Guide to the implementation of the

CIPM MRA

CIPM MRA-G-01
VERSION 1
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CIPM MRA-G-01

Contents

1. Preface ............................................................................................................................ 1
2. Background..................................................................................................................... 1
3. The CIPM MRA ............................................................................................................. 2
4. Coordination of the MRA.............................................................................................. 3
5. Participation in the MRA................................................................................................ 4
6. Calibration and Measurement Capabilities .................................................................... 6
6.1. General rules for accepting CMCs...................................................................... 6
6.2. Subcontracting of measurements under the CIPM MRA. .................................. 7
6.3. Drawing up CMCs .............................................................................................. 7
6.4. The CMC Review Process .................................................................................. 8
6.5. Publication of the CMCs in KCDB..................................................................... 9
6.6. Review of already published CMCs ................................................................... 9
6.7. CC. Working Groups on CMCs.......................................................................... 9
7. Measurement Comparisons .......................................................................................... 10
7.1. Key comparisons............................................................................................... 11
7.2. Supplementary comparisons ............................................................................. 12
7.3. Monitoring the impact of comparison results on CMC claims......................... 12
8. Quality Systems............................................................................................................ 13
9. Conclusions .................................................................................................................. 14
10. List of acronyms ........................................................................................................... 14
11. Documents related to the MRA .................................................................................... 15
11.1. General information on the JCRB .................................................................... 15
11.2. Guidance on CMC reviews............................................................................... 15
11.3. Guidance on comparisons................................................................................. 16
12. Revision History........................................................................................................... 16

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1. Preface

The present document is meant to be a quick reference guide for those individuals
called upon to implement any aspect of the CIPM MRA. By itself, this document does not
constitute the final recommendation on any aspect of the CIPM MRA process, rather it is
meant to help the users navigate more efficiently through the complexity of the process.

Each chapter is written as a stand-alone reference, in such a way that the user can go
directly to any step of the process without the need of going through the whole document.

2. Background

The advent of the global economy demanded an open, transparent and comprehensive
scheme to provide information on the equivalence of national measurement services and the
technical basis for international trade, commerce and regulatory affairs.

Different regions of the world have created regional agreements trying to achieve this
objective. The national metrology institutes (NMI) of these countries have joined in different
regional organizations driven by geographical, economic or political affinity. These
organizations known as Regional Metrology Organizations (RMO), are also seeking to
improve cooperation among the NMIs of their respective regions.

In response to the demand of an international system to establish the equivalence of

measurements, the General Conference of Weights and Measures (CGPM) in resolution 2
from the 20th meeting, recommends:

 that national metrology laboratories, in collaboration with the BIPM, ensure

that the necessary comparisons between national standards are carried out in
sufficient number to demonstrate international traceability1 of measurement
standards;

1
Presently, it is considered that comparisons are carried out to demonstrate equivalence of the standards
and not traceability.
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 that adequate interconnections are maintained between the comparisons

carried out under the auspices of the BIPM and those carried out by the
regional groups2; and

 that the results of comparisons carried out by the regional groups be

communicated to the BIPM in appropriate form for them to be published by the
BIPM and thereby given wide international recognition.

The International Committee of Weight and Measures (CIPM), responded by

implementing a “Mutual Recognition Arrangement of national measurement standards and of
calibration and measurement certificates issued by national metrology institutes”
(CIPM MRA). The CGPM supported this initiative in resolution 2 from the 21st meeting.

The CIPM MRA was first signed in Paris on the 14th of October of 1999 by the
directors of the national metrology institutes (NMIs) from thirty-eight Member States of the
Metre Convention and the representatives from two international organizations.

3. The CIPM MRA

The CIPM MRA was drawn up with the following objectives:

 to establish the degree of equivalence of national measurement standards
maintained by NMIs;

 to provide for the mutual recognition of calibration and measurement

certificates issued by NMIs; and

 to provide governments and other parties with a secure technical foundation for
wider agreements related to international trade, commerce and regulatory
affairs.

