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FAMILY VIOLENCE PROTECTION AMENDMENT BILL 2014

Family Violence Protection Amendment
              Bill 2014

                           Amended Print


              EXPLANATORY MEMORANDUM


                               Clause Notes

                      PART 1--PRELIMINARY
Clause 1   sets out the purposes of the Bill.

Clause 2   provides for the commencement of the Bill. The provisions of
           this Bill commence on 18 September 2015, if they are not
           proclaimed to commence earlier.
           The default commencement date is just over 12 months after the
           introduction of the Bill to ensure that justice agencies have
           sufficient time to complete all the implementation activities that
           are necessary for the reforms to commence, in particular the new
           process to provide for interim orders to become final without
           further hearing.

         PART 2--AMENDMENT OF FAMILY VIOLENCE
                   PROTECTION ACT 2008
Clause 3   inserts new definitions of finalisation condition and working day
           and substitutes the definition of publish in section 4 of the
           Family Violence Protection Act 2008.
           The existing definition of publish in the Family Violence
           Protection Act 2008 provides that publish "means publish in any
           newspaper; or publish by means of television, radio or the
           internet". This definition is too narrow to achieve its original
           policy objective to ensure those seeking protection through the
           legal system had their privacy protected, and that victims were
           not dissuaded from seeking protection because of fear of public


571438                                1          BILL LC AMENDED 17/9/2014

 


 

exposure, particularly where they or their family member has a public profile. The new definition will achieve this objective and better reflect how the publication restrictions in Part 8 of the Family Violence Protection Act 2008 have been applied in practice. The definition is aimed at broad and public dissemination of information and the new definition of publish will not limit the lawful exchange of information that occurs between and amongst government and non-government agencies in the normal course of their work providing protection, services or support programs to the parties, the purpose of which is to ensure the safety of affected family members and their children. Clause 4 amends the definition of final order in subsection (2) of section 11 of the Family Violence Protection Act 2008 so that it includes final orders taken to have been made under new section 78A. Clause 5 repeals paragraph (f) of section 24 of the Family Violence Protection Act 2008, which limits when a police officer responding to a family violence incident may apply to a Sergeant or a higher rank officer for a family violence safety notice (FVSN) to before 9.00am or after 5.00pm on a weekday, or on a weekend or public holiday. The effect of this amendment is that a Sergeant or a higher rank officer may issue a FVSN at any time of the day on any day of the week. Clause 6 substitutes subsection (3) of section 31 of the Family Violence Protection Act 2008 so that the first mention date for an application for a family violence intervention order (FVIO) commenced by FVSN is extended to 5 working days after the notice is served on the respondent. Clause 7 substitutes subsection (4) of section 44 of the Family Violence Protection Act 2008. Section 44 allows a police officer who intends to make an FVIO application and is seeking an interim order to make the application by telephone, fax or other electronic communication if the application is made either outside of court hours or from a remote location. 2

 


 

Existing subsection (4) requires the police officer to file an application made by such means with the court before the first mention date for the application. New subsection (4) updates this requirement to provide that where the interim order includes a finalisation condition the application must be filed as soon as practicable and in any other case before the first mention date for the application. Clause 8 inserts new sections 56A to 56C in the Family Violence Protection Act 2008. These sections establish a new process under which an interim order may become a final order without further hearing. Subsection (1) of section 56A provides that, subject to section 56C, if the court makes an interim order it may include a condition (finalisation condition) providing that the interim order becomes a final order, with the same conditions as the interim order, 28 days after being served on the respondent. The court may include a finalisation condition in an interim order if satisfied that it would be appropriate in all of the circumstances of the case to include such a condition. Subsection (2) of section 56A sets out a list of non-exhaustive factors that the court must have regard to in considering whether it is appropriate to include a finalisation condition. These are set out in the paragraphs in subsection (2). Broadly, these factors relate to the vulnerability of the affected family member and to the legal complexity of a matter and are indicators that the continued involvement of the court may be warranted in finally determining the FVIO application. Paragraph (a) refers to whether there is a history of family violence. Paragraph (b) refers to the existence of recognised family violence risk factors. There are a number of evidence based risk factors relevant to determining the risk of family violence reoccurring or escalating. These include certain characteristics relating to the victim, the perpetrator, or their relationship. Paragraph (c) refers to the existence of-- · other proceedings between the parties under the Family Violence Protection Act 2008; or 3

