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Government Computerization, ESCAP
Government Computerization Newsletter No. 7 - September 1996

Singapore a front-runner in developing national information infrastructure*

The Government of Singapore pronounced its vision of becoming an Intelligent Island in early 1992. This was one and a half years before the United States Government's National Information Infrastructure (NII) initiative and more than two years before the European Union's Bangemann report. The systematic approach has helped Singapore to make significant progress in integrating public sector information systems.

The IT2000 vision was to be materialized through three main components, namely the development of national information infrastructure, the promotion of content digitalization and the development of multimedia industries. An existing Committee on National Computerization was upgraded to a high level National IT Committee. The National Computer Board (NCB) was entrusted to implement the national information infrastructure. More recently the role of NCB has been converted to that of a "Chief Information Officer (CIO)" providing strategic planning advice to the Government.

In 1994 the World Competitiveness report ranked Singapore as the second most competitive country because of its people and pro-trade government policies and support. Singapore enjoys an advanced telecommunication infrastructure with island-wide ISDN availability since 1989, a teledensity of 45.5 telephone lines per 100 persons, and 154 computers per 1000 persons. Personal computer penetration at home is about 30 per cent. Computer literacy amongst employees in Singapore was ranked second highest in the world. The IT industry in Singapore has been growing steadily, almost 20 per cent on average, the record being 34 per cent in 1994. Total IT revenue for 1994 was five billion Singaporean dollars, with $S2.8 billion from the domestic market and $S2.2 billion from the export market. Hardware sales contributed to 74 per cent of the total sales, whereas the shares of software and IT services were about 11 and 15 per cent respectively. Total IT workforce supporting the industry was about 20,000. The two local universities and four polytechnics produce about 2,000 IT related graduates and diploma holders a year.

A mix of centralized and distributed planning

The National Computer Board (NCB) was set up as a statutory board under the Ministry of Finance to plan, coordinate, implement and manage the Civil Service Computerisation Programme (CSCP). The primary goal of the CSCP is to increase the efficiency and effectiveness of the Civil Service through innovative application of IT. The development work of public information systems is done increasingly through partnerships with private industry. About 900 of NCB's 1,400-strong professional staff are deployed to various government offices to advise them on information systems development. Civil service-wide systems, IT infrastructures, professional standards and practices are developed and set by the NCB to ensure maximum return on investment and civil service-wide system integration. The NCB evaluates IT project proposals submitted by the ministries, and advises the Government on matters that require integration, coordination and standardization across ministries. It is also the sole procurement agency for computer hardware and software for the Civil Service.

Each ministry is responsible for obtaining its own computerization budget. They have the flexibility to prioritize their computerization requirements and manage their unique local systems. The Ministry Information Steering Committee is the highest level decision making body concerning the computerization plan and budget of the particular ministry. Each ministry has a computer information system department, whose professional staff are provided by the NCB. The director of the department is usually a senior administrative officer of the ministry, while the technical leadership is provided by the Information System Manager who is a NCB staff member. About 900 NCB professionals are deployed in the computer information system departments of some 30 government ministries and departments.

Achievements of the Computerization Programme

The CSCP's many successes have spurred increased effort and interest in IT development projects, from both the Government and the private sector alike. By the end of 1995, some 800 systems had been put in place in the public sector, bringing the total worth of all CSCP projects to $S655 million. Ongoing efforts included the implementation of forty-five new development projects worth some $S96 million. There were about 40,000 PCS installed in the Civil Service of the total staff strength of 60,000. A cost-benefit study conducted in 1988 showed that for every dollar of computerization investment spent by the Government, a return of 1.71 times has been realized.

The following highlights some of the recent applications delivered under the CSCP:

(a) One-Stop Non-Stop (OSNS) Service

The aim is to bring government services to the public at their convenience. Various government application systems are linked and deployed to minimize multiple form-filling and multiple trips to different government departments. In addition, information kiosks will be installed at public places, for example at the community centres, libraries, MRT (Mass Rapid Transit) stations, and major bus interchanges to enable public to access government information easily, or submit government application forms, pay government taxes, car park fees or fines, or renew licences at places most convenient to them.

OSCARS.

