National E-Governance Plan Revisited:

Achievements and Road Ahead

Geetika1 and Neeraj Pandey2*

ABSTRACT
India like other forward-looking developing and developed economies has traveled a
critical distance in the field of planning and implementation of e-governance in the
government-people interface process. This journey has brought many lessons and
revelations. The National e-governance Plan (NeGP) is the lead nodal agency for
implementing e-governance in India. In the present paper the NeGP has been revisited to
take stock of the achievements and shortfalls. The analysis is done on the basis of three-
tier structure of NeGP, viz. Central Mission Mode Projects (MMPs), State MMPs and
Integrated MMPs. The paper also attempts to look at the managerial, regulatory and
institutional challenges faced by NeGP. The analysis is mostly based on secondary
sources of information, however, number of interview sessions was held with persons
involved in planning and implementation of the plan to go deeper into the challenges
being faced. The paper concludes with suggestion to make SMART India through an
effective NeGP.

Keywords: E-governance Plan, mission mode projects, E-governance Domain, Common Service Centres

1. Introduction
The success stories of improving service delivery, reducing corruption, increasing transparency, increasing
revenue, ensuring cost reduction and empowering people apart from other multiple benefits have reinforced
citizen confidence in this information technology (IT)-oriented form of governance (Margetts, 1995;
Sawhney 1996). The implementation of e-government projects in developing countries started with the
administrative reforms and in priority sectors like banking and telecommunications (Shrestha et al, 2004).
The e-government, however has shown comparatively lower success rates in developing countries (Heeks,
2003), but its impact on many functional areas mainly due to its effectiveness and efficiency through cost
reduction, timely service and transparency is significant (Taylor, 1992; Jaegar, 2003).

Government of India has allocated US$ 4.92 billion in budget allocations in the Tenth Five Year Plan
(2002-07) for implementation of e-government (http://www.egovonline.net). Further India has proposed the
National E-governance Action Plan for implementation during the year 2003-2007 (However it got Cabinet
approval on May 18, 2006). The Plan seeks to lay the foundation and provide the impetus for long-term
growth of e-Governance within the country. Every government department is expected to invest 2% of its
budget on e-government (http://www.mit.gov.in).

1
School of Management Studies, Motilal Nehru National Institute of Technology, Allahabad-21004, India
2
L. M. Thapar School of Management, Thapar University, Patiala-147004, India
* Corresponding Author: (Email: [email protected])
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 Geetika and N. Pandey / National E-Governance Plan Revisited: Achievements and Road Ahead

An impact study of e-government projects (Bhatnagar et al., 2007) found that respondents who have used
both the manual and computerized systems have indicated an overwhelming preference for the
computerized system. The Knowledge Commission (2007) has also emphasized to learn from such
successful models and design best practices that are affordable and applicable nationwide to ensure ease of
use and interoperability (http://www. knowledgecommission. gov.in).

2. National E-Governance Plan (NeGP)

In order to expand e-government initiative in India, the National e-Governance Plan (NeGP) officially
commenced in May, 2006. The NeGP has three tier functional models i.e. the whole work has been split
into clearly delineated Mission Mode Projects (MMPs). Each MMP is designed and developed as project
mode on a mission basis as reflected in the nomenclature. It consists of three types of MMPs viz. Central
Mission Mode Projects, State MMPs and Integrated MMPs. The delineation has been done on the basis of
stakeholders/implementing agency basis and the constitutional status of the domain. For Example- Income
Tax, Passport, Visa and Immigration are Central Subject as per Indian Constitution so they have been kept
under Central MMP. Likewise subjects like Agriculture, Police and Land Records are State Subject, so
these domains have been kept under State MMP. The domains which are in Concurrent List are kept under
Integrated MMP. Thus the whole NeGP work has been broken into three sets of MMPs to ensure its
successful, implementation and monitoring.

Each MMP is to be carried out in four stages viz. Stage I-Conceptualization, Stage II-Design and
Development, Stage III- Implementation, Stage IV- Post Implementation. The Conceptualization stage is
the first stage where the mission is identified i.e. the services to be provided at the government-public
interface level using the IT tool. In Design and Development stage the services are firmed up after piloting
the project in designated towns/departments/ministries. The rollout of the project is done during the
Implementation stage. It is followed up by Post-Implementation stage where the feedback of all
stakeholders is monitored, the learning from the programme discussed and necessary changes, required if
any, incorporated within the project.

