Racial Integration Strategy final.qxd

Strategy
for Racial
Integration
Strategy
for Racial
Integration
Copyright Department of Education 2006
All rights reserved. You may copy material from this publication for use in non-profit education
programmes if you acknowledge the source. For use in publications, please obtain the written permission
of the Department of Education.
Enquiries:
Director-General
Department of Education
Sol Plaatje House
123 Schoeman Street
PRETORIA
Private Bag X895
PRETORIA
0001
Tel:
Fax:
E-mail:
(012) 312 5080
(012) 326 1909
values@doe.gov.za
ISBN: 1-77018-089-3
Published by the Department of Education, December 2005
Design and layout: Formeset Digital, Tshwane (012) 324 0607
Strategy
for Racial
Integration
Contents
Contents
Introduction .............................................................................
1
A Strategy for Racial Integration ......................................
3
Rationale .................................................................................
3
Aims of the Strategy ................................................................
4
Principles that underpin the Strategy ......................................
4
Strategic Approach................................................................
6
A Framework for Action ......................................................
8
Prevention ...............................................................................
8
Policies ...............................................................................
9
Clear procedures ................................................................
11
Rights and responsibilities ..................................................
11
Leadership, governance and staff profiles ...........................
12
Curriculum .........................................................................
13
Teacher development and support......................................
14
Learner/Student development and support ........................
15
Intervention .............................................................................
16
Teams for crisis intervention ...............................................
16
Sanction.............................................................................
17
Support, Monitoring and Evaluation .......................................
18
Monitoring and evaluation .................................................
19
Support: Parent and community involvement .....................
20
Implementation Plan.............................................................
21
Phasing of Strategy ..................................................................
21
Conclusion ................................................................................
22
References ................................................................................
23
Strategy
for Racial
Integration
Introduction
Introduction
The demise of apartheid in 1994 was heralded nationally and
internationally as a victory for democracy and human rights. It offered
unique opportunities – and responsibilities – to reconstruct a
fragmented and deeply discriminatory education system, and establish a
unified national system underpinned by democracy, equity, redress,
transparency and participation. This social reconstruction had to be
linked to economic development in the context of global economies and
internationalisation. These dual goals are aptly captured in the mission
statement of the Department of Education:
"Our vision is of a South Africa in which all people have equal access to
lifelong education and training opportunities which will contribute
towards improving the quality of life and build a peaceful, prosperous
and democratic society." (DoE 1996)
The reconstruction of post-apartheid South African society has been
based on removing the scaffolding of apartheid and replacing it with a
new system based on the well-being, respect and affirmation of all South
Africans. Educational reforms aimed at the dismantling of apartheid
education have been central aspects of this reconstruction effort.
In order to facilitate reconstruction, the South African government
placed great emphasis on the development of policies to redress the
legacy of racial disparities and inequalities left by apartheid. The
democratic government embarked upon a project that strongly asserts
the responsibility of the government, in partnership with civil society, to
develop a framework and environment for the emergence of a new
national character. The government committed itself to reclaiming the
1
history and culture as the solid foundation for building a sense of
meaning and vision for its people.
In education, the South African Schools Act of 1996 repealed the many
discriminatory laws that existed under the apartheid system, establishing
a national non-racial, non-discriminatory education system. The eighteen
racial departments of education were dismantled and one national
department of education with nine provincial departments was created.
However, important challenges still characterise the education system.
South Africa is still faced with challenges of racism and inequality. These
challenges also manifest themselves in education institutions. Despite a
number of advances and the enactment of progressive legislation to
hasten desegregation, media and various other reports on racism
indicate that many institutions and communities still struggle with racial
integration. Racial outbursts at places like Vryburg, Richmond, Delmas,
Groblersdal, Potgietersrus and Edgemead attest to this fact. These
incidents have also invariably characterised the responses to racial
discrimination in the education sector. Responses to racism in education
have often been incident-based, reactive and ad hoc. This underlines the
need for a co-ordinated, integrated strategy and implementation plan to
ensure the full and successful racial integration of all education
institutions.
