessness There is a statutory requirement to have a Homelessness Forum within the Borough. There have been joint homelessness events between Bromley Churches Housing Action, CAB and the local authority since 2006. These have involved large plenary events looking at aspects of homelessness such as issues around young people or people with mental health problems. With leadership from the churches, these events are now developing into a more structured network with a steering group being set up. This will include representatives from the Children and Family Forum, Bromley Advocacy Project, the Gypsy Traveller Group and 3 -5 housing officers. It will begin with a series of consultative groups on aspects of a homelessness strategy. 2. Community Safety  The Voluntary sector is represented within the community safety arena at all levels. However, the level of coordination apparent within the field of health and social care is less evident here although Neighbourhood Watch are represented at VSRG and the chair of CLB represents the voluntary sector on the Safer Bromley Partnership. In part this may be a reflection of the fact that community safety activity is, in some respects, very much a local activity taking place at ward level and in, other respects quite specific (domestic violence, youth offending, drugs action etc). Other than neighbourhood watch, there is no forum or network to collate voluntary/community sector input to inform any VSRG discussion of community safety issues. 3. Community Development  Community Development does not have a high profile in Bromley. Community Links Bromley supports a community development workers network but it does not have a formal communication link with higher level strategic partnership work. The focal points of community development activity which include specific projects such as the Cotmandene and Mottingham community shops as well as the development of friends of parks groups and neighbourhood watch groups seem to flourish in their own right but do not link into policy work more generally. 4. Other  The diagram above shows the principle partnership working arrangements in which Community Links Bromley represents the sector or volunteering or where it supports joint working between other voluntary groups. Partnership working around sport and art is relatively limited; Ripley Arts Centre (a member of CLB) brings together voluntary arts groups. The community sports and physical activity group is a partnership between the voluntary sector, My Time (an independent trust in its own right), Sport Bromley and education interests. There is currently no partnership working on Olympics related issues. Employment and training interests are reflected in the Lifelong Learning partnership and People into Employment. CLB runs a number of networks itself, including the Trustee Network, Volunteer Coordinators Network and Community Development Workers network. Community House is itself a partnership between the key groups and between those groups and smaller organisations using the facilities. Section two Assessment Partnership working structures are most developed within the field of health and social care. Here, there are established systems for joint working both between the voluntary sector and the statutory sector and within the voluntary sector. Interestingly, a broadly common format voluntary sector forums feeding into multi agency partnership boards has a very different feel on the ground in each client group area. In terms of overall effectiveness, the results seem to be mixed. Some key members of voluntary sector forums are frustrated by a sense that partnership working is not as highly valued by statutory agencies as by the voluntary sector, making progress slow and difficult. There was a sense that partnership needs to be embedded in the local statutory agencies culture and that this has not really been the case to date. This may reflect a confusion within some parts of the statutory sector about the legitimate roles of voluntary sector partners the combination of advocacy, collaboration and (in future contracted) service provider being potentially challenging to understand. Others felt that progress has been made, there are indications of cultural change and that there is clear potential for a more productive partnership. The lack of opportunity for formal representation of the voluntary sector within the governance structures of statutory health bodies was pointed to by some as a barrier to stronger relationships, although it was noted that the commissioning of the new Link may have an impact in this respect. The inclusion of co-opted members of the adult forums and Carers Bromley on the LBB adult scrutiny and policy committee was valued, albeit as much for the opportunity to make relationships with elected members and to raise the profile of issues and perspectives as for the opportunity to make a measurable difference to outcomes. Individual forums experience partnership working very differently unsurprisingly this seems to be linked in part to issues of capacity within the forum itself. Where forums feel stable, with an adequate membership and constructive relationships with statutory partners, levels of satisfaction are higher. A contributory success factor is the participation of senior staff from larger groups operating in the field where the work of the forum and the work of the group have sufficient synergy for the groups trustees to be supportive of the time which effective strategic policy work via a forum demands. This does, however, mean that Forums representational work is undertaken by a very small number of people and that those individuals require a very clear understanding of the need to represent their sector not just their organisation. Where those resources are not structurally available in this way, the task is very much harder and the small financial support provided to the adult forums does not allow sufficient time in terms of