With OSCARS, or the 'One-Stop Change of Addresses Reporting Service', Singaporeans no longer need to report separately to various government agencies on their change of address. They can update their residential addresses at any neighbourhood police post. The National Registration Office's database, which is linked to more than 90 neighbourhood police posts and eight police stations, will then transmit the updated data to all subscribing agencies by the next working day. There are eleven such agencies currently linked to OSCARS, including the Central Provident Fund, Post Office Savings Bank of Singapore, Registry of Vehicles and Inland Revenue Authority of Singapore. With more than 140,000 addresses changed every year, OSCARS not only brings about greater convenience to the public, but also leads to substantial productivity improvement for the Civil Service.

(b) Greater Efficiency for the Public Services

Many IT projects under the CSCP help to improve the overall efficiency and responsiveness of government bodies, leading to substantial savings in time and effort, short queues and increased productivity for all concerned.

National Registration Identity Cards (NRIC) for Singapore Citizens and Residents. Involving 2.3 million citizens and permanent residents, the 3-year conversion exercise was completed in October 1994. The achievement was made possible only by re-engineering the registration process, re-designing the workflow and converting sequential processes into parallel steps, thereby cutting down what was a two-hour delay for the registration of a new NRIC into a few minutes' wait for each person. The new NRIC plastic card is forgery proof. It allows the printing of the card holder's name in English and ethnic characters such as Chinese, Tamil and Jawi.

Inland Revenue Integrated System (IRIS). It is developed to enable the Inland Revenue Authority of Singapore (IRAS) to simplify and streamline work processes as well as to reorganize from a non-integrated tax type structure into function based entities to provide one-stop services to taxpayers. Introduced in 1994, the system has begun phased implementation in February 1995 and will be completed by early 1996. With IRIS, the IRAS will replace manual with pipeline processing. The pipeline is an automated system which will process the bulk of tax cases with minimal human intervention. The rest, about 20 per cent, which are big revenue or complex cases, are streamed out of the pipeline by built-in criteria and rules to be processed by tax officers. The system will free tax officers from routine and mundane work, allowing them to focus on more complex cases.

(c) Integrated Information Sharing

Realizing the importance of information sharing and maintaining data integrity for common data items used in the various computerized systems, three data hubs have been established for the CSCP. They are the Land, People and Business Establishments data hubs. Steering committees normally chaired by the permanent secretaries of the related ministries are formed to set policy for the definition, collection, maintenance and sharing of the common data.

Land Data Hub. The Land Data Hub made possible the sharing of 26 categories of land related data among its 30 subscribers. The system was completed in 1994. It introduced an on-line remote access facility to four government departments, allowing users to display and print maps at remote locations using personal computers. The Hub's major users include land master planning by the Urban Redevelopment Authority, planning of Mass Rapid Transit (MRT) lines by the MRT Corporation, and the compilation and analysis of state land ownership statistics by the Ministry of Law's Land Office.

(d) Technology Showcases

AlphaNet. As part of the initiative towards a paperless Civil Service, AlphaNet, a conglomerate of e-mail networks that offers convenient electronic communication among 230 administrative officers, was launched in December 1994. The project was designed to increase departmental interaction and service-wide information sharing. AlphaNet was completed in a compressed time-frame of six months.

Technology Court. A high-tech court was introduced for the first time in Singapore in 1995. Using multimedia and digital audio recording technology, it allows trials to be conducted without the involved parties' physical presence in the courtroom and permits cases to be presented on multimedia. The Technology Court will also provide access to a host of information through Internet and LAWNET. The latter provides access to several useful services for the legal profession. These include the Case Law Database, the Subsidiary Legislation Database, the Lotbase of the Registry of Land Titles, the Registry of Companies and Businesses, Biznet, the Bankruptcy Search System, and the Supreme Court Notices System.

CORENET. The NCB, the Ministry of National Development, and the Construction Industry Development Board (CIDB) jointly kicked off the CORENET (Construction and Real Estate Network) project. It is an integrated network linking public and private sector organizations in the sector to automate regulatory approval of building plans, construction procurement process and exchange of information. CORENET involves the re-engineering of business processes in the sector to achieve a quantum leap in turnaround time, productivity and quality. It will cut down on turnaround time for developers, resulting in savings, higher productivity and better quality buildings.