The process through which the CIPM MRA achieves these objectives involves:
 international comparisons of measurements, known as key comparisons;

2
Now known as Regional Metrology Organizations, RMOs
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 regional comparisons of measurements, known as regional key comparisons;

 other regional or bilateral comparisons of measurements known as

supplementary comparisons;

 review of the technical competence of the participants based mainly on the

results of comparisons;

 the implementation and review of quality systems and demonstrations of

competence by NMIs.

See document CIPM-2005/06(REV), for further details on updates and interpretations

made to the original clauses in the CIPM MRA.

The results of this review process are statements of the measurement capabilities of
each NMI, known as “Calibration and Measurement Capabilities (CMCs)”. These capabilities
are published in the BIPM key comparison database (KCDB), maintained by the BIPM and
publicly available on the World Wide Web. This database contains four sections
corresponding to the four Appendices of the CIPM MRA:

Appendix A: List of NMIs and Designated Institutes participating in the

CIPM MRA.
Appendix B: Information on key and supplementary comparisons, including
results when they become available.
Appendix C: Calibration and Measurement Capabilities (CMCs).
Appendix D: List of key comparisons.
Appendix E: Terms of reference of the Joint Committee of the Regional
Metrology Organizations and the BIPM (JCRB)

4. Coordination of the MRA

Overall coordination of the CIPM MRA is in the hands of the BIPM under the
authority of the CIPM. The Consultative Committees (CC) of the CIPM, the Regional
Metrology Organizations (RMOs) and the BIPM are responsible for carrying out the key and
supplementary comparisons.
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A Joint Committee of the Regional Metrology Organizations and the BIPM (JCRB)
was established in February 1998 to support implementation of Part 2 of the CIPM MRA.
Since its first meeting, the JCRB's main activities have been:

 the coordination and management of reviews of NMI Calibration and

Measurement Capabilities (CMCs); and

 the development of policy and guidelines on the operation of the CIPM MRA
to assist the RMOs and the CIPM.

5. Participation in the MRA

The CIPM MRA is open to the NMIs of the Member States of the BIPM, to certain
international and intergovernmental organizations (IGO) invited by the CIPM, and to the
NMIs of Associate States and Economies of the General Conference. This third category
results from the decision of the 21st CGPM to create a category of Associate of the CGPM
(Resolution 3 of the 21st CGPM) with the specific purpose of providing a way of establishing
links to the world's measurement system for those States not yet Members of the Metre
Convention. For a list of the services available to Associate States and the rules for their
participation in the CIPM MRA see the document CIPM-2005/05.

NMI directors sign the CIPM MRA with the approval of the appropriate authorities in their
own country and thereby:
 accept the process specified in the CIPM MRA for establishing the database;

 recognize the results of key and supplementary comparisons as given in the

database;

 recognize the CMCs of other participating NMIs as given in the database;

 mutual acceptance of the calibration and measurement certificates.

It should be noted that signing the CIPM MRA engages the signatory NMIs but not
necessarily any other agency in their country (or economy). The responsibility for the results

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of calibrations and measurements rests wholly with the NMI that makes them and is not,
through the CIPM MRA, extended to any other participating NMI.

Only one institute may sign the CIPM MRA on behalf of a Member State, Associate of
the CGPM or international organization. Where further institutes have been designated by the
appropriate authority to hold national measurement standards, the institution who has signed
the arrangement on behalf of the Member State, Associate of the CGPM or international
organization with jurisdiction over their activities must notify the BIPM so that they can be
identified in Appendix A of the MRA. Document CIPM 2005 -07, describes the procedure for
designation of institutes.

All Designated Institutes (DI) must consider it their own responsibility to demonstrate
conformity with the requirements of the CIPM MRA. More details and examples of NMIs and
their DIs can be found in document CIPM-2005/07. In cases where NMIs or DIs subcontract
portions of their calibrations, measurement capabilities, or CRM certification activities
covered under the CIPM MRA, the criteria found in document CIPM-2005/09 need also to be
fulfilled.

