Strategic Summary 2015 2018 - Asset Management Plan
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Document control File name File location Document version Document date Asset Management Plan Strategic https://at.govt.nz/about‐us/transport‐plans‐ Final 27 July 2015 Summary 2015 – 2018 strategies/asset‐management‐plans/ Signature Date
Asset Management Plan Strategic Summary 2015 - 2018 Table of Contents The Asset Management Plan (AMP) at a Glance ............................................................................................... 1 1. Strategic Themes Alignment ....................................................................................................................... 2 2. The Transport Asset Portfolio ...................................................................................................................... 3 3. Levels of Service ......................................................................................................................................... 4 Customer levels of service .............................................................................................................................. 4 Technical levels of service ............................................................................................................................... 4 4. Asset Management Planning ....................................................................................................................... 5 5. Growth and Demand.................................................................................................................................... 6 Population and asset growth ........................................................................................................................... 6 Consequential opex ......................................................................................................................................... 7 6. Asset Investment and Funding .................................................................................................................... 8 Asset investment needs, maintenance and operations ................................................................................... 8 Approved funding, maintenance and operations ............................................................................................. 8 Asset investment needs, renewals .................................................................................................................. 9 Approved funding, renewals .......................................................................................................................... 10 7. Network Asset Risk.................................................................................................................................... 12 8. The One Network Road Classification....................................................................................................... 13 9. Moving Towards AMP 2018 ...................................................................................................................... 13
The As sset Ma anagem ment P lan (AM MP) at a Glan nce Auckland T Transport’s (AT’s) ( plan to t improve ttransport sttarts with looking after w what we hav ve: AT manages $16.5 billion of assets, inc cluding transp port assets with on1 w a replacement value oof $13.4 billio Auckland’s road netw work (exclud ding motorwa ays) is valued d at $12 billio on. These aassets provid de for 8 billion km of vehiclle travel, oveer 180 million n walking andd cycling trip movement of over ps, and the m 62 millio on tonnes of freight f to, fro om and withinn Auckland each e year. Auckland’s public tra ansport network assets a are valued at $1.4 billion. The public ttransport (PT T) network carried overr 79 million trrips in 2014/2 2015. Transport ne eciating with time and us etwork assetts are depre se – at a rate million per year or e of $261 m $715,000 pper day. Network leve e have been stable 2012--2015, and customer els of service c satisfaction is hhigh. Currently: Customeer satisfactio on with roadss is 71%, foottpaths is 63%%, and public c transport iss 81% 97% of n network asse ets are in “Ve ery Good”, “GGood” or “Mo oderate” condition Backlog (assets past their renewwals interventtion point) is manageablee at $157 m Transport ne etworks are growing g ne with popu lation growth in lin mated 1.5% per year. h, by an estim The maintennance and operations o off transport neetworks is th he second la argest item oof AT operattional expenditure each year, after a public trransport servvice contracts. Road ma aintenance and a asset-ba ased operatio ons for the co ars2 is oming 10 yea $1.15 billion Public trransport asseet maintenan nce and operrations for the coming 10 years is $$0.71 billionn % per year, ass more road