Tampines Regional Library. It was designated a prototype library in the Library 2000 vision. In addition to its traditional facilities, the new library offers a wide CD-ROM collection, access to the Internet, Teleview and Biznet, self-service kiosks, and an IT gallery showcasing the latest developments in computer technology. The library uses IT extensively, facilitating discovery and learning to equip the public for the information age. The work prepares Singapore to move towards a digital library, which will greatly enhance Singapore as a learning nation.

On-Line Library Services. In a move to expand its reach through cyberspace, the National Library launched the first on-line library service known as NL.Line through the Internet. Internet users can now access information on the library, search through catalogues, place book reservations, renew book loans and request for home delivery beyond library operating hours, without ever having to leave their homes.

IT in Education

Computers are used extensively to enable a more effective and efficient administration of the education system in Singapore. More important, they are also being introduced as tools to enhance the learning and teaching experience of the students and teachers. By the end of 1995, 74 computer systems had been developed to support the administration in the Ministry of Education (MOE) headquarters, 198 primary and 151 secondary schools, and 14 junior colleges. Each year, MOE deals with a student population of about 440,000 and a teacher population of 21,000. Core information systems developed included the Pupil Information Systems, Teacher Information Systems, School Information Systems, Financial System, Examination and Pupil or simply Posting Systems. Two mainframe computers were being deployed to support about 3000 on-line users.

Under a School Link project, about $S32 million had been provided to equip the schools with PCS and to link them through the local area networks and the Ministry computer network. Another $S50 million was proposed to upgrade the application systems for schools and training of 21,000 teachers on the use of IT. The project enables teachers to access information about the pupils, the school financial system, and to share data and lesson material from the PC. It reduces tedious data transfer and consolidation as well as ensures consistency in reports to the Ministry of Education. Back in 1988, the School Link project was given the Exemplary Systems in Government Award by the URISA (Urban and Regional Information Systems Association) in US.

An average of 12 teachers per primary school have been trained through a 15-hour course to implement Computer Based Learning (CBL). Another two teachers per school were trained as CBL coordinators through a 100-hour course. In the secondary schools, teachers are trained in 15-hour CBL courses according to their subject areas. The concentration today is to encourage CBL for subjects such as Mathematics, English and Science.

From 1995 onwards, the MOE will provide computer equipment as standard resources for all primary schools. Depending on the enrollment, every primary school will get one or two computer laboratories, with each laboratory having about 40 multimedia computers. The Singapore Totalisator Board has also set aside S$S40 million for schools to buy computers. A programme to accelerate the use of IT in primary schools (AITP) was initiated to provide six pilot primary schools each with 100 personal computers and a wide range of multimedia educational courseware. Students will be able to use the computers for project work, enrichment of general knowledge and remedial lessons. The courseware will enable teachers to facilitate exploration and discovery by their students.

The Students' and Teachers' Workbench project (STW) is a collaborative effort between the MOE and the NCB. It aims to support learning by providing access to media-rich courseware, facilitating communication cum collaborative learning and providing students and teachers with tools designed for an enriched learning environment. Teachers will be able to customize teaching and assignments to suit the learning abilities of students. Students can gain access to a vast amount of multimedia material on the systems to prepare for assignments seek knowledge. When the system is eventually linked up to the national information infrastructure, students can learn from both schools and homes. The pilot project for STW will cover six secondary schools and courseware for secondary one physics. The prototype system was scheduled to be ready in January 1996.

Internet was introduced to the Ministry of Education, 14 junior colleges and 20 secondary schools through a dial-in service in July 1994. In September 1995, 700 user accounts had already been issued. By the middle of 1996, the facility was targetted to be accessible by all schools in Singapore via dial up lines.

Internet Service for the Government

The Government Resources and Information Network Project (GRIN) promotes the use of Internet in the Civil Service. The NCB helps to bring Internet service to relevant users in the public service, conduct awareness seminars, user training, and helps packaging of information for the Civil Service. Several government ministries have already started to use Internet as a channel to communicate their ministries' programmes and publish relevant information and data electronically to the public. InfoMap, the Singapore one-stop home page at the Internet, provides linkages to several government web pages, and information about Singapore such as Singapore's Facts and Figures, property prices, places of interest for tourists, and on-line art exhibitions. This information is published by the Department of Statistics, Urban Redevelopment Authority (URA), the Singapore Tourist Promotion Board, and Art Museum.

