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Multi-Agency Public Protection Arrangements

Annual Report 2002-3

By Paul Goggins, Parliamentary Under-Secretary for

Community and Custodial provision in the Home Office

As the recently appointed Minister with responsibility for

the MAPPA, I am pleased to introduce this, the second,
annual MAPPA report. It is clear that in the last year
(2002/3) the multi-agency public protection
arrangements (the MAPPA) continued to play an
important role in what remains one of this government’s
highest priorities – the protection of the public from
dangerous offenders.

As someone with many years experience of working in

the field of child protection, I am particularly impressed
by the important contribution the MAPPA are making to
strengthen collaboration between agencies at a local
level where the focus is on the dangerous offender.
These improvements must, however, impact on the
protection of children. As the tragic death of Victoria
Climbie showed, an effective multi-agency partnership
is crucial and the MAPPA are an important element.

To ensure greater consistency in the MAPPA across

the 42 Areas of England and Wales, and to prepare for
the implementation of measures contained in the
Criminal Justice Bill, we published the MAPPA
Guidance in April. Building on good practice, that
Guidance clarified the structure of the operational
arrangements as well as the importance of formal
review and monitoring – of which this annual report is a
vital part. The Criminal Justice Bill will strengthen the
MAPPA in two ways. First, it will make the involvement
of other agencies part of the statutory framework.
Second, it will introduce the involvement of lay people –
those unconnected with day-to-day operation of the
MAPPA – in reviewing and monitoring the MAPPA.
Annual reports and this new lay involvement show the
Government’s commitment to explaining how the often
sensitive and complex work of public protection is

The Government is also strengthening the protection of

the public with other measures in the Criminal Justice
Bill. They include new sentences for dangerous
offenders to prevent their release if they continue to be
dangerous. Additionally, the Sexual Offences Bill will
tighten up sex offender registration, introduce a new
offence of ‘grooming’, and enable sex offender orders
to be imposed on violent offenders who pose a risk of
causing serious sexual harm – thereby extending sex
offender registration to them.

I commend this report to you and congratulate all the

agencies and individuals who have contributed to the
achievement of the MAPPA locally in your local Area.

Paul Goggins
The National Picture

The most important work undertaken within the MAPPA

is done locally, led by the police and probation – who
act jointly as the ‘Responsible Authority’ in your Area –
and in each of the 42 Areas of England and Wales. The
experience and good practice upon which this work is
based began in the 1990s – most significantly as a
result of the closer working relationship required by the
Sex Offender Act (1997). The Criminal Justice and
Courts Services Act (2000) formalised that relationship
and built on the existing experience by requiring the
police and probation services to establish
arrangements (the MAPPA) for assessing and
managing the risks posed by sexual and violent
offenders. The Act also required the Responsible
Authority to publish an annual report on the operation of
those arrangements. This report, covering April 2002 to
March 2003, is the second annual report.

The importance of partnership

Key to the development of the MAPPA in the past year

has been the closer involvement of other agencies,
such as housing, health and social services, working
alongside police and probation. The truly multi-agency
nature of the MAPPA and the collaboration which
underpins it is to be strengthened further by the
Criminal Justice Bill. The Bill will place a ‘duty to co-
operate’ on a wide range of organisations including
local health authorities and trusts; housing authorities
and registered social landlords; social services
departments; Jobcentres; Youth Offending Teams; and
local education authorities. In addition, the Prison
Service will join the police and probation services and
become part of the MAPPA ‘Responsible Authority’.
Supporting and co-ordinating the development of the
MAPPA throughout the 42 Areas of England and
Wales, is the National Probation Directorate’s Public
Protection Unit (PPU). This Unit acts as a central point
for advice and, increasingly, involvement in the
management of difficult cases. These include, for
example, UK citizens who have committed serious
offences abroad and return to this country without
anywhere to live. The Unit is also able to provide
financial support when the risk management plans
make exceptional demands upon local resources.