and PT asse Costs are increasing by around 1.5% ets are addeed to the netw work. Renewals w will be AT’s la argest item of o capital exppenditure oveer the coming g 10 years (tthe City Rail Link is second). Renewals ne eeds are ass sessed in the e Asset Management Pla an based on providing a fitf for purpose leveel of service and managin ng risk while e optimising whole w of life costs. c AT has sspent close to t $200 millio on on renewa als each yea ar from 2012--2015. Uninflate ted Inflated Renewa als funding re ecommended d in the AMP P over the coming 10 years is $2.88 b $3.44 b Renewa als funding ap pproved in th he Accelerate ed Transportt Programme e is $2.13 b $2.51 b Approved re enewals funding is sufficie ent in first 3 yyears of the 10 year LTP P. The 2018 AAMP is an op pportunity to review fund dling levels from f 2018/20019, in orde r to maintain n the agreed levell of service frrom transporrt assets. If renewals sspend is $3.444 billion (rec commended ), wals spend is $2.51 billioon (approved If renew d), then by 2025 b
1. Strattegic Themes T s Align nment AT has identtified five stra ategic theme es to guide itts actions and decisions. The Asset M Management Plan is one e of AT’s core strategic do ocuments, annd contributess to all five Strategic S The emes, and paarticularly to network optimisation and resilience, and sustainable fund ding, as show wn in Table 1. Table 1: Con ntribution off the Asset Management M t Plan to AT's Strategic Themes T The AMP ensures tha at existing P PT assets, including bu us lanes, bus stops, s stationns, trains, whharves and park p and ridee, are maintained and rene ewed approppriately to deeliver the leve el of service re equired for th he current annd future PT network. The AMP sets s custome er levels of service for road and PT P network ass sets based on safety, aaccessibility, convenience e, reliability an nd resilience. The AMP balances leveels of servicee, cost and riisk to develo op an optimise ed maintenan nce and reneewals program mme. The AMP demonstrates s that AT is m managing an nd maintaininng transport ne etwork assetts for the be nefit of curre ent and futurre generationss, while optim mising whole of life costs.. AT is recognised as impplementing, aand contributting to, national and d international best pracctice in Assett Management Planning This Strategic Summary presents the e key messa ges and dec cisions of the Asset Manaagement Plan. The Strategic Su ummary and AMPA are suppported by 1 5 Asset Clas ss Managem ment Plans (A ACMP’s). Thhese provide e technical analysis acrosss major asse et classes. F Figure 1 details the full do ocument set. Figure 1: AM MP documen nt set 2
2. The Transp port As sset Po ortfolio o AT managess the most co omplex and diverse d transsport network k in New Zea aland, conneecting people e and moving g goods acrosss NZ’s large est and fastes st growing ci ty. Auckland’s local road ne etwork providdes for 8 billio on km of veh hicle travel, over o 180 milliion walking and a cycling trips, and the e movement of over 62 million m tonness of freight each year. Road assets m managed by AT have a replacementt value of $11.974 billion,, and a curre ent (deprecia ated) value off $7.684 billioon as shown n in Table 2. Table 2: Roaad assets ROADS Replacement value Current va alue 7,302 kilometres roa ads $6.910 billion $4.724 billion (68%) 12,000 km k stormwa ater $2.341 billion $1.524 billion (65%) channel, 75,481 catcch pits 6,959 kilometres of ffootpaths, $0.865 billion $0.487 billion (56%) 321 km of cycleway ys 1,020 brridges and m major $0.819 billion $0.441 billion (54%) culverts oad and parkking assets Other ro $1.039 billion $0.659 billion (57%) TOTAL VAL LUE ROAD ASSETS A $11,974 billion $7.684 billion (65%) Auckland’s ppublic transp port network assets a are va alued at $1.4 4 billion, and will enable oover 79 millio on PT trips in n 2014/2015. Public Transsport assets are, on averrage, relative ely new and overall o curreent value is 83% of the assets’ repla acement valuue (Table 3). An exceptioon is wharvees which have e depreciateed by around half. Table 3: Pub blic Transporrt assets PUBLIC TRA ANSPORT Replacemen nt value Current value 41 active e rail station ns, associatted stabling a and $0.619 $ billion n $0.478 billio on (77%) depot 57 electric trains (E MUs), $0.504 $ billion n $0.496 billio on (98%) 10 Dieseel Multiple U nits 6 Buswaay stations $0.060 $ billion n $0.046 billio on (78%) 2,342 bu us shelters 21 ferry wharves $0.110 $ billion n $0.058 billio on (53%) $0.083 $ billion n AT HOP P ticketing syystem $0.060 billio on (72%) (inc. softwaree) TOTAL VAL LUE PT ASS SETS $1.376 $ billio on $1.138 billion (83%) 3