IDNet, the inter-department network set up seven years ago, connects the various mainframe and minicomputers throughout the Civil Service. IDNet enables the various departments in the Civil Service to share computer applications and data, as well as to exchange information. It is a key infrastructure to the one-stop non-stop services such as the OSCARS and the provision of electronic mail for the Civil Service (IDEmail). In 1995, the network supported 83 service-wide applications used by more than 4500 civil servants. To meet growing user demands, a new network infrastructure is being evolved. IDNet II will run the TCP/IP protocol and support access to both Digital and IBM host computers which are widely used by the Civil Service. The number of users supported will be doubled to more than 10,000 when the enhanced IDEmail is fully implemented. The enhanced IDEmail will merge a diversity of e-mail systems currently used by the various ministries in the Civil Service. It will then become a truly inter-departmental communications system.

Data Centre

The NCB Data Centre, formed in 1993, consolidates mainframe computer operations for several government departments, achieving economies of scale through shared system software and consolidation of skills. A post-implementation review to assess the benefits from establishing the Data Centre showed a 20 per cent savings in recurrent costs. The Data Centre has been maintaining a high average uptime of over 99 per cent since its inception. Computing facilities in the Data Centre include three IBM mainframes with a total computing power of 360 MIPS, and a total disk storage of 1,440 Gbyte. It uses various database management systems such as DB2, IMS, ADABAS/NATURAL, and IDMS. As of 1995, the Data Centre serviced over 10 government ministries and departments. It supported about 340 application systems, 10,000 users, a network of more than 250 data lines, and 5,000 PCS and terminals. The Centre itself had about 100 staff.

Creating and maintaining a high quality of application development remains one of the key challenges for the CSCP. Efforts in developing an application development methodology, computer-aided design tools, security measurements and quality certification are some of the steps taken so far.

New Thrusts for the CSCP

The CSCP has moved from implementing application systems for individual ministries to increase internal efficiency, to integrating inter-ministry applications, and ultimately to enable a one-stop non-stop government service. The vision of the CSCP is to bring timely and useful government information and services to the public in the most cost effective and convenient way. New initiatives currently undertaken by the CSCP are:

  • Paperless Office
  • Electronic Procurement System
  • Business Process Re-engineering
  • New delivery channels like Internet or information kiosks
  • Use of emerging technologies like smart card
  • Making government information more accessible to the public

Under the paperless office initiative, there will be more extensive use of electronic mails and mails-enabled applications, electronic document management systems, automated workflow and formflow, and better information sharing through workgroup computing. An electronic procurement network will be piloted to link the Pharmaceutical Department of the Ministry of Health and the Ministry of Finance with approximately 1,000 suppliers electronically. The system will enable electronic posting of government tenders, and require suppliers to submit tender information electronically. Eventually, the supplier may allow automatic replenishment of stocks by the suppliers when they get low, and facilitate electronic payment.

Business process re-engineering for the ministries with IT as an enabling tool will be carried out. For example, the Inland Revenue Authority of Singapore has gone through a major business re-engineering exercise to streamline the tax processing procedures. The Immigration Department hopes to cut down the waiting time and improve turnaround time for the processing of employment passes for foreign workers and passport renewals through business process re-engineering .

A pilot project is being planned to use smart cards for frequent visitors to Singapore. It will be tried at the Woodlands Checkpoint by allowing the smart card holder to pass through an autogate without manual checking by the Immigration officers. There is also a plan to provide a smart card for civil servants to facilitate secure electronic transactions for the Government. Plans are also underway to make government information more accessible to the public.

Under the National High Speed Testbed project, plans are being made to deliver a "Virtual Government" to the public. The objective of the Testbed is to provide a platform for testing applications that require high communication bandwidth. Information kiosks connecting to the testbed will allow the public to make on-line interactive inquiries or applications to government departments via videoconferencing.

The implementation and maintenance role of the NCB will be soon corporatized and eventually privatized. Ministries will soon have the flexibility to source from the industry the best IT providers to implement their computerized systems. The corporatized entity will be subject to commercial discipline. Therefore it will be able to achieve greater efficiency in its resource utilization, and greater flexibility to enter into strategic alliances with other IT vendors or users. The NCB will change its roles to focus on planning and designing civil service-wide infrastructure, applications and standards; supporting the CIOs (Chief Information Officers) in the various ministries; and linking government information systems to the private sector and the public. In other words, the NCB's new role will be the Chief Information Officer (CIO) for the Government.