Involving the public

MAPPA developments in the next 18 months will also

include the appointment by the Home Secretary of two
‘lay advisers’ to each Area. The eight Areas of England
and Wales which have been piloting these
arrangements since January (Cumbria, Greater
Manchester, Durham, South Wales, Dorset,
Hampshire, Surrey and West Midlands) report that they
add real value. Lay advisers will contribute to the
review and monitoring of the MAPPA which is
undertaken by each Area’s Strategic Management
Board – the work of which you can read more in this

The purpose of appointing ‘lay advisers’ is to ensure

that communities understand more of what is done to
protect them and that those involved professionally with
the MAPPA are aware of the views of the community.
The lay advisers will not ‘represent’ the community in
the way, for example, that local councillors do, nor will
they be involved in operational decision-making. And,
given the sensitivity of much of what the MAPPA does,
especially with the few offenders who pose a very high
risk of serious harm to the public, it is not practicable for
the general public to be involved. Lay advisers will,
however, ensure an appropriate and a practical level of
community involvement.
1. Area Summary

MAPPA Offenders

This year the annual report provides a more detailed

breakdown of the number of sexual and violent
offenders who are covered by the MAPPA in your Area.
As last year, the figures include the number of
registered sex offenders. Because sex offender
registration is for a minimum of 5 years (and generally
for much longer) the figures are cumulative. This is why
they have increased – by 16 per cent in England and
Wales. Only a very small proportion (about six per cent
throughout England and Wales) are considered to pose
such a high risk or management difficulty that they are
referred to the highest level of the MAPPA – the Multi-
Agency Public Protection Panels (the MAPPP).

Figures alone do not, of course, tell the whole story.

The anonymised case studies illustrate the practical
work of the MAPPA, and demonstrate the preventive
action which can be taken. Prior to the MAPPA, action
of this kind was mainly taken by one agency alone, with
the effect that on occasion offenders’ behaviour which
might have triggered preventative action went
unnoticed. The multi-agency approach of the MAPPA
helps ensure that if an offender does breach the
condition of the licence under which they were released
from prison or a court order prohibiting certain activities,
then action to enforce the condition or order and protect
the public can be taken more swiftly.

If you are interested in reading the reports of other

Areas, they will be published on the National Probation
Service’s website
(under the public protection section) with all of them.
The Northamptonshire Multi Agency Public Protection
Arrangements are founded on the principle that the
community is best safeguarded by an interagency
approach to risk assessment and risk management.
Within Northants, the partner agencies in criminal
justice, social care and health, child protection, police,
probation, prison service, youth offending team and
housing work together to enhance the protection
afforded to individuals and communities from the risks
posed by sexual, violent and other dangerous offenders
and persons who may cause serious harm.

The Sex Offender Act (1997) introduced joint working

arrangements between the Police and Probation
Service to monitor and reduce the risks posed by
registered sex offenders. The remit of the Public
Protection Panel was then widened to include
potentially dangerous offenders. Information sharing is
vital to effective risk management and the Public
Protection Panel drew in other agencies to share
information and also to share skills and resources in the
management of risky individuals. Since then, the panel
has developed and formalised these arrangements
and, in accordance with the Criminal Justice and Court
Services Act (2000) the Public Protection Panel
became the Multi Agency Public Panel (MAPPP). The
term Multi Agency Public Protection Arrangements
(MAPPA) relates to the individual risk assessment and
management arrangements developed by each partner
agency as well as the overarching protocol for co-
operation between agencies.

Public protection through the management and, where

possible, reduction of risk is the paramount aim of
MAPPA. In pursuing this aim, MAPPA respects the
legal and human rights of individuals, whether victims,
offenders or members of the public. The MAPPA
recognises issues of diversity and difference and
strives to ensure that individuals receive fair and
equitable treatment. To ensure accountability, the work
of MAPPA is carefully recorded and decisions are
based on judgements against clear and agreed
evidence-based criteria. The MAPPA strives to give
individuals the means to control their own behaviour
and reduce their risk through the provision of effective
interventions. In the case of individuals who are unable
or unwilling to respond positively to such interventions,
the MAPPA imposes external controls on their
behaviour such as post prison licence conditions or the
restrictions afforded by a Sex Offender Order.