3. Leve els of Service S e Customerr levels off service Customers a are more like ely to be satis sfied when th he transport network is: • Safe: the ne er, and feels safer for all users over time etwork is safe • o access the network and Accessible:: it is easy to d get to your destination • Convenientt: the network is easy to u use and travelling is a ple easant experrience • Reliable: tra avel times forr people and d freight are predictable p and a reliable • Resilient: when w things go g wrong, oth her travel opttions are ava ailable and aaccess is quic ckly restored d Generally Auucklanders are a satisfied with w the leve el of service provided p by their t transpoort network. Satisfaction S with roads in ncreased 201 12-2014, and d satisfaction n with footpaths was stab ble, as shownn in Figure 2. Satisfaction with PT servvices is high, but declinedd in 2014 due e to a range of factors inccluding rapid d patronage growth. Futuure targets aim a to mainta ain current saatisfaction levels by ensu uring that asssets are main ntained, operated and renewed as a needed to deliver a fit ffor purpose level of serviice. Figure 2: Customer satissfaction tren nds 2012‐20114 and targe ets 2015‐2018 Satisfaction wiith Satisfaction wiith Satisfaction wiith the quality of rroads the quality of ffootpaths public transpo rt services Technicall levels of service Underpinning the custom mer experience of safety, accessibility y, convenience, reliabilityy and resilien nce are technical levvels of servicce. For exam mple the smo oothness of rooad pavements, the facil ities provided at public transport stoops and interrchanges, annd footpaths tthat provide a nonslip surface all conntribute to cus stomer experience. technical levvels of servicce are used throughout thhe AMP. The e thresholds used in reguular inspectio ons of asset condition, annd the interve ention points nance and renewals, are based on tecchnical levels s for mainten s of service. AT’s approach to setting technical levvels of servicce includes consideration c n of strategicc priorities seet through the e Integrated T Transport Proogramme. Higher standa ards are set for f some ass sets based onn their role in n the PT New Networrk, the Arteriaal Road netwwork, the Freeight Network ential “lifelinees” identified by the k, or the esse Auckland Inffrastructure Lifelines L Gro oup. In each of th he past three e years, the great g 97%) have been in “Veryy Good”, “Good” or majorityy of assets (9 “Moderate” ccondition. Thhe AMP reco ommends co ontinuing the trend of goo od asset conddition, by ste eadily renewing asssets at a rate e that keeps pace with assset deteriorration. 4
4. Asset Management Planning AT prepared its first Asset Management Plan in 2012. The 2012 AMP: Integrated the systems and data of eight legacy councils Set out a plan to maintain the condition and value of AT assets Developed a framework of levels of service in response to customer needs Recommended maintenance and renewals budgets for inclusion in the Regional Land Transport Plan and in Auckland Council’s Long Term Plan to meet Auckland’s growth and economic development needs The 2015 AMP is a major review of AT’s asset management practices and: Uses best practice modelling systems to develop whole of life strategies to maintain assets and to renew at the optimal time Includes more detailed consideration of levels of service for each class of asset. For example, bridges are renewed when they fall into “poor” condition, because the impacts of asset failure are so high. Less critical assets are renewed when their condition is “very poor”. Calculates the consequential impacts of AT’s capital investments on long term maintenance and renewals costs Advises on the consequences of different levels of funding for maintenance and renewals Budgets for asset maintenance and renewals are linked to levels of service and risk as shown in Figure 3. The main objective of Asset Management Planning is to achieve the right balance between these three drivers. Figure 3: Asset Management Planning trade‐offs 5
The links between asset condition, le evel of servicce, cost and risk are showwn in Table 4 for the example of road d pavements. This shows that as asse et condition ddeteriorates with w time and mer level of service d use, custom declines, riskk increases and a the cost to bring the asset back tot a fit for purpose condittion increase es. Table 4: Linkks between level of servvice, cost andd risk for roa ad pavementts Condition Lev vel of Service Cost C Risk 90% of AT Custom mer expectations met Needs ro outine maintenance onlyy. Low risk pavements are in Very Cost: ma aintenance Good, Good d $10,000 per km per year or Moderate condition 7% of AT Defectss noticeable but won’t Extent of o surface pro oblems meanns spot Low risk pavements change e customer behaviour fixes are e no longer adequate. W Water may are in Poor be enterring the road constructionn layers. condition Cost: paavement resuurface $100,000 per km 3% of AT Poor cu ustomer