ࡱ> g ̍bjbjVV j$r<r<8~~~~~+h!!!6+8+8+8+8+8+8+$-/V\+!l!!!\+q+[&[&[&!<6+[&!6+[&[&V*@|*@g_"* "++0+* '0$D'0*'0*D!![&!!!!!\+\+[&!!!+!!!!'0!!!!!!!!! : SUMMARY OF RECOMMENDATIONS We set out our recommendations here in summary form for convenience. We stress that the reasons for and implications of each recommendation cannot be understood without reading the chapter in which it appears. The major recommendations contained in Chapter 24 cannot be properly understood without reading the Report in its entirety. INCOME SUPPORT (Chapter 14) Commonwealth Responsibility for Homeless 鱨վ RECOMMENDATION 14.1: Where children and young people leave or ought to leave home because of serious neglect or abuse, the Commonwealth should meet the obligation to support them, regardless of their age, in conditions where they are protected and can develop as required by the Declaration of the Rights of the Child. RECOMMENDATION 14.2: The Inquiry recommends that adequate income support be urgently provided by the Federal Government for all homeless children and young people who cannot, or should not, be reunited with their families. Benefit Levels and Conditions RECOMMENDATION 14.3: The Inquiry recommends that, while an alternative income support strategy for homeless children and young people is being developed, the following changes in the eligibility requirements for the Young Homeless Allowance be implemented immediately: that the Allowance be equally available to children under 16 and young people 16 and 17 years of age; that during the qualifying and assessment periods for the Allowance, Special Benefit should be paid (at a total equivalent to the Job Search Allowance plus the Young Homeless Allowance subject to the following recommendation unless the applicant is already in receipt of Job Search Allowance) when the application is supported by a youth worker froma recognised agency or by a social worker of the Department of Social Security; and that the criteria of homelessness should be extended to include a test of independence. A young person who has lived away from home for three months should qualify for the Allowance without the need to prove that the other criteria of 'homelessness' apply to him or her. RECOMMENDATION 14.4: The Inquiry recommends that the total benefit paid to a homeless young person be equivalent to the adult rate of UneMployment Benefit. RECOMMENDATION 14.5: The Inquiry recommends that the Special Benefit, payable to 'independent' children and young people not eligible to receive the Job Search Allowance be administered in the light of these recommendations. Access to Income Support RECOMMENDATION 14.6: The Inquiry recommends that: eligibility and ID requirements must not bar eligible young people on technicalities; publicity and information about the benefits be directed to young people; publicity must recognise that most young applicants will have no experience of dealing with the Department of Social Security; the Department consider effective methods of reaching needy (and possibly eligible) young people unlikely to approach the Department, such as outreach within schools, youth refuges community-based youth centres and other welfare organisations; specialist staff be selected and trained by the Department to deal sympathetically and speedily with claims from young people; and counter staff also be trained in the provision of information in an appropriate way to young people. YOUTH SUPPORTED ACCOMMODATION PROGRAM (Chapter 15) Crisis Refuges RECOMMENDATION 15.1: The Inquiry recommends that a continuing role for crisis youth refuges be linked with a significant expansion of medium and long-term supported accommodation. The present short-term refuge capacity should not be increased. Detached Housing Support Workers RECOMMENDATION 15.2: The Inquiry recommends that, in all States and Territories, detached housing support workers be appointed to provide a basic level of support to young people living independently. Reuniting Families RECOMMENDATION 15.3: The Inquiry recommends that youth accommodation services be resourced, trained and required to actively pursue the possibility of reuniting homeless children with their families, where this is appropriate, through negotiation, conciliation, counselling, provision of information and assistance with access to services the family requires. RECOMMENDATION 15.4: Young people must not be compelled to return home, and children should not be returned to homes where their right to protection against neglect, cruelty and exploitation is clearly threatened. Appropriate Accommodation Services RECOMMENDATION 15.5: The Inquiry recommends that accommodation services for children and young people be: specialised in that they are staffed by people qualified to care for adolescents; and sensitive to the needs of young women, Aboriginal and ethnic children, behaviourally disturbed children, children with disabilities, and children with addictions. Access to Other Services RECOMMENDATION 15.6: We also recommend that accommodation services for homeless children and young people provide access (through close co-operation with specialised services available) to the full range of services, including medical, psychiatric, developmental and social welfare services, required by each child. Accommodation for 鱨վ with Disabilities RECOMMENDATION 15.7: The Inquiry recommends that mainstream youth accommodation services be encouraged, resourced and, in the longer term, required to accept referrals of children and young people with disabilities. In particular, youth accommodation services should be resourced to employ specialist staff and to provide specialised programs and services for children with disabilities. There may also be a need for appropriate specialist youth accommodation services for homeless children and young people with disabilities. Such specialist agencies and services would need to ensure that children and young people with disabilities enjoy a full range of services in accordance with their rights and needs. Accommodation for Drug Dependent 鱨վ RECOMMENDATION 15.8: The Inquiry recommends that YSAP (or YASSP) committees in each State and Territory undertake an