2
Strategy
for Racial
Integration
A
Strategy
for Racial
A Strategy
for Racial
Integration
Integration
Rationale
Education is fundamentally a character forming and developmental
activity that often occurs through the values that are either consciously
or unconsciously modelled by the education system. Values promotion
and acquisition are inevitable aspects of education – underlying the
formal selection of outcomes, teaching methods, assessment, classroom
processes, authority relationships, and the selection of contexts and
examples to advance learning. A nation emerging from apartheid cannot
think of values in education independently of the deep racism embedded
in the apartheid curricula and education systems. The apartheid system
was intended, overtly and implicitly, to link concepts of ability and
potential for learning to culture and race, and hence to build and
reinforce particular social structures and hierarchies. Those habits and
underlying values need to be reversed through the promotion of
anti-racism, inclusivity, human dignity, equity and democracy.
Reducing the deeply embedded race, gender, class and institutional
inequities which still characterise our education system remain a
constant challenge. The challenge is to go beyond the 'numbers game'
of merely opening formal access for disadvantaged groups into a static
system and set of institutional cultures. Opening formal access should
be accompanied by building institutions that accommodate and adapt
to different identities, needs and experiences. Institutions should also be
challenged to transform the restrictive aspects of their historic
organisational cultures.
This strategy has been developed to assist institutions to deal with the
challenges of integration. It is based on the values that celebrate and
3
promote diversity. The strategy is also premised on a need for the
development of a platform for a collective vision for the future.
Furthermore, it is rooted in the lessons of our past and intends to move
the country into a common, non-racial and democratic future.
Aims of the Strategy
The Strategy on Racial Integration, is located within the broader context
of the Values in Education Initiative and aims
●
To combat racism and other forms of discrimination and build
integrated education institutions, which are integrated – as
institutions and as a part of the larger South African society.
●
To develop education institutions that are aligned with the principles
of the Constitution.
●
To provide concrete measures to deal with all forms of division and
discrimination which present a challenge in education, for example,
ethnicism or discrimination towards young people living with HIV/
AIDS.
●
To serve as a tool for planning and management in all education
institutions in South Africa, as all institutions should teach learners
how to live and work in an integrated society.
●
To promote reconciliation, social cohesion and nation building.
Principles that underpin the Strategy
Consistent with the Constitution and the Bill of Rights, the Strategy
focuses on the values of equity, tolerance, openness, accountability and
social honour. More specifically, the strategy is based on the following
principles:
●
Racism and discrimination of any form is illegal and should be
decisively dealt with.
●
Racial integration is a positive feature of education in the
post-apartheid South Africa that should be encouraged.
4
Strategy
for Racial
Integration
●
Racism is a negative feature, to be counterposed with reconciliation,
African pride and peace.
●
All human beings are equal, irrespective of class, colour, religion,
gender and other categories.
●
Diversity in student and staff profile is a strength and should be
celebrated.
●
Equity is a central pillar in ensuring that differing educational needs
are catered for and the legacy of past discrimination taken into
account. This implies a clear rejection of race and ethnic based
approaches.
●
An active stance is adopted, where all individuals, irrespective of
colour, class or religion, are seen as participants in the process of
promoting racial integration.
●
Education institutions and schools in particular, are microcosms of
society and therefore communities should be involved in dealing with
issues of racism and discrimination. All individuals, irrespective of
colour, class or religion, are seen as participants in the process of
promoting racial integration.
5
Strategy
for Racial
Integration
Strategic Approach
Strategic Approach
The strategy will be phased so that it addresses,
a. Institutions where there is existing racial tension, as reported in the
media and from departmental and other reports
b. Institutions where there is potential for conflict, as reported in the
media and other sources
c. All education institutions to reflect the ethos and principles of the
Constitution in their policies and practices.
d. District offices, regional offices, provincial and national departments
of education to reflect the ethos and principles of the Constitution in
their policies and practices.
The Strategy on Racial Integration will address all aspects of
discrimination, especially racial discrimination, ethnic/tribal divisions,
gender inequalities, and xenophobia.
The strategy is targeted at:
●
Education systems (district offices, regional offices, provincial and
national departments of education)
●
All levels of the system (GET, FET, including FET colleges, and Higher
Education Institutions)
●
Institutions (principals, management teams, teachers and other staff,
students and learners)
●
The community (staff, parents, caregivers, governance structures,
students/learners and community based organisations)
The Strategy aims to go beyond just an awareness of racism, but to also
provide learners/students with experiences that confront and cultivate
values in action: critical thinking, personal expression, a local sense of
meaning, and expanded ways of thinking and communicating. Finally,
6
Strategy
for Racial
Integration
the strategic approach will be a combination of:
●
Encouragement of good practice, dialogue and persuasion; and
●
Monitoring, pressure and sanction.