The highlight of the NeGP is to make all Government services accessible through an integrated service
delivery mechanism ensuring efficiency, transparency and reliability, at the place, throughout the life, at
affordable cost to the common person. NeGP envisages saving cost of providing services in terms of
sharing the core and supporting infrastructure, enabling interoperability through standards interalia bringing
uniformity in e-governance standards which would result in the citizen having an easy access to public
services provided by the Government (ILIS, 2005). As an initial step approval has been granted for
establishment of over one lakh internet and ICT enabled Common Service Centres (CSCs). The NeGP
framework enables the integration of e-Governance applications by various departments with minimal
adjustments by using the platform provided by common infrastructure like SWANs (State Wide Area
Networks), CSCs, Data Centres, Electronic Governance Service Delivery Gateway etc. (SWAN Report,
2007). The Department of Information Technology (DIT) has set up a Programme Management Unit
(PMU) to assist the apex committee drive NeGP through effective programme monitoring and management
and provide assistance in policy and strategy formulation. The PMU also supports the DIT in implementing
those projects and components of NeGP for which DIT is the implementing department and also augments
capacity of various departments to enable them to implement their Mission Mode Projects (MMPs)
successfully.

3. Study Design
The present study is exploratory in nature and looks holistically at India’s ambitious NeGP which was
initially planned to be started from 2003 but actually started functioning from May, 2006. At the time of the
conceptualization, the NeGP had certain vision, scope and objective which were earlier supposed to

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culminate in the year 2007 (NeGP period was conceived as 2003-2007). However later on NeGP has been
given perpetual status and there is actually no limit of schedule for all the MMPs to be completed. This
paper tries to recapitulate the progress during this one year period after formal commencement of the
NeGP.

The objective is to revisit the functioning of NeGP in light of the agenda set up by it at the start of the Plan
in the Year 2006 and not to be judgmental about effective or ineffective handling or implementation of
NeGP. It is more of introspection than a critique. The views of officials involved in the NeGP were also
taken to reach conclusions.

The study makes use of multiple sources of data and collection methods including: documentation,
observation and guided open-ended interviews. The main benefit of integration of multiple data sources is
an increased internal validity of the study. The combination of these different sources of data helps to
establish a sound analysis of present status with the targets in a more time effective and cost effective
manner.

In the present study firstly, the data was collected from various documents available on line from official
website or in print form from reports and research papers; then interview of officials working at different
MMPs were conducted and finally the two were aligned to reach the conclusions and draw a line of
recommendations. The main goal of the interviews and the document collection was gathering information
on the scope of NeGP, its present status of achievements and the constraints faced. This involved as a first
step to develop an understanding of the scope of NeGP. The interviewees were asked about the present
status of NeGP in general and MMP they are associated with in particular. They were also requested to
compare the targets with achievements to identify gaps and the major road blocks in effective
implementation of NeGP. Interviewees were finally asked to give views on improving the rate of
implementation. Table 1 summarizes the major questions covered during interviews.

Table 1: Main topics covered by the interview guide

S. No. Interview Questions Objectives
1. Present status of progress To reach a better understanding of the situation and to verify the
Plan in general documented information.
A particular MMP
Three MMPs compared
Domains with a MMP
2. Obstacles in completion of MMPs To identify the main culprit in the effective implementation of the
Legal/ Procedural Plan.
Social/ Economic
Technological
3. Measures to improve the progress To reach a set of viable recommendations
Piecemeal work
All in one go
Time bound manner

Information colleted from all the sources has been analysed using qualitative method. Table 2, Table 3 and
Table 4 summarize the performance evaluation of three sets of MMPs. Each MMP is analysed on basis of
Domains, targets identified for each domain and present status. Finally the Domains are also evaluated to
find the stage at which they are presently. These tables are summarized version of our analysis from
documented information and interview findings. Finally the findings mentioned in the three tables are
analysed in the light of findings from interviews.