investigation of the growing need for accommodation services which cater adequately for homeless young people with drug and/or alcohol problems and encourage local communities, local government authorities and welfare organisations to submit proposals for the establishment of therapeutic residential programs for adolescent substance abusers. Accommodation for Aboriginal 鱨վ RECOMMENDATION 15.9: The Inquiry recommends that the Commonwealth make a specific allocation for Aboriginal children who are homeless or at risk of becoming homeless either within the Aboriginal affairs budget or within YSAP (or YASSP). COMMONWEALTH-STATE HOUSING AGREEMENT (Chapter 16) Commonwealth Responsibility RECOMMENDATION 16.1: The Commonwealth should reaffirm its key role in public housing provision, particularly with respect to special needs groups, including homeless young people. The Commonwealth should provide adequate funds to meet the housing needs of homeless young people. State Responsibility RECOMMENDATION 16.2: The Inquiry recommends that, in accordance with the principles of the Commonwealth-State Housing Agreement (CSHA), the Federal Government direct the appropriate Minister(s) to consult with State housing Ministers to ensure that they: provide more equitable direct tenure access to public housing for young people; establish minimum stock-building and acquisition targets to overcome the current shortage of appropriate housing stock for young people; and appoint youth tenancy officers to advise and assist young tenants. RECOMMENDATION 16.3: The Inquiry recommends that additional funds be provided through the CSHA to enable the States and Territories to acquire and build the necessary housing stock for young people. RECOMMENDATION 16.4: The Inquiry recommends that State and Territory governments, which in the past 12 months have received substantially increased revenues from Stamp Duty on conveyancing transactions, make immediate 'one-off' allocations of funds for the purchase or construction of public housing. Crisis Accommodation Program RECOMMENDATION 16.5: The Inquiry recommends that the Crisis Accommodation Program guidelines be extended to allow for the immediate provision of medium and long-term supported accommodation for young people and that funding levels be significantly increased to meet these new objectives. Independent Accommodation RECOMMENDATION 16.6: The Inquiry recommends models similar to the Victorian Youth Housing Program and Youth Initiative Scheme and the New South Wales Head Leasing Transfer Scheme which provide support to young people in secure, affordable public housing with the aim of assisting them to become independent. We recommend that the Federal Government direct the appropriate Federal Minister(s) to consult with State housing authorities to implement such schemes, particularly where local community-based organisations can be involved. Local Government and Community Housing Program RECOMMENDATION 16.7: The Inquiry recommends that additional funds be allocated to the Local Government and Community Housing Program, specifically for youth housing, as an affirmative action program over a 5-year period. PRIVATE SECTOR ACCOMMODATION (Chapter 17) Measures to Increase Private Sector Accommodation RECOMMENDATION 17.1: The Inquiry recommends that, as a matter of urgency: the Federal Government review taxation laws affecting the housing market; the Federal Government clarify the effect of receipt of income from boarders by pensioners and other social security beneficiaries; State, Territory and local government authorities review planning and zoning laws and policies with a view to their effect on the availability and cost of housing for young people; and all levels of government confer in order to identify and remove disincentives to the provision of appropriate and affordable rental and boarding-house accommodation for young people, and measures to encourage such provision. Legal Reform RECOMMENDATION 17.2: The Inquiry recommends that all States and Territories which have not already done so legislate to remove any legal impediments to young people entering into leases. Prohibition of Age Discrimination RECOMMENDATION 17.3: The Inquiry recommends that anti-discrimination legislation be extended or enacted in all jurisdictions to prohibit discrimination on the basis of age in the provision of rental accommodation. ACCOMMODATION SERVICES (Chapter 18) Principles for all Youth Accommodation Services RECOMMENDATION 18.1: The Inquiry recommends that the following broad principles should apply to all accommodation services, whether provided by community-based organisations, non-government welfare organisations or by the public sector: services should not separate a child from his or her existing networks including, wherever appropriate, the family. They should aim to assist the child to develop supportive networks within the community; services must respect the rights of the child; if reunion with the family is not possible or appropriate, and if placing the child in another stable living arrangement is not possible, services should assist each child to grow towards independence; and services should provide the full range of support required by each child or should assist the child to obtain such support. An integrated service or a network of co-operating and well co-ordinated services is, therefore, essential. HEALTH NEEDS AND SERVICES (Chapter 19) Health Education for Young People RECOMMENDATION 19.1: The Inquiry recommends that State and Territory health authorities revise their public health education programs directing particular attention to the wide range of health issues affecting homeless young people. Special attention should be given both to the content and the effectiveness of methods used to communicate this information to young people. Appropriate health education programs should be implemented. This is especially urgent with regard to education programs on AIDS targeted at homeless youth who, on the basis of the evidence available, are at substantially greater risk than other children and young people. Multi-service Health Centres RECOMMENDATION 19.2: The Inquiry recommends that State