 


 

· other proceedings between the affected family member and any other persons under the Family Violence Protection Act 2008; or · other legal proceedings that may affect the conditions or operation of the FVIO (e.g. proceedings relating to a child protection order, Family Law Act proceedings or criminal proceedings). Paragraph (d) refers to the views of the police officer or other person (if applicable) who made the application for the affected family member as to the inclusion of the finalisation condition. The paragraph that follows refers to whether the affected family member has obtained legal advice. The paragraph that follows refers to whether the giving or service of the interim order and the giving of the explanation of the interim order under section 57(1) will enable the particular affected family member and respondent to sufficiently understand the matters set out in section 57(1). The paragraph that follows refers to the existence of factors making it desirable that the particular respondent attend a hearing for the final order. A court that is making an interim order must consider risk factors like those in paragraphs (a) and (b) in deciding if it is satisfied that including a finalisation condition is appropriate in all the circumstances. It must also consider other matters such as the existence of other legal proceedings and how these might interact with any order that the court might decide to make. Further, the police officer making the FVIO application on behalf of the affected family member may have a view as to the inclusion of a finalisation condition in the particular case. For example, a court making an interim order may consider that the circumstances of the parties are likely to change substantially in the coming weeks due to pending court proceedings or medical assessments and accordingly, in all the circumstances it would be prudent for the court to reconsider the application and the conditions on any future final order once the parties' circumstances are more settled. Another example might be where a magistrate is making an interim order in circumstances where there has been a history of family violence and that violence appears to have escalated in 4

 


 

recent days. There may also be relevant family violence risk factors present that might suggest further escalation of violence is possible. In such circumstances, a magistrate might want the application to return to court for final determination to ensure that any conditions imposed on a final order are appropriate to the circumstances at that later time. A further example might be where a magistrate is making an interim order and is satisfied that the parties' circumstances are fairly stable and the type of conditions that are appropriate on the interim order would also be appropriate for any final order. In these instances, the magistrate might decide to include a finalisation condition. Subsection (3) of section 56A provides that when including a finalisation condition, the court must specify a period for which the final order is to be in force having regard to the matters set out in subsections (2) and (3) of section 97 of the Family Violence Protection Act 2008. If the court specifies the period for which a final order is to be in force, when making the decision about the duration of that period, the court must take into account the matters in subsections 97(2) and (3). These matters include: that the safety of protected person is paramount; any assessment by the protected person of the level and duration of risk from the respondent; and any other relevant matters raised by the respondent. As an interim order that includes a finalisation condition may become a final order without further hearing, it is appropriate that the court have regard to the matters in section 97(2) and (3) when specifying the period for which the final order is to be in force. Subsection (4) of section 56A provides that a finalisation condition does not take effect if the respondent cannot be served personally with the interim order. This will ensure that respondents to interim orders including such conditions know an order has been made against them and that they must act if they want the matter to return to court for final determination. This will prevent such respondents from being subject to a final order without having had any personal contact with either the court or police. 5

 


 

Section 56B makes provisions for when a finalisation condition ceases to have effect. Subsection (1) of that section provides that a finalisation condition ceases to have effect within the 28 day period after the interim order is served on the respondent on the first of the following circumstances occurring-- · on the filing by the respondent of a notice to contest the FVIO application; or · on the filing by the protected person or applicant of a written notice, or the making of an oral application to the court, for withdrawal of the FVIO application; or · on the making of an application to vary or revoke the interim order; or · on the varying of the interim order by the court on its own motion. Subsection (2) of section 56B provides that if a finalisation condition ceases to have effect, the interim order continues in force until it ends in accordance with section 60 of the Family Violence Protection Act 2008. Subsection (3) of section 56B provides that, as soon as practicable after the finalisation condition ceases to have effect, the court must ensure the FVIO application is listed as soon as practicable, and give notice to the parties. Section 56C prohibits the court from including a finalisation condition in an interim order in relation to certain respondents and in certain circumstances. Subsection (1) of that section provides that the court must not include a finalisation condition in an interim order if-- · the court reasonably suspects that the respondent is a child; or · the court reasonably suspects that the respondent has a cognitive impairment; or · the court reasonably suspects that the respondent either holds a firearms authority, weapons approval or exemption, or is in possession of a firearm or prohibited weapon; or 6