7
Strategy
for Racial
Integration
A
Framework
for
A Framework for Action
Action
This framework recognises that the contexts in which institutions
operate, and the level of development of education institutions with
regard to racial integration, differ. Accordingly, the framework accepts
that institutions can be broadly classified into three categories:
●
Institutions that are overtly racist and refuse to change;
●
Institutions that practice subtle discrimination; and
●
Institutions that recognise their weaknesses, but struggle to cope
with the challenges posed by diversity and integration.
This framework for action targets all these categories of institutions. The
following aspects form an integral part of the framework and targets
institutions, as well as education systems:
●
Prevention;
●
Support, Monitoring and Evaluation; and
●
Intervention.
Prevention
Prevention aims to remove and address potential barriers to integration
before they become areas of conflict. It thus attempts to resolve
underlying causes of potential conflict.
Prevention will focus on the
following areas:
8
●
Policies
●
Clear procedures
●
Rights and responsibilities
●
Leadership, governance and staff profiles
Strategy
for Racial
Integration
●
Curriculum
●
Teacher development and support
●
Learner development and support
Policies
Institution Level
●
Recognise that the culture of the
institution might be operating to
exclude certain groups that were
historically disadvantaged.
●
Review all policies and practices to
remove all barriers to learning and
participation in educational activities.
Note in particular how language of
instruction, extra-curricular offerings,
fees and uniform choices impact on
the accessibility of the institution to
previously marginalised groups.
●
Offers school enrichment programmes
(sports, arts and culture) that cater
for all learners/students.
●
Is aware how restrictive admissions-,
language- and religious policies
impact on racial integration.
●
Extends its catchment area in an
attempt to promote integration.
●
Strive to minimise discriminatory
practices by collectively rewriting
existing policies. Ensure that
all role-players are involved in
establishing
the
values
that
undergird the new policies.
●
Implement institutional policies,
procedures and practices that do not
discriminate, directly or indirectly
against any individual or group on
the basis of their race, ethnicity,
culture, language or religion.
●
Implement policies to ensure that
all members of the community
(principals, management teams,
teachers, other staff, learners/
students, SGBs, parents, caregivers
System Level
●
Review
institutional
policies,
procedures and practices to ensure
they do not discriminate, either
directly or indirectly, against any
individual or group on the basis of
their race, ethnicity, gender,
language or religion.
●
Establish policies and guidelines
which clearly articulate principles and
procedures to counter racism
including clear procedures for the
resolution of complaints of racism.
●
Review recruitment, selection and
promotion procedures to ensure that
they are inclusive and encourage the
employment of people according to
employment equity legislation.
●
Establish policies that support the
more equitable participation of
learners from all backgrounds in
education.
●
Provide guidelines to institutions on
how to develop policies that will
affirm all groups.
9
Institution Level
and community based organisations)
understand
their
rights
and
responsibilities in relation to racist
behaviour and in contributing
towards the development of
institutions which value diversity and
are free of racism.
10
●
Ensure policies are in place for
reporting on and responding to
incidents of racism and that all
members of the community are
aware of the procedures and how to
access them.
●
Involve members of the community
in policy development and review.
System Level
Strategy
for Racial
Integration
Clear procedures
Institution Level
System Level
●
Establish clear procedures for dealing
with incidents of racism, racial
discrimination and harassment.
●
Establish clear procedures for dealing
with incidents of racism, racial
discrimination and harassment.
●
Have these procedures recorded in
the code of conduct for learners/
students.
●
Ensure that these procedures are
supplied to all institutions.
●
●
Ensure that all learners/students
understand the procedures clearly.
Ensure that all officials and
institutions are familiar with the
procedures.
●
Identify a member of staff to ensure
that these procedures are followed.
●
Identify one official at district and
provincial levels to ensure that the
procedures are adhered to.
Rights and responsibilities
Institution Level
●
Ensure that all learners and members
of staff understand their rights and
responsibilities with regard to racial
discrimination.
●
Ensure that these rights and
responsibilities are clearly recorded in
the institution's policies.
