Arts Council England
lefttopWiFi in Public Libraries in England Impact Evaluation and Case StudiesDecember 2017Peter R StonesRose BarracloughContentsSummaryBackground to the projectImplementation Impact EvaluationCase StudiesSummaryInvestment in the national infrastructure of libraries through the WiFi in Libraries strategic funding has provided a demonstrable increase in digital opportunities within the library sector, and the intent to ensure all digital provision within libraries is fit for purpose has broadly been achieved. Increases in the ambition and scope of available digital services offered in Nottingham, Shropshire, and London Borough of Redbridge case studies are representative of outcomes across the programme. The programme has better enabled library services to arrest declining levels of attendees by increasing provision of coding clubs, IT buddy systems, and 3D printing and other digital programmes. While nationally library attendances are declining, the programme has indicated correlations between improved digital offers and new memberships especially in the 0-18 and 19-64 age ranges. In ensuring a broadly equitable national WiFi provision, either via first time installation or upgrades, there are now opportunities for future collaborative working and learning across library services. Additionally, there is increased potential for services to participate in national digital schemes such as the British Library Single Digital Presence, British Library Living Knowledge Network and BBC Civilisations. The programme did identify difficulties for services due to WiFi investment - specifically installations where services did not anticipate sudden increased digital traffic or the physical reach of the WiFi (see Cumbria case study). Where issues arose, it has highlighted the need for digital provision to be proportionate to a services’ geography, usage levels and staffing expertise.Qualitative responses to the evaluation have highlighted an aspirational step change in the desire to provide digital services and activities utilising WiFi and digital connectivity. Future programmes to reinforce and support aspiration in this field, not only in arts and cultural activity, but in skills and workforce development would be welcome to build on infrastructure projects.The evaluation of the programme has highlighted the importance of capturing participation data. Gaps in data collection prior to investment have prevented cross year comparisons for many services. Capacity to compare device usage, engagement levels, eBook lending and new membership are enablers to libraries making future funding applications, or the case against service cuts. The ability to demonstrate demand, current participation levels, project management and expertise in digital technology are also enablers to accessing additional funding streams such as Arts Council England funding, trusts and foundations, local government development funds and Government initiatives. Lack of a distributed evaluation document prior to investment is reflected in applicants using differing data ranges to collect data, and therefore data is not comparable for some applicants.Background to the projectPublic library services in England are delivered by 151 library authorities. They are resourced and run by local authorities that receive their funding from the Department for Communities and Local Government through council tax and other locally generated fees and charges for services. Library funding is not ring-fenced and it is a matter for each authority to determine how much they spend on libraries. Libraries support wider Government agendas by facilitating digital access to employment opportunities and Universal Credit & Welfare Reform claims which require internet access, providing accredited health information and signposting and reading programmes promoting learning and literacy. The provision of WiFi enables libraries to support the Digital by Default agenda, including contributing to the target of total digital inclusion by 2020. One of the key recommendations from the Independent Library Report for England (published on 18 December 2014) was that central Government should make funding available to extend WiFi access for all public libraries in England. Increased provision would enable libraries to meet a growing demand for digital services, assist in the creation of a national digital library network without impacting on local decision-making and allow library authorities to have access to a similar platform of resources, which can encourage greater savings through collaboration and consolidation. Following the publication of the report, a joint taskforce, Leadership for Libraries, was set up which reports to the Local Government Association and Ministers. One of the key objectives and priorities for the taskforce remains to support the creation of a national digital library network, which was agreed at the first meeting on 10 March 2015. As of March 2015, up to 1200 out of approximately 3000 libraries in England had no access to WiFi. Some libraries that already had WiFi required an upgrade to achieve the benchmark technical specification. Where libraries were previously WiFi enabled they noted an increase in use of resources, higher customer satisfaction and an increased ability to bid for income generating resources. Increased access would also allow the provision of e-lending within libraries.An Equality Analysis of the WiFi in Libraries investment noted digital exclusion remains prevalent amongst older people and people with disabilities. Through increases in more flexible, diverse and comprehensive means of delivering and accessing