expe erience Wheel ru uts and edge e breaks indiccate that On a fast pavements road con nstruction layyers are dammaged. and/or busy are in Very Road is less comforttable for driveers and road, there Poor conditiion (especia ally) cyclists. could be a significant Cost: roa ad rehabilitattion safety risk $1,000,0000 per km 5. Grow wth and d Dema and Populatio on and ass set growth h In the three yyears from 2012-2015, 2 th he road netw work manage ed by AT grew w by: 107 km addiitional local roads, r with a associated streetlights, footpaths, kerbb & channel etc 19 additiona al bridges al signalised intersectionss 17 additiona Transport assset growth occurs o throug gh: • AT capital projects • ets – roads and associate Vested asse ed assets such as streetlights in new growth area as. These are generallyy built by dev velopers butt the respons erating, mainntaining and renewing sibility for ope these assetss is transferre ed to AT • State Highwway projects which w can re s being transfferred to AT to manage and esult in roads a maintain as local road ds. Cyclewa ays and share ed paths connstructed by NZTA are al so transferre ed to AT to manage and d maintain. Table 5 show ws past and projected grrowth in the A AT asset bas se. 6
Table 5: Asset growth summary 2013‐2018 Year Vested assets AT new Major assets added to network: (excl. land) capital 2012/13 $13 m $440 m Manukau Carpark building, State Highways revoked 2013/14 $39 m $518 m Tiverton/Wolverton, EMU depot and first trains 2014/15 $36 m $558 m EMU trains, AMETI, Panmure and Manukau stations 2015/16 $40 m $422 m Otahuhu Bus Interchange 2016/17 $40 m $493 m Pukekohe Interchange, Te Atatu Road 2017/18 $40 m $410 m Albany Highway Upgrade Consequential opex New transport assets, from whichever source, bring consequential operations, maintenance and renewals requirements. The AMP estimates that 1.5% more assets are added to the network each year. The financial impact of this is shown in Table 6. Over the coming 10 years, consequential opex totals $98.1 million in additional maintenance and operations funding requirements, just to keep up with growth in the asset base. Table 6: Estimated consequential opex from asset growth 2015/ 2016/ 2017/ 2018/ 2019/ 2020/ 2021/ 2022/ 2023/ 2024/ 2016-2025 ($million) 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 total Consequential opex from asset growth 1.7 3.4 5.2 6.9 8.8 10.6 12.5 14.4 16.3 18.3 98.1 The rate of growth in transport assets will accelerate as Auckland’s population continues to grow and as initiatives including Strategic Housing Areas increase the supply of new housing. Preliminary calculations suggest that this will increase consequential opex requirements by $600 per dwelling per year. This suggests that the above consequential opex estimates, calculated based on past trends, could significantly underestimate the costs associated with connecting more than 10,000 new homes to the transport network each year, as envisaged by the Auckland Housing Accord. 7
6. Asset Investment and Funding The AMP development has informed the renewal and maintenance components of the 2015 Long Term Plan and Regional Land Transport Plan. Key recommendations and decisions are summarised in Table 7. Table 7: Summary of recommended AMP funding and approved ATP funding Renewals are based on two funding scenarios: (10 year totals, inflated) Recommended (AMP) renewals funding $3.44 billion Accelerated Transport Programme (ATP) $2.51 billion Maintenance and operations: Roads, footpaths, parking $1.15 billion Public transport asset maintenance and operations* $0.71 billion 2016-2025 total AMP network needs $5.30 billion *excludes PT services, corporate, and non-asset opex Asset investment needs, maintenance and operations Maintenance and asset-based operations are the second largest item of AT operational expenditure each year, after public transport service contracts. Asset operations and maintenance requirements are assessed and prioritised in the AMP based on: • For the road network: o Asset maintenance and operations costs, based on competitively tendered service delivery contracts and known historical costs of delivering agreed levels of service o Consequential operational and maintenance requirements of significant new infrastructure planned to be added to the network o Non-asset operational costs (mainly road safety) which are not set in the AMP but are included for context • For the public transport network: o PT facilities maintenance and operations costs, based on the hours of operation, frequency of services, customer levels of service and other cost drivers as set in the Regional Public Transport Plan, and the impact of approved changes to the current levels of service Over the decade from 2016, consequential opex from growth as shown in Table 6 is the major factor driving maintenance and operations funding needs. Approved funding, maintenance and operations The approved ATP budget does not make any provision for the impact of consequential opex. Road maintenance budgets do not increase at all over the coming 10 years as shown in Figure 4 and Table 8. 8