This document provides details of the arrangements

made in Northants and the work of MAPPA and
MAPPP in the past year. It also provides contact points
for any further enquiries including agencies other than
Police and Probation.
2. Roles and Responsibilities
As the “Responsible Authorities” management and in working with to share information on individuals
under the Criminal Justice and Court sex offenders. They also deliver the as well as contribute from their
Services Act (2000) the Police and Community Sex Offender Treatment knowledge base and skill in working
Probation Service share the Programme: a 240-hour programme with persons who suffer mental
chairmanship of the Strategic that enables men who have illness or personality disorder. The
Management Board of MAPPA. The committed sexual offences to referral procedures for this team
following agencies are signatories to understand and control their abusive means that over the past year, the
the MAPPP Protocol and are behaviour. The Manager of the High MAPPP has not been able to access
represented both at strategic Risk Team is a panel member who, this resource as part of the risk
management level and as panel for the past year, has taken management plan for any offenders
members. responsibility for chairing the they have discussed. The Strategic
MAPPP. The MAPPP Manager also Management Board is pursuing this
A Detective Sergeant and Detective chairs Local Risk Management issue.
Constable, both based in Force Meetings and oversees all referrals
Intelligence, represent Northampton to MAPPP. The Manager of Northamptonshire has seven
Police on the Multi Agency Public Bridgewood House is also a panel Borough Councils, each with its own
Protection Panel. These Officers risk member who is able to share Housing department. A
assess all registered sex offenders information on the progress or representative of Northampton
using an evidence-based risk deterioration of offenders as well as Borough Council is a panel member.
assessment tool. They visit providing approved premises for This panel member is able to offer
registered sex offenders at home offenders who need both a high level information about tenants which is
and ensure the sharing of of support and restriction to reduce vital to risk assessment and they
information both within the Police their risk. An Assistant Chief Officer also give advice on housing matters
and with other agencies, in particular is also a panel member; making an invaluable contribution to
Social Care and Health’s children’s representation at this high level risk management plans.
services. Through their assessment ensures that resources follow risk.
of risk the Police identify individuals The Youth Offending Teams
whose risk indicates the need for co- The Prison Service is also adopting manage young offenders who may
operation between two or three of OASys to risk assess all prisoners present a risk to others but who may
the partner agencies. The Police and through the sentence also be damaged by their childhood
work closely with the Probation management process works with the experiences and in need of
Service frequently undertaking joint Probation Service to engage protection from others. The Youth
visits to offenders both in custody prisoners in reducing their risk and Offending Team therefore
prior to release and at home post preparing for resettlement in the undertake a specialist criminal
release. The Police also identify community. The Prison Service justice role that links the work of the
individuals for referral to the MAPPP. supports the MAPPP by releasing Police and the child protection
As panel members the Police personnel, prison officers and agencies. The Youth Offending team
contribute to risk assessment by governors to attend panel meetings is represented on the Strategic
sharing information and skills and to as needed. A Senior Probation Management Board and attends
risk management by actioning risk Officer, from HMP Ryehill, MAPPPs on a case-by-case basis.
management plans. represents the Prison Service on the
MAPPP. HMP Ryehill holds violent Social Care and Health and the
The Probation Service uses the and sexual offenders and offers a Primary Care Trust provide services
Offender Assessment System Sex Offender Treatment programme to vulnerable groups both adults and
(OASys) to risk assess every to prisoners. This panel member children. These include services to
offender whom they supervise or assists by contributing information children in need and their families,
report on to Courts. In addition, on prisoners for example, their older people, disabled people and
Probation Officers use specialist risk disciplinary record and by accessing those with mental health needs. As
assessment tools when assessing resources, for example psychiatric the area of responsibility for Social
violent and sexual offenders. The assessments, on prisoners Care and Health is wide, two panel
High Risk Team supervises all sex registered with the panel. members represent this agency.
offenders and offenders who pose a One member represents Children’s
risk of serious harm. The members One practitioner from the Community Services forming a link with the work
of this team have received specialist Forensic Outreach Team sits on the of the Area Child Protection
training in risk assessment and MAPPP. They are, on occasion, able Committee and contributing to the
risk assessment and management of contributing their own expertise to
individuals where there are concerns the panel and linking with
for children. The Manager of the Psychiatrists and Approved Social
County Approved Social Work Workers countywide.
Service is also a panel member