online content and services in safe trusted public spaces available to all, it was stated investment in WiFi infrastructure could be partially address these barriers to access. In the 2015 Budget, it was announced that the government would provide ?7.4 million funding to support libraries in England to provide internet access and WiFi. Up to ?7.1 million was allocated for capital funding. Three per cent was allocated to Arts Council England to administer the scheme, including the provision of technical expertise.The prime objective was to ensure that all public libraries in England provide free Wi-Fi access to the public. The secondary objective was for those libraries that already have Wi-Fi installed to upgrade their equipment to achieve the benchmark technical specification, and where bidders demonstrate value for money and/or an efficiency measures. The funding was for installation or upgrade of Wi-Fi on a one-off basis only. Local authorities were required, where necessary, to provide resources for the continued connection and maintenance of the kit.Implementation Any Tier 1 local authority in England was eligible to bid for the WiFi funding in static public libraries that they ran wholly or in partnership with other bodies at the time of application. This included staff led public service mutuals, community mutuals and trusts, which had been commissioned to deliver the library service on behalf of the local authority. Local authorities were also able act as a sponsor or coordinator on behalf of an individual or group of community/volunteer only libraries which were outside their usual provision.Local authorities were eligible to apply for funding for both installation and upgrades though they were required to have a clear and separate rationale in their bid. In allocating funds the first priorities were libraries without any WiFi and secondly those libraries with WiFi seeking an upgrade.Outside of the scope of the available funds were:Mobile librariesOther types of library (Academic, Educational, Prison)Devolved AdministrationsCo-locations in non-library spacesPayment of monthly bills Computers or peripherals facilities/devices such as monitors, keyboards, tablets, mobiles etc not required for the core provision of free access to WiFiProgrammes of activity – including those that exploit free WiFi accessProject costs funded prior to the date of application and after the closing date for funded activityBuilding fabric cablingBuilding infrastructure/powerThe application process was administered through Arts Council England’s standard application portal. The process was designed on a principal of light touch requirements both internally and externally to exert a minimal burden on the applicant but satisfy all public expectations. It was agreed the guidance should reflect the libraries and local authority sectors rather than adopting a standard Arts Council England approach. Arts Council England acknowledged that technical knowledge was not held in-house but remained central to the application and assessment process. This risk was mitigated utilising the Government Digital Service guidance developed from the original DCMS business case. Agreement that the technical specification would be descriptive guidance rather than a prescriptive benchmark, which set expected levels of implementation but allowed local flexibility.All projects were to be completed by 31 March 2016 in accordance with Department for Culture, Media, and Sport requirements. Sector intelligence was based on a DCMS/SCL survey from January 2015. Arts Council England’s governance ensured key documents such as the Project Plan, Risk Register and Equalities Analysis were available early on in draft form, which could be developed rather than reproduced by the Project Team.Consultation with stakeholders (Taskforce, DCMS, SCL, LGA, Socitim) both early on during the project and during implementation ensured that issues such as eligibility were understood by the sector and agreed.Promotion of the programme used existing Arts Council communications channels and website, pre-project presentations to SCL Seminar and 6 regional briefing sessions reaching 65 authorities. From a sample of 68 grant recipients, feedback for the implementation process stated 80 per cent perceived Arts Council England’s explanation of the eligibility criteria as very well delivered, with 19 per cent stating is was well delivered, and 1 per cent stating no opinion. (Fig 1)From a sample of 68 grant recipients, feedback for the implementation process stated 69 per cent perceived Arts Council England’s explanation of the application process as very well delivered, with 28 per cent stating is was well delivered, and 3 per cent stating no opinion. (Fig 1)From a sample of 68 grant recipients, feedback for the implementation process stated 77 per cent perceived Arts Council England’s management of individual applications as very well delivered, with 20 per cent stating is was well delivered, and 3 per cent stating no opinion. (Fig 1)Feedback from the Libraries Taskforce and DCMS partners received in April 2016 noted the effective organisation of the project team and implementation plan, with project delivery ‘over and above expected outcomes’. Feedback highlighted potential areas for improvement in the extent to which Arts Council England could be prescriptive in library IT practice post installation, specifically the set-up of WiFi access to enable ease of access without multiple login screens or passwords. center489585000(Fig 1) Arts Council England WiFi in Libraries Sample Feedback, 2016A sample of qualitative feedback on implementation indicates an overall positive response to Arts Council England’s administration of the process: noting availability, knowledgeand response as key strengths:‘Lauren Taylor [Arts Council England, Project Assistant) has been a great help and support throughout this process and always responded very quickly to any queries we have had.’ (City of York Council)‘As the timescale was so tight anything that helped us to meet the deadline was of great benefit. The workshop session before we put in the application was incredibly useful. Plus the WiFi team have been supportive throughout and knowing we could contact them about any queries was a great help.’(Kirklees Council)‘Have been happy with process, and availability of ACE support to help with problems and queries.’ (Reading Borough Council)‘The process was very smooth and effective.’(Rutland Council Council)Qualitative feedback also highlighted issues encountered during the implementation process:‘…the time constraints placed upon us, particularly around the procurement and deployment of the equipment, has proved a significant challenge internally…’(Wiltshire Council)‘Though the application process/form was simplified for this project, it was still very time consuming process. This is particularly true for those of us implementing the project in a large number of locations. Having to enter details for each manually (including into this form) is wasteful.’(Kent County Council)‘Very short timeframe when resources at councils are short. To fund & deliver in 6 months within internal resources is significant stretch.’(Buckinghamshire County Council)Feedback on implementation indicates the programme benefitted from an administratively efficient project team and a well-prepared advice and workshop lead in. Despite concerns regarding the available timeframe, applicants acknowledged that the necessity of using the investment before the end of the 2015/2016 financial year was unavoidable. Impact Evaluation3.1 The project ran from June 2015 until May 2016 (initially until March 2016, but extended to May to allow for final payments and process evaluation). By the end of the project 69 applications had been received plus 3 supplementary applications. A total of 70 awards were made totalling ?2,718,583. 70 authorities received funding, 1019 libraries either had new installations of WiFi (488) or received upgrades (531). By March 2016 99.3 per cent of English libraries were providing free public access to WiFi, an increase of 27 per cent from the 72 per cent figure before the Project started. The very small number of libraries remaining without WiFi access were subject to a range of practical but credible factors that prevented its installation within the time frame of the project.right22987000(Fig 2) WiFi availability within Tier 1 Local Authority Library Services Pre and Post InvestmentIn March 2017, all recipients were asked to complete and return an impact survey as part of a process evaluation examining the success of the programme’s implementation. A subsequent, independent impact evaluation will review the extent to which the programme has had a wider and longer term impact on the public libraries it has supported, in terms of service provision and benefits to users. The aims of the evaluation survey were to:understand the extent and types of use that funded libraries have made of WiFi in their servicesassess the impact of the WiFi in libraries programme across England produce policy and practice relevant lessons about how WiFi can be used to support and extend service delivery in public librariesDue to fragmentary data collection and incomplete survey returns sampling of complete or comparable data has been used to reflect wider trends. Survey returns are indicative of wider issues in data collection for library services, however increased data from 2016/17 period suggests changes to digital infrastructure has improved collection methods. The percentage of libraries able to report on a range of digital engagement has increased significantly between 2014 and 2017. Further interrogation of this data with the involved services would clarify if this is due to the project upskilling staff in data collection, better data collection technology or a combination of the two. Of the 50 survey responses received only 1 funded installation or upgrade is no longer in service. Thurrock East Tilbury Library received a new installation but was stated to have been destroyed by fire in January 2017, resulting in a building closure. The continuation of a WiFi infrastructure despite financial pressures across the library sector indicates a long-term commitment to digital provision. Furthermore, of the 50 survey responses received there are 134instances of WiFi being upgraded in individual libraries since initial investment via the WiFi in Libraries project. Of the 134subsequent upgrades, 7 were new installations at the time of Arts Council England investment. The 134 individual libraries who have since upgraded their systems comprise 11 local authority tier 1 services. This is 15 per cent of the total awardees. Sampling of survey return data indicates decreases in attendance at both local authority and community run services between 2014 and 2017. 