both hours and level of expertise - to be bought in. At least two of the adult forums would benefit from support to build their capacity. Even where the forums currently have a strong chair and strong support from a major group, anxieties were expressed about the future. Most cannot see a new generation of chairs emerging to take over on the same terms as the current group of chairs. At least two adult forums are already experiencing the consequences of this. The Childrens and families forum has introduced a different model made possible because of much higher (relatively if not absolutely) financial support. Within this forum, participation in multi agency partnership groups is spread amongst a wider pool of people who are paid for their time. The forum aspires to make the chair a paid post. For all forums, one of the biggest challenges is staying fully up to date with the strategic agenda within their field. The process of understanding new national policy and interpreting that for the local context is time consuming and demanding. To be fully effective, that understanding needs to be shared throughout the forum and consulted on more widely than that so that a constructive and proactive input can be made into the development of the local response. This is not easy. Where success in terms of identifiable impact was noted, it was primarily on quite concrete issues or within multi agency groups concerned with more operational issues. The brokerage scheme received several mentions from both voluntary groups and from the council as a successful example of cooperative/joint working. Disability Voice pointed to their influence on the eligibility criteria and work on the joint equipment store; the Mental Health Forum to the issue of designated beds within Oxleas; the Learning Disability Forum to the work of the autism standing forum; The Council on Ageing to increased funding for the Audiology Department at Bromley Hospital and to the mitigated implementation of changes to eligibility criteria for older people. Views on the effectiveness of the VSRG as a coordinating mechanism were mixed. Some felt it was too big; there were a couple of calls for the restoration of meetings exclusively of forum chairs which were seen as providing useful peer support. Others felt that it was too exclusive; that it kept information and influence within too closed a group, that the selection criteria for its members were not transparent and that it needed to be more focused. The absence of the Children and Families forum is an issue, perhaps particularly as the Childrens Trust develops, offering the potential for the introduction of new models of partnership working which might benefit the sector more widely. There was some discomfort about the expanding agenda of the VSRG and its ability or appropriateness to deal with it. In particular, there was some concern about coordinating the voluntary sector input into the Local Area Agreement (LAA) through the VSRG. There was also a question about the voluntary sector input into the community safety agenda via the VSRG and Safer Bromley. There was uncertainty about the frequency of elections to the voluntary sector places on the Health and Social Care Partnership Board. At the same time, there was a recognition that it can be a formidable intellectual force and that the voluntary sectors representatives on the LSP and health and social care partnership board were effective. More positively the need for a new mechanism, such as a generic voluntary sector forum, to involve a wider range of groups more directly into the policy coordination and higher strategic planning processes was expressed by a number of people. This would not take the place of the VSRG but would provide an opportunity for a wider range of groups to feed directly into policy making processes. It could be particularly valuable for those who do not have a natural home within any of the existing forums. There was also strong support for the Compact. Many people felt this was a very important foundation for partnership working and were very keen to see it fully implemented. It was seen as having strong symbolic importance perhaps representing a new start to partnership working. To be successful, all these mechanisms require adequate resourcing and a recognition that the support role includes policy development, outreach and meeting support and facilitation. The introduction of the Ethnic Communities Programme has resulted in members of BMER community groups being directly represented within parts of the health and social care partnership structure. However, it appears to be happening almost as a separate stream. While the ECP is a full and active part of the VSRG, integration appears to be less developed at forum level. There did not, for example, appear to be a sense that forum representatives and ECP representatives on any given partnership board were part of the same team and forum representatives were not always clear about the role of the ECP. There does not appear to be coordination or mutual support of the differing interests within the wider equalities agenda. Faith groups, beyond the involvement of churches in the homelessness forum, do not seem to have a voice in partnership working in Bromley; this is in striking contrast to other London boroughs but may reflect the specific demographic characteristics of the borough. Community Safety has almost as extensive a partnership working structure as health and social care although much of it takes place a ward level. Each of the 22 wards has a safer neighbourhood committee which involves local community groups, neighbourhood watch groups and interested individuals. These feed in to the Bromley Community Engagement Forum which also involves a number of borough wide voluntary groups and which reports to Safer Bromley, a sub group of the LSP. There are a number of other community safety partnership groups including the domestic violence forum, the Drugs