3. The Operation of MAPPA

There is a co-ordinated structure As noted, the Police use an Within the Probation Service, a team
covering Northamptonshire for the approved risk assessment tool to of specially trained Probation
assessment and integrated risk assess all registered sex offenders. Officers undertake all pre-court
management of sexual and violent Information is shared with other assessments of sex offenders. They
offenders with the aim of securing agencies, in particular the Registry produce Pre-sentence reports that
public protection. In addition to the and Conferencing Service. Visits are include a detailed risk assessment
protocol covering the MAPPP, this made to offenders at their homes to and a report on the defendant’s
structure includes the prison service, check addresses and monitor suitability for treatment. If the
Housing and Employment Services behaviour. When the behaviour of a defendant is assessed as presenting
and the Area Child Protection sex offender has caused concern, a high risk of offending, the courts
Committee. the Police have responded by are asked to impose a prison
seeking a Sex Offender Order. The sentence. The courts are also asked
In accordance with Prison Circular Sex Offender Order was introduced to impose extended periods of
45/95, the Prison Service identifies in the 1998 Crime and Disorder Act. supervision after release to ensure
prisoners who have been convicted It is a Civil Order, applied for and the completion of treatment
of an offence against a child under managed by the Police. An programmes and the protection of
the age of 18 years. When such a application can be made if an the public. As noted, specially
prisoner is transferred between offender is “grooming” potential trained Probation Officers also
institutions or is due to be released, victims, or their families, or engaging deliver a Community Sex Offender
the Probation Service, Registry and in any behaviour that was the Treatment Programme to men as
Conference (Child Protection) precursor to previous offending. The part of a community sentence or
Service and area Social Care and Order is preventative in nature and following a prison sentence.
Health Teams are notified. This can for example, prohibit an offender Research on the effectiveness of this
ensures that individuals who pose a from living with or having programme indicates that it
risk to children are tracked as they unsupervised contact with a child. In significantly reduces risk of re-
move from the prison into the a recent case, an offender, whom we offending.
community and that necessary steps shall refer to as A, had convictions
can be taken to protect children. for sexual offences against children. Violent offenders sentenced to 12
These can involve the disclosure of A had refused to engage in months imprisonment or more, are
information to parents or carers and treatment to reduce his risk and the released from prison subject to
intervention by the Registry and Police obtained a Sex Offender licence and supervised by the
Conference Service. The Probation Order that prohibited A from contact Probation Service. Licence
Service has a protocol with the with children. As a result of conditions can be included which
Employment Service, which is monitoring A, the Police learned that require co-operation with measures
notified in advance when anyone he had attended a children’s party to reduce risk or prohibit behaviours
convicted of a sexual offence is where he had joined in with children for example, contact with victims.
about to be released from custody. playing and had lots of physical Community sentences and post
This ensures that those offenders contact. There was no evidence that release licences are rigorously
who seek assistance in obtaining A has sexually assaulted any of the enforced with breaches resulting in
employment through the children however, his behaviour was court action or recall to prison.
Employment Service are directed to a clear breach of the Sex Offender
appropriate work that does not Order. Evidence was presented to All offenders are risk assessed using
involve contact with children. court and A was sentenced to a OASys. Offenders assessed as
substantial prison sentence. presenting a high or very high risk or
who cause concern to any of the problem. More controlling measures Each case review includes a review
partner agencies are referred to a can include curfews, electronic of the need for continued
Local risk Management Meeting. monitoring, police surveillance or registration. Each MAPPP
These meetings include at a residence at approved premises. discussion is minuted in full. The
minimum Police and Probation and The MAPPP will also hear direct MAPPP minutes are clearly
can also involve any other agency feedback from Victim Contact designated as highly confidential
with an interest in the person being Officers with regard to the concerns however information is shared with
assessed. In cases where there are of victims and the measures needed parties not attending MAPPP
grave concerns or where the to enhance their safety. In a recent meetings when this is necessary to
offender is assessed as presenting case an offender, we shall call him secure the protection of the public.
an imminent risk of serious harm, a B, was nearing the end of a prison The MAPPP has the authority to
referral to the MAPPP follows. sentence for offences of violence disclose information to a wider public
against his family. The MAPPP but in this past year, such action has
The MAPPP meets monthly to heard information from the Victim not proved necessary. While
discuss those cases that are Contact Officer that B’s family were MAPPPs are held monthly, all panel
assessed as posing an imminent risk extremely fearful of his release, as members are committed to attending
of serious harm. As detailed above, he had continued to make threats additional MAPPP meetings at short
all panel members hold managerial against them. B was interviewed by notice should the need arise.
positions in their own agencies. The the Police and repeated his threats;
MAPPP Manager who is a Senior this amounted to an offence. On One case in particular demonstrates
Probation Officer has chaired completion of his prison sentence, the benefits of information sharing
meetings over the past year. In the he was arrested and charged with and disclosure and the external
interests of consistency and further offences. Whilst taking action controls that can be imposed on
objectivity, each MAPPP meeting to reduce B’s ability to carry out his individuals to reduce risk. An
follows a standard agenda. threats against his family, MAPPA offender came to the attention of the
also located specialist psychiatric Police following an incident of
The MAPPP meets once per month, assistance for B to explore the domestic violence. The man, we
with, in general, two to three new possibility of a mental health shall call him C, had a record of
cases considered each time; each is problem and possible treatment. serious sexual offences against girls
subject to a discussion of and as he had been living with the
approximately one to one and half While MAPPP strives to reduce the adult victim of his assault and her
hours. The MAPPP will consider risk of harm presented by those child, he was discussed at the
information and assessments registered it is not possible to MAPPP. C’s relationship with his
provided by practitioners who are eliminate all risk. During the past partner ended as a result of the
involved with the individual. year one offender registered with assault however, the MAPPP
Historical case information will also MAPPP has been charged with an retained an interest in C because he
be sought from the partner agencies. offence of robbery, he has been has shown that he could become
The panel will then decide if the case remanded in custody since May part of a family with a child while
meets the criteria for registration. 2002 awaiting sentence. hiding his past. Shortly afterwards
Where a decision is made to the Borough Council panel member
register, the panel then develops a Individuals who have been reported that C was living with a
risk management plan and registered with the MAPPP are woman, Y, who had a young
designates a lead agency to informed of their registration unless daughter, Z. The Police visited Y and
implement the plan. Risk there are clear reasons not to do so disclosed C’s criminal history. Y was
Management Plans include different i.e. that this would increase risk to dismissive of the risk posed by C.
agency actions or ways of limiting potential victims or the public in The Police then applied for and
the opportunity for an individual to general. obtained a Sex Offender Order that
cause serious harm to others. This prevents C from living with or having
can include decisions about prison Registered cases are regularly any unsupervised contact with Z or
licence conditions that require an reviewed to ensure that decisions any other child.
offender to undertake a treatment are implemented and to take
programme or address his alcohol account of changed circumstances.