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Table 2: Central Mission Mode Project of NeGP

Present Stage (as on

Domain Targets Present Status
September, 2007)
Banking One India One Account for all Services to be firmed up Stage I: Conceptualization
Public Sector Banks including Whatever progress is seen is
Electronic Mass Payment System on industry initiative
Central Excise Electronic Filing of Returns, e-Payment of custom duties Stage III Implementation:
(Custom & Duties and applications for with PNB & UBI at Delhi, Work in progress in select
Service Tax) approvals/permissions; Automation of Custom & locations and areas
To network 20,000 users in 245 Service Tax Implementation
cities using wide area network of National data Centre &
WAN, Roll out of Risk
Management System
Income Tax Online Submission of Taxes & all All India Income Tax Stage III Implementation:
related issue, Taxpayer grievance Network (TAXNET), More Rollout in all cities in
redressal, Taxpayer than 500 cities fully covered progress
correspondence, Allocation of
PAN
MCA (Ministry On-line Forms Filing, e-Payment The project has gone live on Stage IV Post-
of Company of charges and statutory returns September, 2006 Implementation.:
Affairs) Company registration services Review almost complete
Passport; Visa Application for fresh passport & Online submission of forms Stage III Implementation:
& Immigration related issues, Efficient & & tracking of application Work in progress in select
Effective Handling of status locations and areas
Immigration Formalities for all
incoming international flights
Pensions Grievance Handling & Pension Pension Portal developed by Stage IV Post-
Settlement Tracking NIC launched in March, Implementation:
2006 Feedback under progress
Insurance Online issuance of policies on Only General Insurance Stage-I Conceptualization:
web, To provide automated MMP conceived Whatever progress is seen is
grievance reporting and redressal Development of the concept on industry initiative.
facility to customers, To create paper underway
holistic database of insurance
users
MNIC Unique ID which may be the Pilot Project has been Stage-II Design &
(Multipurpose basis for identifying and completed in 13 states at 20 Development:
National authenticating a person's locations, Pilot Project in progress
Identity Card) entitlement to government
services and benefits through a
single system
e-Office All-Intra Government Office Proposal for development of Conceptualization:
Functions MMP being evaluated Services to be firmed up
Source: Various documents and interviews

Table 3: State Mission Mode Project of NeGP

Present Stage (as on September,
Domain Targets Present Status
2007)
Agriculture Under ongoing AGRISNET Under AGRISNET, released to 9 Stage III Implementation: Rollout
Project; Stage-I and Stage-II State governments. Phase-II under in progress
for Phase-wise Study completion
Commercial On-line Application for A National level workshop held Stage II Design & Development:
Taxes Registration, E-Filing of for firming up MMP design Pilot project to firm up the

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Returns, Electronic services

Clearance of Refunds,
Online Payment of Taxes,
Online Dealer Verification
e-District Backend Computerization to Core Services Identified, Initial Stage II Design & Development:
enable delivery of high Pilot Projects in UP (6 districts) Pilot Projects across states in
volume G2C services and Assam (2 districts); progress
through CSCs. Stage-I : One Assessment of model districts
Pilot District in each state; completed, BPR study for
Stage-II: State-wide roll out implementation
Employ- Services not firmed up Backend Computerization almost Stage I Conceptualization:
ment complete in Maharashtra, Services to be firmed up
Exchange Gujarat, AP and Tamil Nadu

Land Comprehensive Phase-I is over. Statewide rollout Stage III Implementation : Rollout
Records Modernization of Land of 7 states complete, in all states in progress
Records Modernization of Land Records
conceptualized (Phase-II)
Municipa- Issue of Birth/Death Implementation to start from Stage II Design & Development:
lities Certificates, Payment of 2007-08 in the category 35 ULBs Pilot Project to firm up services
Utility Bills, Grievance & (Urban Local Bodies). By 2012
Suggestions, Waste i.e. next 5 years 423 ULBs to be
Management Services, etc. covered.
Gram Services identified for States like A.P., Assam, Gujarat, Stage I Conceptualization:
Panchayats citizens and functionaries Orissa and Tamil Nadu have Services to be firmed up
Issue of Trade Licenses and started computerization, 3500
NoC, House Related crores to be spent in three years
Services, Certificate of Birth
and Death, Income and
Solvency, etc.