The signatory of the CIPM MRA is the coordinating organization for the country and
takes responsibility for establishing an appropriate mechanism so that the CMCs of designated
institutes do not overlap with others designated at a national level and that they follow the
process of approval established by the JCRB. Only one institute per country can be recognized
as holding national responsibility for a specified capability (quantity, measurand, matrix
environment, measurement range) and competence, for submitting the related CMCs, and for
taking part in the relevant key comparisons.

Finally, NMIs and DIs participating in the CIPM MRA are encouraged to make use of
the CIPM MRA logo by featuring it on their calibration and measurement certificates of
CMCs contained in the KCDB. The Guidelines for use of the CIPM MRA Logo can be found
in document CIPM-2006/04.

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6. Calibration and Measurement Capabilities

In order for CMCs to be approved for publication in Appendix C of the CIPM MRA,
they must first be reviewed and approved by the appropriate Technical Committee/Working
Group3 of the RMO of origin (intra-RMO review process). As stated in paragraph 13 of the
CIPM MRA, NMIs that are not members of an RMO: “Those NMIs that wish to participate in
this arrangement but are not members of an RMO, should either form a new RMO, or for the
purposes of this arrangement, associate themselves with an existing RMO, whichever is the
more appropriate. If neither approach is possible, they should seek to make special
provisions.”

Once this approval is obtained, CMCs undergo an inter-regional review (inter-RMO

review process). The reviews verify the validity of CMCs from the RMOs’ points of views
thus providing the technical confidence required for publication. TC/WGs play a key role in
this process as they conduct the technical review and eventual approval of each CMC
submission. The steps TC/WG chairpersons need to follow in order to carry out this process
are explained hereafter.

6.1. General rules for accepting CMCs

Technical support for the arrangement, as stated in Section 3 of the CIPM MRA, is
achieved mainly through the results of key and supplementary comparisons. Confidence in the
supported measurements is further reassured by the implementation of a quality system.

Key comparisons are designed to provide evidence of the proficiency of NMIs in the
principal techniques in each field. They are selected, conducted and evaluated by the CIPM
Consultative Committees (CCs). Regional key comparisons are conducted by the RMOs
TC/WGs and must follow exactly the protocols of the CC key comparisons. Supplementary
comparisons are undertaken independently by RMOs when CMCs require additional support
not provided by key comparisons.

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While the results of key and supplementary comparisons are the ideal supporting
evidence for CMCs, it is not the intention of the CIPM MRA to have a one-to-one
correspondence between CMCs and comparisons. A key or a supplementary comparison
may provide enough evidence to underpin the uncertainty claims of a group of related CMCs.
How broad this group should be is an issue being considered by the CCs on a continuing basis
(see the terms of reference of the CC WG on CMCs, Terms of References for the CCWG on
CMCs).

In addition to comparison results, the criteria for acceptance of data for Appendix C in
chapter 8 of document CIPM MRA-D-04, lists a number of different possible sources of
information that can be used to support CMC claims, and paragraph 8.1 defines
supplementary specific criteria for CRMs.

6.2. Subcontracting of measurements under the CIPM MRA.

In some cases, a NMI or other designated institute, either for unexpected reasons or on
a continuing basis, may sometimes subcontract a small part of its calibration, measurement or
CRM certification activities under the CIPM MRA to another competent laboratory with
which it collaborates and which acts as a subcontractor.

The criteria to be fulfilled for subcontracting measurements is described in document

CIPM 2005-09, “Subcontracting of measurements under the CIPM MRA”.

6.3. Drawing up CMCs

It is required that all CMCs be submitted in a consistent format. Detailed instructions

on how to draw up these CMC files can be found in the documents section of the JCRB web
page, under chapter 3 of CIPM MRA-D-04 4. The up-to-date lists of services or categories can

3
Groups of technical experts in each area are called “Technical Committees” (TCs) in APMP,
COOMET and EURAMET, and “Working Groups” (WGs) in SADCMET and SIM.
4
Please note that upon request the coordinator of the KCDB, [email protected], is available to
provide advice on the preparation of Excel files.