4. The Strategic Management of MAPPA
The Multi-Agency Public Protection that establishes reciprocal Police – Detective Chief
Arrangements and the MAPPP are arrangements for MAPPPs within the Superintendent and Detective Chief
overseen by a Strategic region to conduct formal reviews of Inspector
Management Board (SMB), The each other’s cases should serious
SMB represents, at strategic level, harm result from an offence Social Care and Health – County
the member agencies that have committed by an individual Manager of Children’s Services
made a commitment to the multi- considered by MAPPA.
agency management of potentially Youth Offending Team – County
dangerous individuals in Northants. In the past year the SMB has Manager
It is convened and chaired on a recognised that to provide a full and
rotating basis by the “Responsible accountable service the MAPPP Prison Service – Governor
Authorities”, i.e. the Probation Manager position should be a full
Service and the Police. The SMB time position. The partnership Housing - Chief Housing Officer -
meets quarterly and membership is agencies have all committed to Northampton Borough Council
located at Assistant Chief Officer or financing this post and a MAPPP
Chief Officer level. Manager has been appointed and Health - Chief Executive of
will take up post in May 2003. Northampton Primary Care Trust
The MAPPP Manager maintains a
database of all cases registered at The SMB is constituted as follows: Mental Health Trust -Head of Mental
MAPPP and discussed at LRMMs Health Services
and is required to submit regular National Probation Service –
reports to the SMB. Northants has Assistant Chief Officer
signed an East Midlands Protocol