* The text of this article is based on the paper "Public Services Through Information Technology - The Singapore's Experience" written by Ms Chin Tahn Joo, National Computer Board, Singapore for the Expert Group Meeting to Review Computerization Development, organized by ESCAP from 12 to 15 December 1995.

Australian Government determined to put clients first

In March 1995 the Australian Information Technology Review Group made recommendations directed at making information technology a more efficient and effective means of achieving the objectives of the Government. As many of those recommendations can be adapted for a wider use in the region, the Newsletter briefly introduces the Group's report "Clients First: the challenge for government information technology".

Clients First makes recommendations for the Government in the following areas: policy development, planning mechanisms, encouraging innovation, management initiatives, people issues, cross-agency activity, purchasing reform and outsourcing guidelines. Some of the recommendations were directed at identified problems and some to major strategic redirection. The Review Group found that there was room for reform in how the Government used information technology to develop policy and conduct its administration. However, the greatest potential lay in transforming the quality, range and relevance of government client service delivery. The report categorizes those clients as job seekers, welfare beneficiaries, hospital patients, school children and tax payers. The Group's leading argument was that the Government needed to develop a service vision that puts clients first. "Information technology and corporate planning processes needed to be closely drawn together so that changing the business can be enabled by the use of technology."

Several recommendations were made regarding the acquisition and use of information technology, starting from the creation of information bases that could be used as an essential planning resource. Government purchasing should pay attention to vendor capability rather than detailed specification of information technology systems, involving more widespread use of partnering arrangements. Benefits could be achieved through cross-agency uses of information technology and sharing of information technology staff. The skills of IT staff should reflect an understanding of the business needs of the public sector. In some cases, outsourcing would enable the agencies to concentrate in their core activities and in improving agency focus on their business needs.

Information systems that have for historical reasons been developed for administrative functions within agencies should be rationalized to reduce duplication and provide greater cross-agency flexibility for programme delivery. Communications and computing were now inextricably linked and similar rationalization of data networks should occur to achieve scale economies and operating efficiency;

The report recommends also that privacy guidelines that were developed in an information systems environment dominated by central computing should be reviewed to take account of the potential benefits offered to clients and the Commonwealth by new systems approaches. Readers with access to the full Internet can browse a hypertext version of Clients First report at URL http://www.finance.gov.au/pubs/itrg/itrg-tc.html.

Office of the Chief Government Information Officer

One of the concrete proposals was the creation of the Office of the Chief Government Information Officer (CGIO). The objectives and functions of CGIO include

  • chairing the Government Information Services Policy Board;
  • providing leadership to government agencies in the realization of the potential of information technology, having regard to the Government's industry development objectives and established information privacy practices;
  • developing for Ministers' consideration an Australian Public Service "blueprint", which builds on overseas experience, for the more efficient and effective use of information technology:
  1. including, but not exclusively, a focus on technology while maintaining a premium for user and service delivery;
  2. recognizing that users (such as line departments) are in an important position to determine what is appropriate to their needs and those of their clients; and
  3. ensuring a commitment to connectivity and interoperability of services wherever possible, together with a recognition that some common underlying telecommunications and computing standards will need to be adopted across the government to ensure such connectivity and interoperability;
  • identifying and promoting solutions to address common requirements across agencies where this is feasible and fruitful
  • promoting the "lead agency" concept whereby agencies active in a particular area receive assistance to develop solutions which may have wider applicability across government;
  • identifying areas in which government information technology standards are necessary;
  • collecting and disseminating information on the global use of information technology relevant to the delivery of Commonwealth Government Services; and
  • providing advice to the supply divisions of the Department of Finance on agency bids for information technology.

The Office of Government Information Technology (OGIT) was established as recommended and Andrew MacDonald was appointed as the Chief Government Information Officer in July 1995. He is supported by the Government Information Services Policy Board, its subsidiary bodies and numerous technical groups on various technological and policy domains.

Government Information Services Policy Board

The Government Information Services Policy Board (GISPB) had the following terms of reference to assist the Chief Government Information Officer (Newsletter excerpted them from http://www.ogit.gov.au).