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be found in the search form of the KCDB, under each metrology area at the top of the page. In
order to assure compliance with the JCRB rules the BIPM may need to make certain
modifications to the CMC files. The allowed BIPM interventions are described in chapter 7 of
document CIPM MRA-D-04.

6.4. The CMC Review Process

The CMC Review Process has two stages:

 Intra-regional review: each RMO defines their procedures for conducting the
CMC intra-regional review. Once the CMCs are approved at the regional level,
it is advisable for the TC/WG Chairperson to send the CMCs to the RMO
representative, who in turn submits them to the JCRB for inter-regional review.

 Inter-regional review: the inter-regional review procedure is explained in

chapters 4, 5, 6 and 10 of CIPM MRA-D-04, and represented in flowchart form
in appendix 1 of the same document.

The CMC review process is carried out through the password-protected website of the
JCRB (www.bipm.org/JCRB). TC/WG Chairpersons in each RMO can obtain a username and
a password from the JCRB Executive Secretary using the contact form, or from their RMO
representatives to the JCRB. Other persons can view this process by visiting the JCRB
website using the guest username and password:

Username: guest
 Password: guest2001

The ability to download the CMC files from this webpage helps identify the correct
version when several are produced after circulation of comments. Once the files are posted for
review, the TC/WG Chairpersons in each area contact each other directly to exchange
comments or concerns (see CC Working Groups on CMCs below). Contact data for all
TC/WG Chairpersons is available in the BIPM web page, under JCRB Directory

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At the end of this phase of the review process, reviewing RMOs send their comments
to the JCRB Executive Secretary through their JCRB representatives. The JCRB Executive
Secretary, in turn, sends them to the representative of the RMO submitting the CMCs under
review. These actions are noted in the website with dates.

In response to these comments, the originating RMO sends a revised CMC file which
is posted in the JCRB website for final approval. Reviewing RMO representatives and
TC/WG chairs may download the file to verify that their comments and concerns have been
appropriately addressed, prior to final voting for approval. The voting process works on a
consensus basis. The RMOs may abstain from voting, but one negative vote is enough to
reject the CMC. It is worth noting that not all RMOs need to participate in the inter-RMO
review process for it to be valid as the review process is done on a voluntary basis. The final
approval, is done under the votes recorded and consensus of the participating RMOs.

6.5. Publication of the CMCs in KCDB

When all reviewing RMOs have indicated their approval of the posted files, they are
published in the open section of the KCDB by the KCDB Manager.

6.6. Review of already published CMCs

From time to time, CMCs may need to be modified either because of editorial
improvements or due to changes in the uncertainty, scope or method of measurement. This
process is described in chapter 12 of CIPM MRA-D-04.

6.7. CC. Working Groups on CMCs

In October 2003, the CIPM approved the creation of “Working Groups on CMCs” in
each Consultative Committee, with the following objectives:

 to establish and maintain lists of service categories, and where necessary rules
for the preparation of CMC entries;

 to agree on detailed technical review criteria;

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 to coordinate and where possible conduct inter-regional reviews of CMCs

submitted by RMOs for posting in Appendix C of CIPM MRA;

 to provide guidance on the range of CMCs supported by particular key and

supplementary comparisons;

 to identify areas where additional key and supplementary comparisons are

needed; and

 to coordinate the review of existing CMCs in the context of new results of key
and supplementary comparisons.

These WGs should include representation from all RMOs that have NMIs active in the
relevant technical area. WG membership is expected to come from the relevant RMO
committees involved in CMC reviews; appropriate experts being chosen depending upon the
particular field under review.

TC/WG Chairs who require information on these Working Groups should contact the
Executive Secretary of the relevant Consultative Committee, using the contact form in
http://www.bipm.org/en/committees/.

7. Measurement Comparisons

The technical basis of the CIPM MRA is the set of results which compare the
performance of participating NMIs obtained in the course of time through key comparisons.
These are carried out by the Consultative Committees of the CIPM, the BIPM and the
Regional Metrology Organizations (RMOs), and published by the BIPM and maintained in
the Key Comparison Database. The Technical Supplement to the CIPM MRA specifies
conventions and responsibilities relating to the key comparisons.