5. Victim Work
Section 69 of the Criminal Justice the management of the offender and offenders from areas in Northants
and Court Services Act 2000 places is conscious of issues of diversity and prohibiting contact. The MAPPP
a statutory duty on the National and difference. Where a victim has been active in cases of domestic
Probation Service to contact victims chooses to be consulted, the Victim violence both in directing the victim
and ask if they wish to be consulted Contact Officer will arrange to meet to support and advice offered by The
about the release arrangements for them at a time and place convenient Sunflower Centre and in securing
violent and sexual offenders to them. This is usually at the home the perpetrator’s removal from the
sentenced to 12 months in prison or of the victim(s). community. Victims are a key focus
more. in all work of MAPPA both in
Victims are entitled to be kept representing their views and in
Specialist staff, Victim Contact informed of the release assisting offenders to accept
Officers, based in two locations north arrangements for the offenders, the responsibility for the harm caused to
and south of the County deal month and general location, and
exclusively with the victims of crime details of any licence conditions that 1
The Sunflower Centre's mission statement
for whom the Probation Service has restrict the offender’s movements is "To protect and empower victims of
a statutory responsibility. The Victim and reduce the impact on the victim. domestic abuse and reduce repeat incidents
Contact Officers make extensive As noted above, the MAPPP has regardless of age, gender, social class,
religious beliefs, sexual orientation, marital
efforts to locate victims whom they acted on direct feedback from status, physical or mental ability, by adopting
then approach in a manner that victims, via Victim Contact Officers, a multi agency response.
respects their wish to be consulted in on licence conditions restricting
their victims thereby enhancing their information and support to victims, of local services and other relevant
motivation to avoid creating more witnesses, their families and friends. organisations.
Victim support provides the Witness The details of the Northampton
Victim Support is the national charity Service, based in every criminal Victim Support scheme and other
for people affected by crime. It is an court in England and Wales, to offer relevant agencies are listed on the
independent organisation, offering a assistance before, during and after a contacts page of this report.
free and confidential service, trial. You can also call the Victim
whether or not a crime has been Supportline - 0845 30 30 900 – for
reported. Trained staff and information and support and details
volunteers at local branches offer
6. Statistical Information
Population figure for Northamptonshire as supplied by the last census in 2001
Registered Sex Offenders per 100'000 population is:

No. of Offenders

i. The number of registered sex offenders on 31 March 2003 200

ii. The number of sex offenders having a registration requirement who were either
cautioned or convicted for breaches of the requirement, between 1 April 2002 4
and 31 March 2003

iii. The number of Sex Offenders Orders applied for and gained between 1 April
2002 and 31 March 2003

(a) The total number of Sex Offenders Orders applied for 1

(b) The total number granted 1

(c) The total number not granted 0

iv. The number of Restraining Orders issued by the courts between 1 April 2002 1
and 31 March 2003 for offenders currently managed within MAPPA

v. The number of violent and other sexual offenders considered under MAPPA
during the year 1 April 2002 and 31 March 2003 (as defined by section 68 [3], 620
[4] and [5])

vi. The number of "other offenders" dealt with under MAPPA during the year 1
April 2002 and 31 March 2003 as being assessed by the Responsible Authority 3
as posing a risk of serious harm to the public (but who did not fall within either
of the other two categories, as defined by s.67 [2b])

vii. For each of the three categories of offenders covered by the MAPPA
("registered sex offenders", "violent and other sex offenders" and "other
offenders"), identify the number of offenders that are or have been dealt with

a) MAPPP - registered sex offenders 11

b) MAPPP - violent and other sex offenders 17

c) MAPPP - other offenders 1

viii. Of the cases managed by the MAPPP during the reporting year what was the
number of offenders:

a) who were returned to custody for breach of licence 3

b) who were returned to custody for breach of a Restraining Order or Sex 1

Offender Order

c) charged with a serious sexual or violent offence 1


MAPPP Manager Northamptonshire Police Headquarters 01604 700700

Wootton Hall
Northampton, NN1 0JQ

Northamptonshire Probation Area Address Phone

Assistant Chief Officer National Probation Service 01604 658082

Northamptonshire Area
Walter Tull House
43-47 Bridge Street
Northampton NN1 1NS

Northamptonshire Police Address Phone

Detective Chief Superintendent Northamptonshire Police Headquarters 01604 700700

Wootton Hall
Northampton, NN1 0JQ

Detective Chief Inspector

Northamptonshire Police Headquarters 01604 700700
Wootton Hall
Northampton, NN1 0JQ

Northamptonshire Victim Support Scheme Address Phone

County Director Northampton Victim Support Scheme 01604 603477
Angel Street, Northampton, NN1 1ED
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