●
Ensure that parents and the
community are aware of these rights
and responsibilities.
System Level
●
Ensure that the rights and
responsibilities as contained in
the Constitution and education
legislation are made accessible to all
institutions.
●
Encourage institutions and districts
to translate these rights and
responsibilities
into
practical
activities.
●
Emphasise that all groups have the
responsibility to make racial
integration work.
●
Encourage and provide mechanisms
for communities to report incidents
of discrimination and abuse.
11
Leadership, governance and staff profiles
Institution Level
12
System Level
●
Staff appointments and promotions
are fair and in line with employment
equity legislation.
●
Staff appointments and promotions
are fair and in line with employment
equity legislation.
●
Attempts as far as possible to reflect
the demographics of the learner
population in the leadership,
governance and staff profile of the
institution.
●
Senior management appointments
reflect the demographics of the
country/province.
●
All new staff, especially from
previously disadvantaged groups, are
supported on an ongoing basis.
●
The
diversity
and
historical
experiences of the staff are
recognised and drawn on as
resources.
Strategy
for Racial
Integration
Curriculum
Institution Level
System Level
●
Implement teaching and learning
programmes that challenge racist
attitudes and behaviour and increase
learner understanding of the effects
of racism and discrimination.
●
Provide curriculum materials and
resources that challenge racist
attitudes and behaviours and
increase learner understanding of
racism.
●
Implement teaching and learning
programmes to increase learner
understanding of reconciliation,
social cohesion and nation building
●
●
Evaluate all teaching and learning
materials and assessment practices to
ensure they are not biased and are
inclusive of the needs of all learners.
Provide curriculum materials and
resources that recognise and value
the unique place of all South African
cultures, histories, languages and
societies.
●
Provide programmes to support
learners from diverse backgrounds.
●
Review curriculum, assessment
practices and resources to ensure
that they are inclusive of the
educational needs of learners from
diverse backgrounds.
●
Implement teaching and learning
programmes that address the specific
cultural and linguistic needs of
learners/students.
●
Provide programmes that require
learners/students to operate in
diverse groups.
●
Investigate and review learner
achievement data to inform the
development of teaching and
learning programmes.
13
Teacher development and support
Institution Level
14
●
Incorporate education programmes
to counter racism into institutional
training and development plans.
●
Encourage all staff to participate
in
valuing
diversity
and
cross-cultural awareness training and
to examine their own behaviour for
discrimination.
●
Promote good practice through
supporting staff to share expertise in
strategies to counter racism.
●
Encourage staff to participate in
inclusive
curriculum
training
programmes and to critically evaluate
their own teaching practice for
inclusiveness.
System Level
●
Provide training programmes in
nation building, social cohesion,
reconciliation and strategies to
counter racism.
●
Provide support and training for
teachers in inclusive teaching practice
and programme design.
●
Provide training for staff in
supporting learners who are involved
in racist incidents.
●
Enhance workplace productivity and
service provision by fully utilising the
skills, talents and varying perspectives
of staff from diverse backgrounds.
●
Provide leadership and management
training to all staff.
Strategy
for Racial
Integration
Learner/Student development and support
Institution Level
●
Encourage the participation of
all
learners/students
on
the
Representative Council for Learners/
Students so that they reflect the
diversity of the institution.
●
Encourage students from diverse
backgrounds to participate in learner/
student leadership and development
programmes.
●
Provide opportunities for learners/
students from all backgrounds to
discuss issues of racism, diversity and
reconciliation, social cohesion and
nation building.
●
Provide learner/student support
services that are appropriate
and information on educational
pathways that is free of prejudice and
stereotyping.
●
Promote good examples of learner/
student involvement in developing
successful initiatives to counter
racism.
●
Encourage learners/students from
diverse backgrounds to interact
within the institution and between
institutions, through sports and arts
and culture.
System Level
●
Develop guidelines for learner/
student representative bodies to
ensure they are inclusive and provide
a balanced representation.
●
Provide training for learner/student
representative bodies in nation
building, social cohesion, reconciliation
and strategies to counter racism.
●
Provide opportunities for learners/
students to become involved in
developing
and
evaluating
system-wide initiatives to counter
racism.
●
Provide learner/student support
services that are appropriate for all
learners/students.