All the comparisons performed, are meant to support the CIPM MRA and have to be
published to keep the whole process transparent; unlike normal comparisons carried out the
PT providers or Accreditation Bodies, the results of the comparisons are not anonymous. The

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link between each participant and its result must be explicitly stated in the final report and this
information is publicly available.

The NMIs that are signatories to the CIPM MRA undertake to put in place appropriate
structures within their RMOs so that the RMOs may:

 make proposals to the Consultative Committees on the choice of key

comparisons;

 carry out the RMO key comparisons corresponding to the CIPM key
comparisons;

 participate in the JCRB; and

 carry out supplementary comparisons and other actions designed to support

mutual confidence in the validity of calibration and measurement certificates
issued by participating institutes.

7.1. Key comparisons

Key comparisons carried out by Consultative Committees or the BIPM are referred to
as CIPM key comparisons; key comparisons carried out by regional metrology organizations
are referred to as RMO key comparisons; RMO key comparisons should be linked to the
corresponding CIPM key comparisons by means of joint participants.

The details for the operation of Key Comparisons can be found in the Guidelines for
CIPM Key Comparisons

The degree of equivalence of measurement standards is taken to mean the degree to

which these standards are consistent with reference values determined from the key
comparisons and hence are consistent with one another. Each reference value is referred to as
a key comparison reference value and, in most cases, it can be considered to be a close, but
not necessarily the best, approximation to the SI value. The degree of equivalence of a
national measurement standard is expressed quantitatively in terms of its deviation from the
key comparison reference value and the uncertainty of this deviation. The degree of

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equivalence derived from an RMO key comparison has the same status as that derived from a
CIPM key comparison.

Participation from NMIs and DIs from Associates in CC comparisons or other

activities should be carefully considered by the relevant Committee or Working group on a
case by case basis, and they may take part where this adds scientific or other value and
effectiveness or efficiency to the relevant activity.

Information about these key comparisons can be found at the BIPM homepage:
Ongoing comparisons conducted by the BIPM.

The flowchart describing the key comparison process can be found in document The
Key Comparisons Process.

An institute that considers its result unrepresentative of its standards may request a
subsequent bilateral comparison with the pilot institute or one of the participants. For the
details of the process for subsequent bilateral key comparisons see document Process for
Subsequent Bilateral Key Comparisons.

7.2. Supplementary comparisons

A supplementary comparison is a comparison conducted to meet specific needs not

covered by key comparisons, including comparisons to support confidence in CMCs. The note
on supplementary comparisons, document A Note on Supplementary comparisons, the
definition of supplementary comparisons in resolution 11 from the 10th JCRB and the
flowchart of the supplementary comparison process in document RMO Supplementary
Comparison Process are part of the guidelines to be followed in conducting these
comparisons.

7.3. Monitoring the impact of comparison results on CMC claims

The NMI making the CMC claim has primary and principal responsibility to ensure
consistency with the comparison results. RMOs should also monitor the impact of the key and
supplementary comparison results on the CMC claims for its members. If there are concerns
about particular claims the resolution should follow the description of the chain of
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responsibilities as found in document Monitoring the Impact of Key and Supplementary

Comparison Results on CMC Claims.

8. Quality Systems

In a quality system (QS) the everyday work of an institute or company is described in a

standardized way to ensure not only the maintenance of a certain level of quality but its
continuous improvement. A functioning quality system makes the work transparent. The
working procedures and the needed competent personnel and required equipment are
described.