 


 

· the court is satisfied that there is an order in force in relation to a child of the affected family member or respondent under the Family Law Act and the interim order would be inconsistent with that order; or · the affected family member does not consent to the inclusion of a finalisation condition. Subsection (2) of section 56C provides that a relevant court within the meaning of section 126 of the Family Violence Protection Act 2008 must not include a finalisation condition in an interim order if satisfied that, on making a final order, it may be required to make an order under section 129. Relevant courts are the Family Violence Court Divisions and other specified venues of the Magistrates' Court that are empowered to order certain respondents to final orders to have their eligibility for counselling assessed and to order eligible respondents to attend counselling. This amendment will mean that finalisation conditions are not included in interim orders where a relevant court is satisfied that it may be required to order the respondent to have their eligible for counselling assessed. As such, the new process under which interim orders may become final orders without further hearing will be able to operate with the court mandated counselling programs at relevant courts in relation to those respondents for whom the court is satisfied it would not be required to make an assessment order under section 129. For example, if the court was satisfied upon making the interim order that there was no counselling approved by the Secretary under section 133 of the Family Violence Protection Act 2008 that it is reasonably practicable for the respondent to attend, then the court may include a finalisation condition in the interim order. Subsection (3) of section 56C provides that a court must not include a finalisation condition in an interim order made under section 173 of the Family Violence Protection Act 2008. The Bill makes no provision to prohibit the inclusion of finalisation conditions in interim extension orders made under section 107 of the Family Violence Protection Act 2008 on the basis that under section 11 of the Family Violence Protection Act 2008, orders made under section 107 are not interim orders but are defined as final orders. As such, a finalisation condition cannot be included in an order made under section 107. 7

 


 

Nothing in the Bill prohibits a finalisation condition being included in an interim variation order made under section 101 of the Family Violence Protection Act 2008 as these orders are defined to be interim orders under section 11 of that Act, if it is otherwise appropriate for the court to do so. Clause 9 substitutes subsection (1) of section 57 of the Family Violence Protection Act 2008, which provides for explanation of interim orders. New subsection (1) provides that if an interim order is made, the appropriate registrar of the court must give the respondent and the affected family member a written explanation of the order. The information which must be included in the explanation is set out in paragraphs (a) to (h) of subsection (1) and includes-- · the purpose, terms and effect of the interim order; · the consequences and penalties that may follow if the respondent fails to comply with the terms of the interim order; · for the respondent, that the interim order is a civil order of the court and the affected family member cannot give permission to contravene the interim order; · how the order interacts with a Family Law Act order or an order under the Children, Youth and Families Act 2005; · if the court has varied, suspended, revoked or revived a Family Law Act order because it is inconsistent with the interim order, the purpose, terms and effect of the variation or suspension; · any relevant family violence services offering legal, emotional or practical support that may be available to the affected family member or respondent; · if the interim order does not include a finalisation condition-- · when the interim order expires and the means by which the interim order may be varied; and · the process for deciding the final order; 8

 


 

· if the interim order includes a finalisation condition-- · that the interim order will become a final order 28 days after it is served on the respondent; and · the circumstances in which the interim order will not become a final order; and · the consequences of the interim order becoming a final order, including the effect on any firearms authority or weapons approval held by the respondent or weapons exemption which applies to the respondent. This largely replicates existing subsection (1) of section 57. However, the provision has been expanded to cover additional matters that must be included in the written explanation when an interim order includes a finalisation condition and amended to recognise that some matters are not relevant to these interim orders. New subsection (1A) of section 57 provides that a written explanation under subsection (1) in respect of an interim order that includes a finalisation condition may change the explanation required by paragraphs (a) to (e) to accord with the effect of that condition. Clause 10 amends section 58 of the Family Violence Protection Act 2008, which sets out some procedural requirements relating to interim orders made by electronic application. Section 58 provides that when an FVIO application is made by telephone, fax or other electronic communication, the court is required to inform the police officer of a number of things which are set out in paragraphs (a) to (d). These include the terms and period of operation of the order and the date, time and venue of the court for the first mention for the application. New paragraph (c) of section 58 provides that if an interim order does not include a finalisation condition the court is required to provide the police officer with-- · the venue of the court for the first mention date for the FVIO application; and · the date and time of the first mention date for the FVIO application. 9