7035804826000735330-13589000Despite trends indicating decreases in attendee figures, the number of unique devices connecting to the library WiFi across a sample of available responses increased between 2014 and 2017. The average number of unique connections for 124 individual libraries in 2014/15 was 818 per annum. The same sample provides an average number of unique connections of 983 per annum in 2016/2017. This is an average increase of 165 unique connections per library. Of the 542 individual libraries which could provide survey data for the period 2016/17 the average number of unique device connections was 1887 per annum. Within the 542 individual responses, 163 were installations due to the programme, with an average number of unique connections of 2411 per annum in 2016/17.The survey demonstrates increased digital connectivity with attendees in 2016/17, with notably higher average connectivity levels in libraries receiving installations than in libraries where upgrades were funded. Increases in individual digital connections are complimented by an increase in the percentage of libraries offering WiFi enabled programmes, courses, clubs and sessions. center1333500(Fig 3. Percentage of WiFi enabled programmes being offered by grant recipients)Attendance at WiFi enabled programmes, courses, clubs and sessions have also increased year on year within those surveyed.center825500Available data indicates strong immediate increases in the amount of WiFi enabled programmes being run, and in attendees, at applicants receiving upgrades. Building on established audiences and infrastructure. Where infrastructure was installed increases in available programmes and classes rose comparably to upgraded libraries but engagement levels have built more slowly. Engagement with digital resources (outside of pre-planned programmes and events) has also risen amongst applicants to the WiFi programme. Data received demonstrates an average increase of 364 per cent in eBook loans between 2014 and 2017 per service. Case StudiesFive projects were selected as case studies from the survey responses received. Each demonstrates a different investment impact: sustainability, engagement, digital ambition, increased demographics and unforeseen benefits. These case studies provide insight into the advantages of investing in, and maintaining, a strong digital offer tailored for the individual service and communities they support.The 5 case studies selected are:Staffordshire Libraries and ArtsNottingham City CouncilLondon Borough of RedbridgeShropshire LibrariesCumbria Libraries4.1 Staffordshire Libraries and ArtsArts Council Investment: ?82,450Project specifications:Staffordshire Libraries applied for an upgrade to its WiFi system, for 40 out of the 43 libraries within Staffordshire, and for the implementation of WiFi in 2 libraries that did not have WiFi capability. The remaining 1 library not included for installation or upgrade was scheduled to move out of its building in February 2016 and no new location had been identified for it at the date of application. Outcomes:At the time of application Staffordshire Libraries was implementing a major transformation programme to ensure the on-going sustainability of the library service for the future, with a strong emphasis on localities. The development of the virtual offer available throughout the library service was to enable digital inclusion and skills development, enable customers to access digital resources and provide equality of access for households which have no connectivity. Staffordshire Libraries stated in their application to having a strong partnership with the Adult and Community Learning Service which runs basic IT and follow-on IT courses in libraries using library equipment and facilities. It also utilises the WiFi to run courses for people using their own equipment, and it is experiencing difficulties using the current WiFi due to long download speeds and the inability to complete some essential tasks. Staffordshire Libraries also provides access to Eduroam; a secure, world-wide roaming access service developed for the international research and education community which allows students, researchers and staff from participating institutions to obtain internet connectivity from their personal device when visiting a library. Improvements in the WiFi offer were intended to provide a better connection to the Eduroam service for students and educators.Total visitor numbers dropped across the service during the 3 years monitored by the Arts Council survey, however new memberships were higher than average in all 3 ranges (0-18, 19-64, 65+).left47434500Decreasing attendance figures are representative of earlier stated national trends. However significantly higher than average new memberships in age ranges 0-18 and 19-64 may represent movement toward new ways of engaging previously unconnected communities as Staffordshire Libraries becomes increasingly community focused. The applicant acknowledges in its qualitative response to the survey that ‘During the time of transfer [23 community run libraries] focussed on running and operating a library. As our library volunteers in the Community Managed Libraries become more confident they are starting to focus on additional, value added services.’ Focusing on access and training post installation and upgrade is an enabler to increased long term access. The applicant states, ‘During 2016/17 we had 59 volunteer IT Buddies who arranged 1-1 sessions with library customers in libraries using the library WiFi to help customers use and access their own portable electronic devices.’ Staffordshire’s evolving service demonstrates the importance of investment in the correct digital offers and roll out to enabling new engagement, and maintaining the overall sustainability of the service long -term. Future data collection on new membership, and how this is reflected in overall visitor figures, would allow for specificity when aligning digital offers with community led business models. 