In addition to participation in the key and supplementary comparisons, recognition of

calibration and measurement certificates requires one of the following procedures in order to
establish the necessary mutual confidence (subject to other RMO rules):

a) an NMI that chooses for its calibration and measurement services a quality system that
meets the requirements of ISO/IEC 17025 or equivalent for an NMI, assessed by an
accreditation body fulfilling the requirements of ISO/IEC 17011, declares its CMCs and
submits them to the local RMO for intra-regional review and then forwards them to the
JCRB for inter-regional review and inclusion in Appendix C of the CIPM MRA; and

b) an NMI that chooses to use a different way of assuring quality or chooses a different
quality system, or ISO 17025 without third-party assessment, for its calibration and
measurement services declares its CMCs and submits them to the local RMO for intra-
regional review and then forwards them to the JCRB for inter-regional review and
inclusion in Appendix C of the CIPM MRA.

Other standards may be applicable for particular cases, such as ISO Guide 34 for those
CMCs that disseminate traceability through Certified Reference Materials.

The review of the QS, is done according to the document The JCRB Guidelines for the
monitoring and reporting of the operation of Quality Systems by RMOs, and by the annual
reports submitted by the NMIs to the RMOs QS review committee and in turn, the RMOs to
the JCRB. It is worth noting that demonstration of competence and capability may require

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visits and examination of procedures by an NMI and/or by peers selected by the local RMO.
For the recommendations for on-site visits by peers and selection criteria for on-site visit peer
reviewers see the CIPM MRA policy document CIPM-2006/05.

9. Conclusions

The participation of the NMIs in the CIPM MRA, provide governments and other
parties with a secure technical foundation for wider agreements related to international trade,
commerce and regulatory affairs. As a result, the CIPM MRA is an important tool for helping
all NMIs in the development of its home countries quality of the measurements related to
industry, health, environment and science.

For these reasons, it is important to open the participation to all the NMIs in the world
and it continues to be the policy of the CIPM and the BIPM, to promote the participation of
the widest possible spectrum of NMIs, from the largest to the smaller ones.

The CIPM MRA itself and the rules that operate the agreement, assure that the process
is open, transparent and the information available to all the parties, the NMIs, their user’s,
accreditors and regulators.

10. List of acronyms

APMP Asia Pacific Metrology Programme

BIPM Bureau International des Poids et Mesures (International Bureau of Weights
and Measures)
CC Consultative Committee of the CIPM
CGPM Conference General des Poids et Mesures (International Conference on
Weights and Measures)
CIPM Comité International des Poids et Mesures (International Committee for
Weights and Measures)
CIPM MRA Mutual Recognition Arrangement
CMC Calibration and Measurement Capability
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COOMET Euro-Asian Cooperation of National Metrological Institutions

CRM Certified Reference Material
EURAMET European Association of National Metrology Institutes
JCRB Joint Committee of the RMOs and the BIPM
KCDB BIPM key comparison database
NMI National Metrology Institute
QS Quality System
RMO Regional Metrology Organization
SADCMET Southern African Development Community Cooperation in Metrology
SIM Sistema Interamericano de Metrologia
TC Technical Committee
WG Working Group

11. Documents related to the MRA

11.1. General information on the JCRB

 JCRB terms of reference

 Activities of the JCRB: 1999–2003
 JCRB directory
 Uncertainty contributions of the device under calibration or measurement
 CIPM MRA-D-04 Calibration and Measurement Capabilities in the context of
the CIPM MRA
 Recommendations for on-site visits by peers and selection criteria for on-site
visit peer reviewers
11.2. Guidance on CMC reviews

 Terms of reference for CC Working Groups on CMCs

 Monitoring the impact of key and supplementary comparison results on CMC
claims
 JCRB guidelines for the monitoring and reporting of the operation of quality
systems by RMOs
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CIPM MRA-G-01

11.3. Guidance on comparisons

 Flowchart of the key comparison process

 Flowchart of the supplementary comparison process
 Flowchart of the process for subsequent bilateral key comparisons
 Key and supplementary comparison registration form
 Supplementary comparisons – definition
 A note on supplementary comparisons

12. Revision History

Version Author Date of Summary of change

number Issue/Review
1 L. Seehausen- 2008-05-01 Original draft JCRB 20/08
P. Espina-L. Approved by JCRB 21/08(1)
Mussio
2008-10-17 Approved by CIPM

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October 2008
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