15
Intervention
Intervention aims to deal with instances where the challenges of racial
integration have manifested themselves as barriers to learning and
teaching. It is often necessary in cases where issues have festered or
where there is an unwillingness to implement government policy, to
intervene in order to ensure that the right of learners/students to quality
education is protected. Intervention focuses on the following two areas:
●
Teams for crisis intervention, to deal with racial hotspots; and
●
Sanction, in cases where institutions deliberately disregard policy.
Teams for crisis intervention
Institution Level
●
An institution-based team to develop
and co-ordinate a crisis intervention
strategy.
●
●
●
16
System Level
●
The institution based team to be
inclusive of the gender and race
composition of the institution.
Response teams, consisting of
national, provincial and district
representatives to be set up to deal
with incidents.
●
The
team
should
include
representatives of parents, the
community and learners/students.
Teams to investigate the nature of
the problem and recommend a
particular course of action.
●
The objective of the team should be
to stabilise the institution to ensure
that learning and teaching continue
whilst an intervention strategy is
implemented.
A report should be provided by the
team to the district/province on how
an incident has been dealt with.
Strategy
for Racial
Integration
Sanction
Institution Level
●
Institution management is obliged to
take action when an alleged racial
incident is reported, including
suspending the alleged perpetrator.
●
Perpetrators of racial harassment,
should be counselled as far as
possible. All such cases, as well as
the type, date and place of the
counselling
and
intervention
provided should be recorded.
●
In cases where racial bullying and
harassment continue despite regular
attempts to mediate, appropriate
sanctions as per learner/student and
educator (SACE) codes of conduct to
be instituted.
●
Cases of racial harassment should be
reported to the district/province.
●
Community leaders from diverse
backgrounds are drawn on to
mediate and arbitrate when the need
arises.
System Level
●
Provisions of the law should be
invoked in cases of overt racial
discrimination and harassment.
●
Sanctions for racial discrimination
and a definition of what constitutes
such discrimination, should be made
available to all institutions and
districts/provinces.
●
The voices of previously marginalised
groups should be heard when
intervention strategies are devised.
●
Periodic
assessments
of
the
effectiveness
of
parent
and
community consultation mechanisms
should be conducted.
●
Information about developments at
institution, district and provincial
levels should be provided to
education communities in a
language that is accessible.
17
Support, Monitoring and Evaluation
Support refers to the efforts of the Department of Education to assist
institutions that have embarked on programmes that aim to improve
racial integration and the life chances of all learners/students in their
care. Monitoring and Evaluation refer to the responsibility of both
institutions and the wider education system to monitor the extent to
which efforts to transform our institutions have succeeded, and to
constantly evaluate and review the efficacy of our policies and practices.
The Department of Education needs to develop a comprehensive
monitoring and evaluation framework to strengthen monitoring of
access to, exclusion from and participation in human rights to education
in society. This framework will identify indicators, and should be
developed in consultation with key partners such as the National Forum
Against Racism, the Human Rights Commission and Statistics South
Africa. The rights to education would need to be clearly articulated.
18
Strategy
for Racial
Integration
Monitoring and evaluation
Institution Level
●
The principals of institutions should
record all racial incidents.
●
All recorded incidents to be reported
to the parents, the governing
body/council and the district/
province.
●
Dropout and through-put rates to be
recorded according to race.
●
Statistics based on race to be
recorded in terms of participation in
mathematics, science and sporting
and extra-mural activities.
●
Statistics of learners/students denied
admission to an institution to be
recorded according to race.
●
The numbers of learners granted
exemption from school fees to be
recorded according to race.
●
Determine
responsibilities
for
monitoring and reporting on racism
and the incidence and resolution of
complaints within the institution.
●
Seek feedback on effectiveness of
education initiatives to counter
racism and report on outcomes.
System Level
●
Develop system-wide procedures for
monitoring and reporting on
initiatives to counter racism.
●
Monitor the incidence and resolution
of complaints of racism within
systems and institutions.
●
Monitor the participation of staff in
training programmes designed to
counter racism.
19
Support: Parent and community involvement
Institution Level
●
Parents and community members
should be provided with information
on their rights and responsibilities in
relation to racism and education to
counter racism.
●
Encourage representation of parent
and community groups from all
backgrounds in the development and
evaluation of policies, guidelines and
procedures.