Figure 4: Maiintenance and d operations 2015/2016 2 too 2024/2025, Approved A ATP funding Table 8: Apprroved ATP fun nding for maintenance andd operations 20155/ 2016/ 201 7/ 2018/ 2019/ 2020/ 20 021/ 2022/ 22023/ 2024/ 2016-2025 ($million) 20166 2017 20118 2019 20020 2021 2022 2023 22024 2025 total Roads mainttenance andd 114 4 114 11 4 114 11 14 115 115 115 1115 115 1,145 asset-based d operations Public transp port maintenance 65 64 68 8 69 71 1 72 73 7 74 775 77 708 and asset-baased operations Asset investment needs, n ren newals AT determin nes its recom mmended renewals progra amme by using a Renew wals Optimisaation Model to t estimate the cost of re enewing asssets in future years based d on: • Renewing asssets in the year y in which h they fall intto “very poor” condition • y fall into “poor” conditionn. Critical as Renewing crritical assets in the year iin which they ssets include front of housse public tran nsport assetss and assetss such as briddges where tthe impacts of o asset failure are high. • Accounting for f new asse ets added to the road and d public trans sport networkks Renewals in nvestment neeeds do not change c steaddily over time e, because assets a were nnot built at a steady rate in the past a and have diffe erent conditio on profiles a and expected d lives. Current spen nding on renewals is around $200 miillion each ye ear and the AMP A forecast sts the need for f spending at close to th his level in ea ach of the co oming three yyears. From m 2018/2019, renewals neeeds increas se. At the recom mmended AM MP level of re ng, asset condition is ma enewal fundin aintained andd the proportion of assetss in very poor condition is maintained at a 1% or lesss, as shown in Figure 5. 9
Figure 5: Asset condition, actual 2013‐2015 and forecast 2016‐2025, recommended AMP renewal funding Approved funding, renewals In the Accelerated Transport Programme , renewals funding has been approved at close to recommended levels for the first three years. However in the seven years from 2018/2019, renewals funding is set at a level significantly lower than AT’s recommendation. AT’s Renewals Optimisation Model is used to analyse the impacts on asset condition of the approved budget. The results of this analysis are shown in Figure 6. Beyond 2018/2019, AT will not be in a position to maintain assets in their current condition with approved levels of funding. By 2025, the proportion of assets in very poor condition will have increased to 9.4%. Figure 6: Asset condition, actual 2013‐2015 and forecast 2016‐2025, approved ATP renewal funding 10
Assets in “veery poor” con ndition provid de a lower leevel of service, reducing customer c sattisfaction. Reduced R renewals expenditure ma ay also bring g higher risk aand increase ed whole-of-llife costs, thrrough increased need forr maintenance e and through asset cond dition deterio orating more steeply beca ause renewaals did not tak ke place at the optimal ttime. The gap betw TP renewals funding is shown in ween recommended AMP renewals ffunding and approved AT d Table 9, in the context of Figure 7 and o asset dep reciation. Figure 7: Reco ommended AMP A renewalss funding andd approved AT TP renewals fu unding, in conntext of depre eciation Table 9: Reco MP renewals funding and aapproved ATP ommended AM P renewals fu unding 2012/ 2013/ 2014/ 20116- 2015/ 2016/ 2017/ 2018/ 2019/ 2020/ 2021// 2022/ 20233/ 2024/ ($million, inflatedd) 20133 2014 2015 2 20025 2016 2017 2018 2019 2020 2021 20222 2023 20244 2025 actuaal actual bu udget tottal Renewals AMP n/a n/a n/a n 205 232 236 284 329 374 408 436 4599 479 3,4442 recommendaation Renewals 199 200 193 1 198 228 240 206 236 254 264 287 2999 300 2,5511 approved AT TP Shortfall n/a n/a n/a n 7 4 -4 78 92 120 144 149 1600 179 9 931 Depreciation n 261 2 293 308 328 334 331 335 345 364 3733 386 3,3397 (network asssets) If renewals aare funded at a lower leve el, asset con ndition deteriorates as shown in Figurre 8. This coompounds the shortfall in maintenan nce and operations fundiing, because e assets in pooor conditionn also cost more m to operate and maintain. 11