Police Creation and sharing of Common Integrated Police Stage III Implementation: Phase-
crimes and criminal Application (CIPA) has been wise rollout of CIPA Project in
database, Personal implemented at 128 Police progress
management and inventory Stations of Delhi.
control, etc.
Road Vehicle Registration and SARATHI (Driving Licenses): Stage III Implementation:
Transport Driving Licenses Rollout under implementation in 9 Rollout in other states in progress
states; VAHAN (Vehicle
Registration) Rollout under
implementation in 9 states
Treasuries Payment of Salaries to Core Committees formed and Stage II Design & Development:
government employees, All draft MMP Plan being revised Pilot Project to firm up services
expenses paid through PLA,
Account Reconciliation
Source: Various documents and interviews

4. Analysis and Discussion

The tabulated information is further analysed in the light of discussions held with officials during
interviews. The discussion is presented under the three major dimensions which had formed basis for
interviews, viz. present status of the Plan, major obstacles in effective implementation and suggestions to
improve the progress.

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Table 4: Integrated Mission Mode Project of NeGP

Present Stage (as on
Domain Targets Present Status
September, 2007)
e- Biz Issues relating to approvals and Master Services Agreement Stage II Design &
permissions, reducing the points of with the principal partner is Development:
contact between the business entities and pending signature Pilot Project for 25
the Government agencies, standardization services for business
of requirement information, Single- and industry in
window services and reducing the burden progress
of compliance.
e-Courts Implement ICT in Indian judiciary in Phase I: From 2001-03, 700 Stage III
three phases over a period of five years. city courts in four metros were Implementation:
The project scope is to develop, deliver, computerized and during 2003- Rollout of Phase II
install and implement automated decision 04, computerization of another under completion
making and decision support system in 900 courts were undertaken
700 courts of Delhi, Bombay, Kolkata & Phase-II: Started in December
Chennai; 900 courts in the 29 capital city 2004, 2100 courts to be
courts of states and UTs and 13000 covered in 2 years, 442 crores
district and subordinate courts. approved
e-Pro- e-Government Procurement Portal In DGS&D, out of 350 items, Stage II Design &
curement providing links to stakeholders, IT- 200 items are currently covered Development:
enabled exchange linking government by e procurement system Pilot project to firm up
agencies on one hand and vendors on the the services
other
Electronic Electronic filing / clearance of EDI implementation in Stage III
Data export/import documents by progress at Airports (7 Implementation:
Interchange exporter/importer/agents to Customs, locations), Airlines (20 Rollout in progress
(EDI) For Ports, Airports, and CONCOR etc.; locations), Apparel/Textile
Trade e-Payment of custom duties, charges export Promotion Councils (24
(eTrade) (handling/freight etc.) of Ports, Airports, locations), Banks (106
CONCORetc.; locations), RBI, Customs (35
Filing / processing of licenses for DGFT, locations), Container
e-Payment of license fee for DGFT; Corporation (38 locations),
Electronic exchange of documents DGFT (33 locations), Export
between community partners such as Promotion Organisations, DG
Customs, Ports, Airports, DGFT, Commercial
CONCOR, Banks etc. Intelligence/Statistics and
Inland Container
Depots/Container Freight
Stations (47 locations), Indian
Railways (1 location) an Port
Trusts (13 locations).
National E- Core and common services viz Expected to be completed by Stage II Design &
Governance Messaging, Inter Gateway Messaging, February, 2008 Development:
Service Authentication & Payment Gateway Pilot project to firm up
Delivery Interface, National Services Directory the services
Gateway etc.

India Portal All government services to be provided First version of portal has been Stage III
www.india.g through this portal launched Implementation :
ov.in Rollout complete
Source: Various documents and interviews

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Present status of progress

Deliberating on the present status of NeGP, majority of the officials submitted that the present status of
NeGP is not up to the mark. Among the three types of MMPs, around which the NeGP is woven, the
Central MMP progress is good while State and Integrated MMPs are lagging behind. The timeframe for
many of MMPs has not been fixed till now. Even the NeGP has got perpetual status and there is actually no
limit of schedule for all the MMPs to be completed. The officials of NeGP feel that coming years are
definitely going to be challenging for NeGP as more results of e-governance implementation are expected.