4.2 Nottingham City CouncilArts Council Investment: ?96,600Project specifications:Nottingham City Council applied for an upgrade to its WiFi network across its service. Funding would be used to expand the Wi-Fi audience and enable the council to develop Bring Your Own Device training alongside the libraries’ digital training programmes. An upgrade would enable the council to provide online facilities to citizens to address the range of council, government and partnership services. Nottingham City Council applied to specifically upgrade the WiFi infrastructure, the self-enrolment and account authentication process, and content filtering and security.Outcomes:At the time of application Nottingham City Council’s WiFi offer did not meet Arts Council England’s requirements of providing free and available WiFi access to anyone entering its libraries. It was not available to non-library members and was only available after manual staff-set-up. An additional WiFi Cloud service was available at only 1 of 15 library sites and for a maximum of 3 hours per day. Since 2014 the council has seen a marginal drop in the number of overall visitors to the libraries services, however the drop is lower than the average for all applicants surveyed.right5031740Since implementation of the service upgrades digital engagement has increased in respect of both number of unique device connections and number of total devices connected to the WiFi. Increases in digital connectivity have been matched by similar increases in the number of sessions being provided and participants.300990065722500Increases in participant levels in response to increases in the volume of digital courses indicates the service are meeting a local need as a direct result of the upgrade investment. Nottingham City Council’s qualitative response to the impact survey also identified areas of increased opportunity and engagement, specifically: increased flexibility in space usage, staff time released from internet admin duties, increased statists available, Bring Your Own Devise WiFi printing and flexibility in the provision of One2One learning support previously offered at networked devices. The Council’s upgrades have led to a widespread increase in digital participation within the library. There are positive indicators that the council intends to build on this innovation and utilise the increased capacity of its staff. Future upgrades of the network bandwith are mentioned in its survey response. 4.3 London Borough of RedbridgeArts Council Investment: ?13,486Project specifications:Redbridge Libraries had been offering a free WiFi service to customers since 2009. Its application for funding was to enable an upgrade to the WiFi provision and meet the recommended Technical Specification as provided by the Government Digital Service.Its ambition was to enable Redbridge Libraries to meet future demands on the service as digital devices become cheaper and more routinely available to the residents in the borough.Outcomes:At the time of application Redbridge Libraries’ most recent upgrade to its WiFi system was in 2013.Since then broadband usage across the service had risen from 4262 users per month to 9582. Alongside tablet workshops to tackle digital exclusion, Code Club for children and an eBook offer, the demand and usage of Redbridge Libraries’ WiFi capacity was substantial. Despite trends indicating a general decrease in library attendance nationally, Redbridge Libraries has witnessed an increase in the total number of visitors since 2014. There is correlation between increasing visitor levels post WiFi investment and increases in the number of unique devices connected, the total number of devices connected, the total minutes spent online, and an increase in eBook downloads since 2014/15.Year of provision (Correct at 31 March)Number of devices connected (unique)Number of devices connected (total)Minutes spent online (total)Minutes spent online (average)2014/151380915900120,188,86511312015/162136044899460,557,50111462016/1732178864958106,735,5191216Year of provision (Correct at 31 March)Number of devices connected (unique)Number of devices connected (total)Minutes spent online (total)Minutes spent online (average)2014/151380915900120,188,86511312015/162136044899460,557,50111462016/1732178864958106,735,5191216Increases in the total number of visitors are also supported by consistent levels of new membership across all age demographics for all 3 years of the survey data.It is stated in the qualitative response that the catalyst for Redbridge Libraries’ success in maintaining and building upon engagement at all levels through a strong digital offer was the WiFi in Public Libraries Programme. It enabled them to provide:Higher capacityConsistently reliable performanceiPad and Samsung tablet trainingLibrary online resource trainingIncreased participation with its children’s Code ClubTechnology sessions for partially sighted peopleThe first ‘Tech Ilford’ day [including mobile, tablet, and Twitter training, an app development workshop and Raspberry Pi Stations]The second ‘Tech Ilford’ day [including virtual reality workshops, python programming, ‘Lab Central’, a dedicated tech space at Redbridge Central Library for people of all ages to meet, try new technologies and innovate together and a Technology lending library]Increases in the scale of ambition due to WiFi improvements are also evident in the qualitative response with the following projects planned:WiFi printingMedia and audio sessions fully managed using only WiFiVirtual Reality workshops Coding workshops using Raspberry Pi devicesMinecraft sessions over WiFi to introduce coding techniques using gamificationRedbridge Libraries’ use of the WiFi in Public Libraries investment demonstrates the value in the continued renewal of a strong digital offer in retaining attendees, engaging new membership and providing innovative participatory activities. 