Figure 8: Summary of condition impacts: recommended AMP renewals funding and approved ATP renewals funding 7. Network Asset Risk Transport asset risks include death and serious injury risks. The list of negative outcomes that could result from transport asset failure includes: • Injury or death to transport users, operators or members of the public • Reduced customer satisfaction, through impacts on safety, accessibility, convenience, reliability and/or resilience • Damage to infrastructure or property • Reduced public transport patronage • Increased operating and maintenance costs • Environmental impacts (e.g. pollution of waterways, air or soil) AT has prepared an Asset Risk Management Plan which identifies the key transport asset risks and sets out how those risks are managed and controlled by AT activities. AT is represented on the Auckland Infrastructure Lifelines Group, which has identified priority routes and transport facilities and their potentially vital contribution in extreme events including earthquake, volcano, tsunami and cyclone hazards. 12
8. The One N etwork k Road Classiificatio on Network classsification an nd priority setting has an increasing ro ole in road asset manageement. The One Ne etwork Road Classification (ONRC) iss a joint initiative of NZTA A and Local GGovernment NZ to establish nattionally conssistent prioritiies to inform asset management plan nning, investm ment choices s and maintenance e and operattional decisio ons. AT has completed initial ONRC requirements in i ts AMP 2015 5-2018, inclu uding: Classsifying the Auckland A roa ad network ba ased on the function of each e road in tthe network Mea asuring the current perforrmance of the e AT network using the ONRC O perforrmance measures Devveloping a tra ansition plan to guide full integration of o ONRC into o planning, m management, financial and delivery processes in thee 2018 AMP The ONRC cclassificationn shows that Arterial and Regional roa ads make up p 18% (1,3144 km) of AT’s s network by length, but ccarry 72% of traffic as sho own in Figure e 9. Figure 9: ONR RC classification of the AT network by rooad length an nd road use (v vehicle km traavelled) Working to a nationally agreed a road classification c n system is an a opportunitty for AT to fuurther improv ve Asset Managemen nt Planning and a to build th he evidence linking costss, risks and le evels of servvice. NZTA expeccts that ONR RC will be the e basis for alllocation of its n to maintenaance and ren s contribution newals of local roads ffrom 2018 on nwards. This s represents a shift from subsidising AT’sA programmme, to co-innvesting in ervice on AT roads, based achieving a ffit for purposse level of se d on their importance in tthe national network. 9. Mov ing Tow wards AMP 2 2018 For the first tthree years of o the 2015 Long L Term P s has been aapproved at levels close Plan, funding for renewals to the recommmendations in the AMP. AT’s ongoi ng programm me of asset condition c moonitoring and annual renewals wo ork programm ming will allow cessary to continue to delliver levels of service and w re-prioritissation as nec d manage riskk over this pe eriod. The next lonng term plann ning cycle, leeading to pubblication of th he 2018-2028 8 Asset Mannagement Pla an, provides an opportunity to addresss the signific cant issues ra aised by the proposed future shortfal l in funding from f Year 4 of the ten-ye ear Long Terrm Plan. 13
The asset management and risk mitigation tasks set out in Table 10 will ensure continuous improvement in Asset Management during the 2015-2018 period, and build the evidence base for a reassessment of funding levels in the 2018 AMP. Table 10: Asset management issues and risks 2015‐2018 Issue/risk Management/mitigation tasks Increased requirement for asset Additional monitoring, risk management and management planning reporting activities to manage higher levels of risk and to meet new ONRC requirements Annual updates of the AMP including key indicators such as customer satisfaction, health and safety issues, network condition and performance Approved (ATP) maintenance and Reprioritising work from lower to higher risk impact asset-based operations funding assets eg. defer renewals of lower volume local does not provide for the impacts of roads in order to prioritise arterials and collectors, asset growth reduce maintenance standards for some assets Approved (ATP) renewals funding Analysis of the consequences resulting from the from 2018/2019 forward does not level of funding proposed in the LTP, and the impact meet recommended (AMP) of the shortfall relative to the needs identified in the renewals needs AMP Work closely with Auckland Council and NZTA to ensure that AT’s funding needs are clear, and that tradeoffs between cost, risk and level of service are transparent Levels of service for some assets Re-assess investment needs and levels of service. cannot be sustained at current Consult on any proposed significant changes levels of funding Revisit the agreed levels of service and funding envelope consequences in the 2018-2021 funding round Close monitoring of asset condition, network risk and customer satisfaction trends Forecasting of the links between funding and trends in customer complaints and asset integrity 14
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