The status of Central MMPs is better than State MMPs in case of performance against targets. Even in
Central MMPs not all the domains have reached the desired pace of development, however some of the
officials highlighted the success of MCA21, Pensions and land records. Tables 2, clearly depict that only
two of the domains under Central Mission Mode Project have completed the three stages and entered the
final stage of monitoring. MCA 21 i.e. Ministry of Company Affairs in the year 2001 Project and Pensions
have been fully executed in terms of conceptualization, design & development and implementation. In case
of Banking the progress is industry-driven but still in case of basic services, for example-opening a bank
account, grievance handling through on-line Ombudsman, etc. have yet not fully materialized.

The MCA21 is being implemented by the Ministry of Company Affairs (MCA). The Project offers
availability of all MCA services including filing of documents, registration of companies and public access
to corporate information through a secure portal (http://www.mca.gov.in). The objective of the e-
Governance program is to improve the speed and certainty in the delivery of MCA services. This
improvement is primarily ensured through the mechanism of secure electronic filing (e-filing) and easy
online payment options for all the services provided by the Registrar of Companies. Use of Digital
Signatures has been mandated to carry out e-filing in conformity with the Information Technology Act,
2000. This NeGP guided MCA21 received the Dataquest IT Path-breaker Award, 2006, and was
recognized as a major Government initiative in the field of e-Governance, with use of technology for
improving and changing the existing processes, and making life easier for India's business community,
investors and aspiring entrepreneurs (http://www.nisg.org). The Pension portal was formally launched on
30th March, 2007, which was actually ahead of schedule (http://pensionersportal.gov.in). The portal has two
components one of which is interactive and other is non-interactive. A commendable work indeed as it is in
post-implementation phase in a small span of six months but the awareness about the portal and usage rate
among the existing pensioners is really going to decide the real success of the initiative by NeGP. Among
the State MMPs the employment exchange and Gram Panchayats are the laggards in terms of target setting
and follow up. For Example- In case of Employment Exchange, the services have not been firmed up.

Obstacles in implementation
This poser proved to be most interesting as two different viewpoint emerged which one of the interviewee
vehemently said “Government process reform in most domains would require extensive changes to law,
rules and regulations. I ask is India really ready to undertake such a wide-ranging government process
reform.” Another said, “I don’t see any major hurdle as most of MMPs have been well planned after due
deliberations and piloting models. It has got the full support of top leadership and willingness of
implementing ministries/departments.’

However deliberating further on the issue some problems were identified for less than anticipated rate of
progress. Most of them emphasize that the prime reason is that there cannot be substantial and sustainable
output without enough ground changes in legal, procedural, institutional, etc. To quote one of the
interviewee, “The NeGP also requires certain degree of readiness i.e. pre-determined service levels and
change in laws, policies, rules and regulations to facilitate the change process under NeGP. For Example-
taking a print-out of e-land record against the earlier ‘Patwari’ system needs to be legalized by rule of law
of that particular state, as it is constitutionally a state subject. The whole government functionaries have to
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put behind this reform process”. The NeGP also lays stress on capacity building through integrated efforts
between the departments. The fund has been regularly allocated for the purpose. However it has been seen
in the past that many of the states have missed out on coordination between agencies for capacity building.
Such outcomes may be detrimental for successful completion of NeGP.

The NeGP is going to face multiple hurdles. The biggest hurdle may be achieving the pre-determined
service levels through extensive government process reform, which is missing in India in many domains.
Government process reform in most domains would require extensive changes to law, rules and
regulations. The basic question is India really ready to undertake such a wide-ranging government process
reform. For Example- In the case of Urban Local Bodies which is one of the MMP- how far the service
levels are going to be changed under government process reforms? How far does the political and
bureaucratic mechanisms would put their weight behind this whole government process reforms would
determine the degree of success of NeGP.