●
Institutions
should
draw
on
community resources and skills in the
development of activities to counter
racism, institution planning and
decision-making processes.·
●
●
Institutions should use interpreters,
translations and community support
staff in partnership with staff to
provide information to parents in a
language they understand.
Provide support to institutions to
ensure they are able to communicate
effectively with their diverse
communities, including the use of
interpreters,
translations
and
community support staff.
●
Encourage institutions and their
communities to celebrate key
national and community events.
●
Establish community consultation
and advisory mechanisms on racism
in education and remove barriers to
participation for identified learner/
student groups.
●
20
System Level
Institutions should encourage the
participation of parents and
community
members
of
all
backgrounds in all institutional
activities including activities to
counter racism, institutional planning
and decision-making processes and
representation
on
governance
structures.
Strategy
for Racial
Integration
Implementation Plan
Implementation Plan
Phasing of Strategy
a. Short to medium term: 2006–2008
u
Finalise a manual on integration to support the Strategy, as well
as providing guidelines to Institutions on how to deal with the
challenges of education in a democratic state.
u
Launch a Whole School Development Project targeting ten
institutions per province that are struggling with the challenges
of integration.
u
To advocate the Strategy on Racial Integration by providing
mechanisms for communities to report incidents of racial
discrimination through which complaints may be speedily
addressed.
u
Improve the systemic network of support to all institutions by
assisting
institutions
to
form
partnerships
with
local
communities, and provinces to identify dedicated personnel/units
to deal with the challenges of integration.
u
Develop a monitoring system with clearly defined indicators in
conjunction with social partners and other stakeholders.
u
To promote diversity and anti-racism training through inset and
preset programmes for both educators, managers and district
and provincial support staff.
u
Provide RNCS Implementation Support with regards to
anti-racism curriculum and pedagogical development.
b. Long term: 2008–2011
u
Assessment of the impact on institutions
u
Progress towards reconciliation
u
Where are we at the end of the decade?
21
Strategy
for Racial
Integration
Conclusion
Conclusion
The education system has a significant role to play in ensuring that our
learners are equipped to become productive, proud and active citizens in
the new, post-apartheid South Africa.
Educational institutions are
microcosms of society, and are bound by the policies of the new
democracy to provide all learners/students with the opportunity to
realise their true potential, and for all learners/students to develop in an
atmosphere of respect and dignity. Furthermore, the school/college/
university is the springboard from which learners/students acquire the
knowledge, skills, values and attitudes, with which to negotiate the
challenges and potential presented by our rich and varied multicultural
society.
The long-term assistance of organisational development specialists
would be invaluable in guiding the development of the Department of
Education as a learning organisation with the attitudes, values and
characteristics outlined in the Constitution. Such organisational
development interventions must be integrated into the service delivery
and organisational development programmes of departments of
education, which should be developed in addition to current activities
around strategic planning, and would combine interventions related to
managing systems, people, and resources in a holistic fashion.
22
Strategy
for Racial
Integration
References
References
Centre for the Study of Violence and Reconciliation (CSVR) 2002.
Building Integrated Classrooms; an Educators' Guide. Johannesburg:
CSVR.
Constitution of the Republic of South Africa 1996.
Deacon, J. 2002. Heritage and African History. Discussion paper for
Conference on History, Memory and Human Progress organised by the
South African History Project.
Department of Education (DoE) 1995 Education and Training White
Paper. Pretoria.
Department of Education (DoE) 2000 Language in the Classroom;
Towards a Framework for Intervention.
Department of Education (DoE) 2000. Institution Management Teams;
Managing Diversity. Pretoria.
Department of Education (DoE) 2001. Manifesto on Values, Education
and Democracy. Pretoria.
Department of Education (DoE) 2002 Values, Education and Democracy.
Institution-based Research Report. Pretoria.
Department of Education (DoE). 1999. Towards Racial Integration in
Institutions. Workshop Report.
Department of Education (DoE). 2000 Institution Management Teams;
Managing Diversity.
Du Toit, F. 2003 Learning to Live Together; Practices of Social
Reconciliation. Institute for Justice and Reconciliation (IJR) Cape Town.
Employment Equity Act 1998.
Employment of Educators Act 1998.
Hilton-Barber, B. and Berger, L. 2002. The Official Field Guide to the
Cradle of Humankind. Cape Town: Struik.
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