Action Team and the Youth Offending Team, all of which have some voluntary sector participation. However, while the chair of Community Links Bromley sits on Safer Bromley and the VSRG includes a representative from the borough federation of neighbourhood watch schemes, coordination of the voluntary sector input to these processes at a strategic level is relatively undeveloped. Partnership working on other issues is more ad hoc. Community Links Bromley, often via the Volunteer Centre participates in a number of multi agency partnership groups addressing issues ranging from sport to lifelong learning and employment. In a number of instances, this participation is specifically intended to represent volunteering rather than the voluntary sector. Joint working between the voluntary sector and education and employment interests generally is relatively limited. There is some work under the auspices of the Childrens Trust and some on specific issues or projects around aspects of disability and mental health but there is no coordinated strategic work on these issues. Partnership based work focused on community economic development issues seems not to be a feature of the borough. Equally, cultural issues are addressed either as voluntary arts through Ripley or via Bromley Mytime in terms of specific projects but not, as in some areas, through a broader cultural partnership. There is as yet no partnership looking at the implications of the Olympic games for Bromley. In this context, it is notable that the Adult Services committee is the only one of LBBs committees to include designated co-opted places for voluntary sector representatives. Community development, however, has a tradition of taking place within a partnership framework which has, in the past, had strong links to public health, health promotion and environmental health work. The two community shops remain focuses of neighbourhood based partnership activity. Recommendations In the light of this analysis, it is suggested A generic voluntary sector forum be introduced. Such a forum would be open to all. It would provide an opportunity to disseminate information about all aspects of partnership working directly to groups. It would provide a mechanism for consultation on issues which are either outside the remit of any specific forum or existing network or which span the interests of several. In particular, it might form a consultation and involvement point for issues such as the LAA or aspects of community safety. The VSRG might wish to consider whether elections to the LSP should involve this forum. CLB/VSRG look at how to strengthen policy support to the forums. Support in assimilating and interpreting national and local policy would make a significant contribution to effectiveness in strategic partnership working. The VSRG re-open a dialogue with the Children and Family forum to identify how they might be involved. CLB/VSRG to begin to work with senior forum representatives on planning a longer term succession/development strategy to ensure forums have access to the resources they need to continue to make an effective input into multi agency planning for their client group. This might also include reviewing how the user voice is fully represented within some areas. CLB/VSRG to approach LBB and the PCT about holding a high level seminar on partnership working to strengthen mutual understanding about how to make it effective; appropriate mutual expectations; structures and processes to support it locally; benefits to service users/residents. CLB/VSRG to make implementation of the Compact a priority. Melanie Nock January 2008. Appendix One list of interviewees Rachel Archer Children and Families Forum John Bruce Neighbourhood Watch Barbara Cracknell Crystal Palace Community Development Trust Diane Diamond Community Links Bromley Peter Dyer Community Links Bromley Joanna Frizzell Disability Voice Bromley Richard Lane Learning Disability Forum Barbara Langridge Mental Health Forum Jean Levy Community Links Bromley Linda Loft Adult and Community Services, LBB Sandi Lowing Bromley Mind Leslie Marks Council on Ageing Lulu Pearce Ethnic Minorities Programme Lynne Powrie Carers Bromley Pat Wade VSRG Cecilia Yardley Bromley Forum for the Homeless Appendix Two forum status Forum status ForumOrganisational statusStatus of ChairPaid hours per weekFundingNumber of membersStatutory observersCarers Organisations Group Carers ForumIndependent Independent70Children and Families ForumConstituted groupCEO of member organisation4hrs12500 from Childrens Services under SLA78 organisationsOpen meetings can be attended by statutory partners 4 a yearCouncil on Ageing Older Peoples PanelRegistered charityIndependent Volunteer12 hours coordinator4348 COA 3611 OPP56 orgs 106 individualsLBB, PCT, BHTDisability VoiceConstituted groupIndependent volunteer5 hrs4432150LBB, PCTLearning Disabilities ForumRegistered charityChief officer of member group 10 hours coordinator4217200 individuals and orgsCommissioner for LD in LBBMental Health ForumRegistered charityIndependent volunteer5 hours per week416468 individuals and orgs2Ethnic Communities ProgrammeSteering groupFull time programme managerSLASteering group 10 Commissioner Adult and Community Services     PAGE  PAGE 1 LSP Partnership Board Bromley Hospitals PCT Oxleas Bromley Council Safer Bromley Police Health and Social Care Partnership Board Childresn Trust Partnership Board Youth Youth Offend Team Drugs Action Team 22 Safer neighbor hood areas Communit y Engageme nt Forum Older people pship board Menatal health paship board Learning disability pship board Phys and sensory pship board b q  8 9 : j Ȳxj\\N@N\2hQnOJQJ^JmH sH hoOJQJ^JmH sH h}OJQJ^JmH sH hSYOJQJ^JmH sH hN3OJQJ^JmH sH h0OJQJ^JmH sH h)OJQJ^JmH sH h0FT5OJQJ^JmH sH h)5OJQJ^JmH sH +hfsht5CJOJQJ^JaJmH sH %ht5CJOJQJ^JaJmH sH %ht5CJ$OJQJ^JaJ$mH sH "htCJ$OJQJ^JaJ$mH sH <GWXYZ[\]^_`abos@&gdgdt $@&a$gd$a$gdtd : ; 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