" In consultation with other relevant policy committees provide policy advice to Government on information and communication service issues in general, including the Government's role in the provision and use of these services in a way which meets economic and social objectives:

  • facilitating and promoting the adoption of an across government approach to the use of information services by departments and agencies, consistent with the current framework of devolved responsibility and accountability;
  • identifying opportunities for coordination of infrastructure and delivery of services, and promoting best practice among departments and agencies including the use of outsourcing and partnerships with industry;
  • developing a vision for IT and information services in Government focussing on the delivery of client services to the public;
  • providing advice on, and fostering sound practices in relation to:
  1. policies for across government approach to the development and use of information services, including IT, telecommunications and information networks;
  2. the potential for the merger of smaller data centres and their support structures and the savings that can be realized;
  3. the development of and revision of guidelines for agency corporate, information technology, telecommunications and procurement plans and the integration of all such plans into the corporate plan; the development of mechanisms to make such information available to industry in electronic form and the facilitation of their ready updating by agencies;
  4. the implementation of more common standards in IT to enable better communication and access to information across agencies;
  5. promoting common benchmarking across agencies as a mechanism to improve efficiency and accountability;
  6. overcoming administrative impediments in procurement, staffing and contracts to outsourcing and partnering with industry;
  7. fostering a more innovative approach to the development of systems, support of legacy systems, and delivery of services, including the use of the lead agency concept;
  8. establishing, in consultation with the Australian Bureau of Statistics, a database of information on the use of IT and information services across agencies; and
  9. being responsible for disseminating global information on the Commonwealth's use of IT."

Editors note: The Government Information Services Policy Board (GISPB) was in October 1996 substituted by the Information Technology and Telecommunications Policy Advisory Committee (ITTPAC), which will provide the Government with policy advice in regard to the implementation of innovative and cost effective information and service delivery. At printing of this issue, the new terms of reference were not available.

Applause to Australians

After a recent visit to their pages, the Editor warmly recommends all readers to bookmark the Office of the Government Information Technology (http://www.ogit.gov.au) for future visits. Although all Australian experiences may not be directly applicable in technologically less advanced countries, the pages include many useful documents on policies, standards and practices that could be used as the basis of setting national policies in other countries. The Australians have studied the experiences of other countries in setting IT policies and standards, and commendably make proper references and acknowledgments of their sources all through the pages. The OGIT uses the Internet as their main domestic dissemination media. The general public and the whole global Internet community have early access to their key documents. Who says the public sector is not to be transparent?

Programme Officer appointed at ESCAP

For the first time since 1989, ESCAP has now a full-time regular budget professional officer dedicated to public sector computerization. Mr Ilpo Survo, who has previously been serving the Statistics Division in various capacities, was on 9 June 1996 appointed as a Programme Officer in charge of public sector computerization activities. Among his other previous responsibilities, Mr Survo has been coordinating the development of the ESCAP Statistical Information System. More recently he has been also in charge ad interim of government computerization. He was a Research Fellow at the Pellervo Eeconomic Research Insitute, Finland from 1985 to 1989. Prior to joining ESCAP in February 1993, he worked for the Food and Agriculture Organization of the United Nations as an Associate Professional Officer, functioning as a Marketing Economist attached to the Fertilizer Advisory, Development and Information Network for Asia and the Pacific (FADINAP) in Bangkok.

Unfortunately the staffing table of ESCAP's public sector computerization programme suffered a simultaneous setback as Mr Atsushi Ueda, a non-reimbursable loan Expert in Computerized Information Systems, generously funded by the Government of Japan, completed his two-year assignment with ESCAP.

ESCAP Committee on Statistics to discuss public sector computerization

The tenth session of ESCAP's Committee on Statistics will be organized from 25 to 29 November 1996 at the United Nations Conference Centre in Bangkok. According to its terms of reference, the Committee will discuss not only issues related to statistical development in the region but also issues on information technology applications, information resource management and public-sector computerization. Public sector computerization issues will be taken up under a separate agenda item. The Governments have been invited to send delegations consisting of senior officials from national statistical offices (covering statistical development) and agencies coordinating computerization development in general in the public sector. The discussions on public sector computerization will be based on a paper the secretariat has prepared on selected issues and country statements.


   
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