 


 

Clause 11 amends section 59 of the Family Violence Protection Act 2008 so that the requirement applying when the court makes an interim order for the hearing to be listed for decision about the final order as soon as practicable does not apply to interim orders including a finalisation condition. Clause 12 inserts new subsection (2) in section 60 of the Family Violence Protection Act 2008. Section 60 provides for when an interim order ends including-- · if the court makes a final order and the final order includes an order that the interim order continues until the final order is served on the respondent, when the final order is served on the respondent; or · if the court makes a final order and the final order does not include an order about the interim order continuing, at the time the final order is made; or · if the court refuses to make a final order in relation to the application, at the time of the refusal; or · if the interim order is revoked by the court, at the time of the revocation; or · if the application for the FVIO is withdrawn, at the time of the withdrawal. Subsection (2) provides that section 60 does not apply to an interim order that includes a finalisation condition, unless that condition has ceased to have effect under section 56B. Clause 13 inserts new section 78A in the Family Violence Protection Act 2008. Subsection (1) of section 78A provides that if an interim order becomes a final order by effect of a finalisation condition-- · the court is taken to have made a final order; and · the final order is taken to have been made on the day after the day that is 28 days after the order was served on the respondent; and · the interim order ends. Subsection (2) provides that section 96 (which relates to the explanation of final orders) does not apply to a final order taken to be made under subsection (1). 10

 


 

Clause 14 inserts new subsection (3) in section 109 in the Family Violence Protection Act 2008. Section 109 provides that a respondent may only apply for variation or revocation of a FVIO with the leave of the court. New subsection (3) provides that the court may grant leave for the variation or revocation of a final order taken to have been made under new section 78A if-- · within 28 days of being served with the interim order, the respondent did not file a notice to contest the application or apply to have the order varied or revoked; and · the court is satisfied that there are exceptional circumstances that justify the granting of leave. Clause 15 substitutes subsection (2) of section 122 of the Family Violence Protection Act 2008. Section 122 enables respondents to final FVIOs to apply for rehearing of proceedings in certain circumstances. New subsection (2) provides that if the court is satisfied on the balance of probabilities, that the grounds set out in subsection (1) have been established-- · the court may rehear the matter; or · if the final order is taken to have been made under section 78A, the court may hear the matter for decision about a final order. This amendment is necessary to ensure that respondents to interim orders that become final orders by effect of a finalisation condition may apply to have the court hear the matter and make a decision about the final order. Clause 16 inserts new paragraphs (ab) in both subsection (1) of section 123 and subsection (2) of section 123A of the Family Violence Protection Act 2008. Sections 123 and 123A establish offences relating to contraventions of FVIOs. Subsection (1) of section 123 sets out when the offence of contravention of a FVIO applies. Subsection (2) of section 123A makes similar provisions in relation to the offence of contravention of a FVIO intending to cause harm or fear for safety. Specifically, these offences apply if the respondent has 11

 


 

been served with a copy of the order or has had an explanation of the order given to them in accordance with section 57 or 96 of the Family Violence Protection Act 2008. New paragraphs (ab) provide that, for a contravention of a final order that is taken to have been made under section 78A service of a copy of the interim order with the finalisation condition is sufficient notification and the respondent may be liable to be prosecuted for the contravention of the final order. This amendment is necessary as while a respondent to such an order may have had an explanation under section 57, they will not have been served with a copy of the final order. Clause 17 inserts a new heading in Part 8 of the Family Violence Protection Act 2008, which provides for restriction on publication of proceedings in the Magistrates' Court under that Act and FVIOs made by that court. Clause 18 amends paragraph (a) of subsection (2) of section 166 of the Family Violence Protection Act 2008, which prohibits publication of a report containing particulars likely to lead to the identification of a particular court venue, a child who is a party to or a witness in a proceeding under the Family Violence Protection Act 2008 or the subject of an FVIO, or any other person involved in the proceeding or the subject of the FVIO. The amendment to paragraph (a) provides that publication is not prohibited if the court has made an order under section 169 of the Family Violence Protection Act 2008 that the locality or particulars may be published. Clause 19 substitutes section 169 of the Family Violence Protection Act 2008, which allows the court to make a publication order. New subsection (1) of section 169 provides that the court may make a publication order only if the court reasonably considers it is in the public interest to allow publication of the locality, particulars or picture and it is just to allow publication in the circumstances. The test for making a publication order is the same as in existing section 169, but the provision requires amendment as a result of the amendments to section 166 which will empower the court to make a publication order in relation to matters involving a child as well as an adult. 12