4.4 Shropshire CouncilArts Council Investment: ?18,312Project specifications:Shropshire Council applied for funding to install WiFi at 11 library branches that had no WiFi provision and upgrades at 5 branches to meet acceptable technical standards. New installations and upgrades were stated to respond to challenges of rural geography and levels of deprivation across the county. They were also stated to respond to infrastructure issues in the current offer, with WiFi installed between 2006 and 2008 providing a low connectivity speed and running on servers that were no longer sufficiently supported. Outcomes: Prior to WiFi in Public Libraries investment Shropshire Council’s ambitions to develop digital offers in 3D printing, code clubs and WiFi printing were being hindered by poor or low quality WiFi service. Furthermore, the available data prior to investment was either non-existent or represented only a fraction of the wider service because only 5 of 16 libraries involved in the project previously had WiFi provision. The outcomes therefore are derived predominantly from the qualitative response.Total visitor numbers across the service remained consistent from 2014 to 2017, demonstrating a continued community engagement with the service; decreasing only 8 per cent. Statistics for digital engagement were limited due to unavailable data prior to installation, however eBook downloads increased 268 per cent across the period, demonstrating a strong engagement with an increasingly strong digital offer. Additionally, available data for new membership levels demonstrate continued strong levels of engagement in the 0-18 and 19-64 ranges. centerbottomFuture evaluation of the engagement of these demographics with the available digital offer would be useful in identifying any correlation between increased membership and the WiFi investment. However, Shropshire Council’s qualitative response to the survey highlighted a reduction in the usage of fixed PC facilities due to an improved WiFi offer. It is noted that WiFi investment had also provided unexpected benefits such as freeing physical space for other activities which are space dependant, and use of the Library Management System has become increasingly mobile. Enabling a more flexible approach to carrying out onsite stock work is one of a number of non-public benefits of investment in the digital infrastructure.Shropshire Council intends to adopt a new library strategy in 2017, and will be developing an action plan for the service that will look to build on Wi-Fi across libraries. The intention to provide Wi-Fi printing facilities and to expand the Code Club offer are now practical and will form part of the ongoing strategy. 4.5 Cumbria County CouncilArts Council Investment: ?71,865Project specifications:Cumbria County Councilapplied for funding to install WiFi at 42 libraries. As part of CCC’s digital strategy it was intended that it would provide a fully digital library service. Due to financial restraints the council had not been able to implement this prior to the WiFi in Public Libraries investment. Outcomes:left3488690Across Cumbria Library Services the total number of visitors has decreased by 24 per cent since 2014, however digital engagement has increased. There have been increases in the number of devices connected (unique), substantial in the number of devices connected (total) per year, eBook downloads, and the volume and participant engagement in digital skills curse and WiFi enabled programmes. right633412500righttop00left952500New membership has decreased across all age demographics between 2015/16 and 2016/17, suggesting that while user habits are shifting toward using the new infrastructure, there are other barriers to engagement that are not addressed through the WiFi provision.The qualitative response to the survey notes that provision of the WiFi has met with positive responses from the public and that establishing a connection has been easy. However issues have arisen in Barrow Library due to capacity overloads causing a slow connection and the reach of the WiFi has not always been sufficient to cover the entire building. In the Copeland area it has caused issues within the wider community, notably people gathering around building premises late into the evening to use the WiFi. Two of the branch libraries have been asked that the WiFi is turned off due to the anti-social behaviour of users. In a fourth library, onsite at a school, the WiFi has been permanently turned off as pupils could access it. Cumbria County Council’s application represented one of the largest installation projects funded by the WiFi in Public Libraries programme therefore it is expected it would encounter increased issues regarding provision than where upgrades were taking place. As demonstrated in other case studies and throughout the impact evaluation long term investment in a broad and strong digital offer can, where conditions permit, arrest declines in visitor figures and generate strong rises in new membership. Positively the Council notes in its return that a wider demographic is now visiting the Whitehaven library with observations showing a greater number of 16-30 year olds now visiting the library. Cumbria County Council’s wider digital strategy is already demonstrating a return on engagement figures since implementation, and future evaluations focusing on the development of a programme of activity to build on this engagement would be welcome. ................
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