and Territory governments establish specialist multi-service health centres in appropriate locations to serve young people, particularly homeless young people, where these have not already been established. Such services are especially important in capital city 'bright light' areas and also in major tourist venues, such as the Gold Coast, where homeless youth congregate. They should incorporate a range of health, counselling, support and referral services. Outreach Services RECOMMENDATION 19.3: Streetwork/outreach services are basic requirements in meeting the needs of homeless youth and must, therefore, also be established/expanded. Outreach services are particularly important for homeless children and young people suffering from mental illness, alcoholism or drug abuse. Provincial Services RECOMMENDATION 19.4: A community-based health centre model should be developed for major provincial cities and towns. Local government and local community groups must be involved in adapting such a model if the health needs of homeless children in regional centres are to be met. Psychiatric and Therapeutic Services RECOMMENDATION 19.5: The Inquiry recommends that State and Territory health authorities urgently revise current policies of deinstitutionalisation to ensure that psychiatrically-ill young people are released into the community with appropriate therapeutic and physical support rather than onto the streets. In addition, where necessary, State and Territory health authorities should ensure an adequate supply of residential specialist therapeutic services for those young people in need of such services. However, these services must not place young people in residential psychiatric units basically geared for geriatric and dementia patients. RECOMMENDATION 19.6: The Inquiry recommends that State and Territory health authorities fund specialist, professionally run non-government in-patient and out-patient services (in line with established need) for young people with emotional and behavioural disturbances. The aim should be to provide a broad coverage of services with access for residents in rural and isolated areas. Regional services should be adequate to obviate the need for young people to travel to the capital cities to receive treatment. RECOMMENDATION 19.7: The Inquiry recommends that State and Territory health authorities review the range of treatment programs available for behaviourally disturbed young people, with a view to increasing the range of programs offered and taking account of the innovative programs currently being developed. Drug Treatment RECOMMENDATION 19.8: The Inquiry recommends that State and Territory health authorities urgently establish and adequately fund specific drug-treatment facilities for young people. -These facilities should incorporate both detoxification programs and ongoing treatment and referral services. Sensitivity of Services to Special Groups RECOMMENDATION 19.9: The Inquiry recommends that all health services for young people take account of the special health care requirements of young women, young people with disabilities, Aboriginal youth and youth from non-English speaking backgrounds. Integration of Services RECOMMENDATION 19.10: The Inquiry recommends that State and Territory health authorities should particularly concentrate on the integration of youth health services with other services for homeless young people. A National Conference RECOMMENDATION 19.11: The Inquiry recommends that the Federal, State and Territory Governments jointly convene a national conference in 1989 on the health needs of the homeless, particularly homeless youth. SUPPORT NEEDS AND SERVICES (Chapter 20) Commonwealth Responsibility RECOMMENDATION 20.1: The Inquiry recommends that the Federal Government re-enter the field of preventive and support services for families. Upgrading of Services RECOMMENDATION 20.2: The Inquiry recommends that the Commonwealth re-examine the recommendations of the Senate Standing Committee on Social Welfare on the upgrading of welfare services relevant to children in Australia in conjunction with the recommendations of this Inquiry. We further recommend that this examination should be conducted by a task force comprising several members appointed by the Federal Government together with members of this Inquiry. Family Support RECOMMENDATION 20.3: The Inquiry recommends that a network of support services to strengthen families, and reduce the need for welfare intervention leading to substitute care arrangements, be further developed by State and Territory welfare authorities themselves and through funding to non-government agencies which may be better accepted by the community as truly supportive in this role State 鱨վ's Welfare Services RECOMMENDATION 20.4: The Inquiry recommends that State and Territory welfare authorities immediately implement their statutory responsibilities for the protection and ongoing welfare of adolescents including, in particular, homeless youth. State welfare authorities must: improve the professionalism of their own services by upgrading the qualifications and training of their field and supervising staff; establish integrated planning to develop closer co-operation between existing departmental services and the youth sector; and realistically resource the youth sector in recognition of the numbers of homeless young people presently unable to be effectively assisted and in view of the difficulties and pressures that youth workers face. Services for Abused Adolescents RECOMMENDATION 20.5: The Inquiry recommends that State and Territory welfare authorities improve the level and quality of their services to adolescent victims of physical, emotional and sexual abuse and those at risk of such abuse (including by improving the training and supervision of staff). Responses to this problem may need to be different to those already developed for younger abused children and States may need to reflect this by implementing appropriate changes in policy and new programs particularly in the areas of education and prevention. 