 


 

New subsection (2) of section 169 provides that before making a publication order in relation to a child who is a party to or a witness in a proceeding or who is the person who is the subject of the FVIO the court must have regard to the views of any parent or guardian of the child. This requirement is new and is a consequence of the court being empowered to make a publication order in relation to matters involving a child. Clause 20 inserts new Division 2 in Part 8 of the Family Violence Protection Act 2008, which provides for an exception to the general restriction on publication in section 166 by or with the consent of adult victims, and a related exception for subsequent publication. New section 169A contains new definitions of adult victim, permitted content, post-notice or order offence, pre-notice or order offence and relevant offence for the purposes of Division 2 of Part 8 of the Family Violence Protection Act 2008. Adult victim is defined to mean as adult who is a protected person under a FVSN or FVIO and was a victim in relation to a relevant offence. Permitted content in relation to a report relating to a FVSN or FVIO is defined to mean all or any of the following-- · the fact that the FVSN or FVIO applies to a person who has been charged with or convicted or found guilty of a relevant offence; · the fact that an adult victim is identified in the report as a protected person in relation to the FVSN or FVIO, and a victim of a relevant offence or an alleged relevant offence; · the types of restrictions imposed by the FVSN or FVIO; · the details of and conduct constituting a relevant offence or alleged relevant offence. Post-notice or order offence, in relation to a FVSN or FVIO, is defined to mean-- · a contravention of the FVSN or FVIO under section 37, 37A, 123, 123A or 125A; or 13

 


 

· any other offence where the conduct constituting the offence would constitute a contravention of the FVSN or FVIO under section 37, 37A, 123, 123A or 125A. This definition means that the exception to the publication restrictions in section 169B applies where there is or was a FVSN or FVIO in place at the time of the offence, both where the respondent was charged, convicted or found guilty for a contravention offence under the Family Violence Protection Act 2008 and where there was no charge, conviction of finding of guilty for a contravention offence but there was a charge, conviction or finding of guilt for another family violence related offence. In the case of the latter, where all the other requirements are met, this will enable reports published under the exception in section 169B about other family violence related offences to refer to the FVSN or FVIO. Pre-notice or order offence, in relation to a FVSN or FVIO, is defined to mean an offence where the conduct that constituted the offence-- · led to the making of the FVSN or FVIO; and · would have constituted a contravention of the FVSN or FVIO under section 37, 37A, 123, 123A or 125A if the notice or order had been in place at the time of the offence. This definition means that the exception to the publication restrictions in section 169B applies where there was no FVSN or FVIO in place at the time of the offence but the offence led to the making of such a notice or order. Where all the other requirements are met, this will enable reports published under the exception in section 169B about these other family violence related offences to refer to the FVSN or FVIO. Relevant offence is defined to mean a pre-notice or order offence or a post-notice or order offence. New section 169B establishes the exception to the restrictions on publication in section 166 of the Family Violence Protection Act 2008 by or with the consent of the adult victim. Subsection (1) of section 169B provides that section 166(2) does not apply to the publication in accordance with section 169B and in the prescribed circumstances of permitted content in a report relating to a FVSN or FVIO by-- 14

 


 