The other hurdle may be that NeGP does not have the enforceability for the MMPs, neither with
ministries/departments nor with the states. Due to centre-state conflict and inter-departmental issues the
programme may suffer. What if implementation is not being done in true word and spirit by the
implementing ministry/department? For any department, MIT (Ministry of Information Technology) is a
peer department and how it can dictate rules over him? These are some of the key issues that need to be
addressed by this ambitious IT project.

The NeGP presently has no fixed tenure as it was the case (2003-2007) when it was earlier conceptualized.
As a corollary there is no deadline for completion of all MMPs. Also many of the MMPs do not have a
deadline as of now. Also in many of domains the services have not been firmed up yet. The reasons for lag
in State MMPs have been identified as lack of coordination and agreement of state government with the
concerned Ministry of IT/Implementing agency, gap between planning, implementation and monitoring,
transfer of official in charge, political turmoil in the state, etc. No doubt the implementing agency is at fault
however the NeGP cannot be absolved of the responsibility of effecting speedy pervasive e-governance for
government disbursal of services to its citizens.

Measures to improve progress

Therefore, each of the MMP should be given a deadline for implementation. The perseverance and perusal
by respective NeGP officials of designated MMP will have strong effect on the concerned implementing
agency. The agriculture, land records, police and road transport are comparatively better in terms of
implementation of the project. This needs to be done on a time-line basis. “Since IT is all about speedy
decision-making, communication and networking, it must be leveraged by NeGP to expedite the MMPs.
Tools like videoconferencing, digital signature, conducting frequent meeting in target state capitals by
formulating small NeGP teams, etc may expedite the NeGP MMPs” an official quipped.

Government process reforms are also necessary to ensure successful implementation of each MMP. This
will entail changes in law, rules and regulations, which at times may be radical. Such changes will need
consensus of all stakeholders. The NeGP should, therefore, give wide publicity about its programmes and
its benefits-both in short and long term so that the acceptability of e-governance programmes and the
changes that have to be made to implement it are well accepted. The PMU or NeGP as a whole must be
given enforceable e-governance rights. Once the implementing ministry/department/state commits
officially to execute an e-governance project, it must be implemented as per the schedule. The delay or
indefinite postponement of any MMP may not only demotivate the concerned NeGP officials but also the
people, for whom this ambitious project has been undertaken. They may loose hope and faith on the plan
signing off as yet another government gimmick.

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5. Concluding Remarks
The NeGP should frame clear-cut targets for each MMP till the rollout of the plan. This should be done in
consultation and consensus with the implementing body. This will facilitate the planning, implementation
and monitoring of the MMP and thus expedite the process. It will also put pressure on the implementing
ministry/department/state to stick to the deadlines and help NeGP to put control mechanism in place. Since
the complete schedule will have prior agreement with the implementing ministry/department/state, they
may not postpone the e-governance implementation indefinitely. The lessons learnt after rollout of one
project should be deliberated and minutes especially the learning gained at each stage starting from the
conceptualization till implementation should be deliberated, documented, finalized and then circulated
among all the NeGP officials. The final round of deliberations must ensure the presence of top management
besides the officials involved with that particular project. The presence of top management not only reflects
importance of this exercise but is also motivating and encouraging for the officials involved in the project
to come out with achievements, drawbacks, shortfalls, institutional support, etc. The NeGP conceptually is
an ambitious revolutionary project with multiple and long term benefits to the nation. However, it will
entail lot of changes not only in laws, rules and policies of the government but also the change of mindset-
both of the service provider i.e. government and the user i.e. citizens. Also, the Government of India has to
constantly guard that NeGP does not dovetail into yet another bureaucratic juggernaut exercise with
meaningful agenda and endless timeframe.

References
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About the Authors

Geetika is Professor and Dy. Dean (Planning and Development) at M N National Institute of Technology, Allahabad.
She has eighteen years of experience of teaching and research and four books and 38 papers to her credit, published in
refereed journals, edited books and in proceedings of national and international conferences. Five candidates have been
awarded PhD degree under her supervision while two are currently working. She is Principal Investigator of a Major
Research Project financed by UGC. Her areas of interest include, Strategic Management, Organisational Behavior and
International Economics.

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