· an adult victim who is or was protected by the notice or order; or · a person who has the consent in writing or recorded form of an adult victim protected by the notice or order to the publication. Subsection (2) of section 169B provides that an adult victim cannot consent to the identification of any other person protected by the FVSN or FVIO or as being involved in a proceeding relating to the notice or order. For example, an adult victim cannot consent to a child that is protected by the FVIO being identified in the report as being protected by that order. Subsection (3) of section 169B provides that an adult victim may withdraw the consent to the publication of a report at any time before publication of the report. Subsection (4) of section 169B provides that a person is not permitted to publish a report on the basis of the consent of an adult victim after the consent is withdrawn unless the person did not have a reasonable opportunity to prevent publication after the consent was withdrawn. Subsection (5) of section 169B sets out the prescribed circumstances in which a report can be published, which are as follows-- · a FVSN or FVIO is or was in place that protects or protected the adult victim and applies or applied to a person who has been charged with or convicted or found guilty of a relevant offence; and · in relation to the charge for a relevant offence, the charge was still pending at the time of publication; and · in relation to a conviction or finding of guilt for a relevant offence, the conviction or finding had not been set aside or quashed at the time of publication. New section 169C establishes the exception to the restrictions on publication in section 166(2) of the Family Violence Protection Act 2008 for subsequent publication. Specifically, section 169C provides that section 166(2) does not apply to the publication by a person of permitted content in a report relating to a FVSN or FVIO (the subsequent report) if-- 15

 


 

· the subsequent report is published after the publication in accordance with section 169B of a report relating to the FVSN or FVIO (the original report); and · if the original report was not published by an adult victim, the person who publishes the subsequent report reasonably believes at the time of publication of the subsequent report that the original report was published with the consent of the adult victim. Clause 21 inserts new subsection (2) in section 201 of the Family Violence Protection Act 2008. Section 201 provides that if a court makes, varies, extends or revokes a FVIO the appropriate registrar of the court must arrange for: the order to be drawn up and filed; a copy of the order to be served on the respondent; and a copy of the order to be given to the other relevant parties and persons set out in paragraph (c). Subsection (2) provides that if an interim order including a finalisation condition becomes final in accordance with new section 78A, a copy of this order is not required to be served on the respondent or given to a person listed in paragraph (c). Clause 22 inserts new paragraphs (fa) in subsection (2) of both sections 209 and 210 of the Family Violence Protection Act 2008. Sections 209 and 210 enable the making of rules by the Magistrates' Court and Children's Court respectively. New paragraphs (fa) provide that rules may be made for or with respect to forms, notices and written explanations. Clause 23 inserts section 226 in the Family Violence Protection Act 2008. Subsection (1) of section 226 provides that sections 56A to 56C, as inserted by section 8 of the Family Violence Protection Amendment Act 2014, apply to an FVIO application made on or after the commencement of that section. Subsection (2) of section 226 provides that section 31, as amended by section 6 of the Family Violence Protection Amendment Act 2014, apply to FVSNs issued on or after the commencement of that section. 16

 


 

PART 3--AMENDMENT OF PERSONAL SAFETY INTERVENTION ORDERS ACT 2010 Clause 24 inserts a new definition of working day and substitutes the definition of publish in section 4 of the Personal Safety Intervention Orders Act 2010. To align the publication restriction regimes in the intervention order legislation, the new definition of publish being substituted in the Personal Safety Intervention Orders Act 2010 is the same as that being substituted in the Family Violence Protection Act 2008 by this Bill. Clause 25 amends subsection (2) of section 123 of the Personal Safety Intervention Orders Act 2010, which prohibits publication of a report containing particulars likely to lead to the identification of a particular court venue, a child who is a party to or a witness in a proceeding under the Personal Safety Intervention Orders Act 2010 or the subject of an PSIO, any other person involved in the proceeding or the subject of the PSIO, or a picture of the child. The amendments provide that publication is not prohibited if the court has made an order under new section 125A that the locality, particulars, or picture may be published. Clause 26 inserts new section 125A in the Personal Safety Intervention Orders Act 2010 to provide for the making of publication orders. Subsection (1) of section 125A provides that the court may make a publication order only if the court reasonably considers it is in the public interest to allow publication of the locality, particulars or picture and it is just to allow publication in the circumstances. Subsection (2) of section 125A provides that before making a publication order the court must have regard to the views of any parent or guardian of the child. Clause 27 inserts new paragraphs (fa) in subsection (2) of both sections 183 and 184 of the Personal Safety Intervention Orders Act 2010. Sections 183 and 184 enable the making of rules by the Magistrates' Court and Children's Court respectively. New paragraphs (fa) provide that rules may be made for or with respect to forms, notices and written explanations. 17

 


 

PART 4--REPEAL OF AMENDING ACT Clause 28 provides for the repeal of the Bill on 18 September 2016. The repeal of this Bill does not affect the continuing operation of the amendments made by it (see section 15(1) of the Interpretation of Legislation Act 1984). 18

 


 

 


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