鱨վ in Care RECOMMENDATION 20.6: The Inquiry recommends that State and Territory governments urgently review the quality of care being provided to State wards and other children in State care programs, to ensure that they adequately protect their rights. RECOMMENDATION 20.7: The Inquiry recommends that State and Territory governments ensure that relevant departments and institutions give youth in their care timely and continuing assistance in planning post-institutional living arrangements and in supportive after-care services. The practice whereby State wards are simply provided with a letter on 'discharge' must, where it occurs, cease immediately. Provision of Comprehensive Services RECOMMENDATION 20.8: The Inquiry recommends that the Commonwealth, State and Territory authorities responsible for services for homeless youth review existing programs with particular regard to the quality of interpersonal support and counselling that they provide. RECOMMENDATION 20.9: The Inquiry recommends that a high priority be given to forming links between the youth sector and a range of support services, including counselling, psychiatric services, recreational outlets, remedial education and vocational support. Appropriate Service Delivery RECOMMENDATION 20.10: The Inquiry recommends that existing youth services urgently review their methods of operation in relation to the support needs of young people. In consultation with the youth sector, they should refine their methods of service delivery to make them more relevant to homeless youth dnd a more effective part of a network of services. Youth Worker Training RECOMMENDATION 20.11: The Inquiry recommends that Federal, State and Territory governments urgently review the funding and availability of professional training and support services for youth workers. LEGAL NEEDS AND SERVICES (Chapter 21) Access to Legal Services RECOMMENDATION 21.1: The Inquiry recommends that Federal, State and Territory governments develop and implement strategies to improve access to legal advice, information, advocacy and representation for children, with particular reference to the needs of those who are homeless. Police Interrogation and Custody RECOMMENDATION 21.2: The Inquiry recommends that existing requirements for an independent person to be present and legal advice to be available to children and young people during police questioning be strengthened, and that funding and support be provided for the expansion of advocacy services for children taken into police custody. Bail RECOMMENDATION 21.3: The Inquiry recommends that legislation establish a presumption in favour of bail for children where this is not already the case. Legislation relating to bail should specifically state that lack of accommodation is not a sufficient reason to refuse bail. RECOMMENDATION 21.4: The Inquiry recommends that Federal, State and Territory governments undertake the provision, coordination and funding of alternatives to custody pending trial, and ensure that information on these alternatives is readily available to police, magistrates, court officers, young people and workers with youth. Alternatives to custody should include bail hostels and other suitable non-custodial community placements. Legal Representation RECOMMENDATION 21.5: The Inquiry recommends that legislation in all jurisdictions be amended where necessary to give express recognition to the right of children to be represented, in their own right, in both criminal and child welfare proceedings. RECOMMENDATION 21.6: The Inquiry recommends that effective legal representation be ensured for all children appearing before the courts. Particular emphasis should be give to improving the availability and quality of representation for Aboriginal children, and for children in country and remote areas. Training for Law Officers RECOMMENDATION 21.7: The Inquiry recommends that additional positions for specialist children's legal representatives and specialist training in children's law be funded in all States and Territories. RECOMMENDATION 21.8: The Inquiry recommends that specialist training must be instituted for all magistrates and other judicial officers dealing with children. Youth Advocacy Services RECOMMENDATION 21.9: The Inquiry recommends that funding for comprehensive youth advocacy services (such as those described in Chapter 21) be substantially increased. Where an integrated advocacy service is not possible or appropriate, any service established should have an extensive and well-developed referral network. Training for Youth Workers RECOMMENDATION 21.10: The Inquiry recommends that a strategy for improved legal training and resources for youth workers be developed and implemented as part of the proposed Youth Accommodation and Support Services Program (outlined in Chapter 24). ROLE OF THE EDUCATION SYSTEM (Chapter 22) School Teachers and Homeless 鱨վ RECOMMENDATION 22.1: The following specific recommendations rest on the premise, and major recommendation, that our schools and teachers represent a critical resource which we must use effectively if we are to address the difficult issue of child and youth homelessness. Our teachers are generally dedicated to the welfare of our children. But in the current social climate of continuing family disintegration, they need, more than ever, programs, training, support and sufficient time to assist children who are homeless or in such domestic difficulty that they are at serious risk of becoming homeless. Absent a functioning family, the school is our first 'line of defence' in protecting our children. The school is often, too, the last point of contact which these children have with mainstream society. Therefore, although numerous onerous demands and expectations are already imposed on our teachers and schools, the issue of homelessness is one which must be addressed. School Counsellors RECOMMENDATION 22.2: The Inquiry recommends an expanded role for school counsellors as an essential mechanism in the prevention of child homelessness. RECOMMENDATION 22.3: The Inquiry recommends that school counsellors receive intensive training in order to effectively perform this 'welfare' role as well as a continuing role in the child's education. Disadvantaged Schools and Students Program RECOMMENDATION 22.4: The Inquiry recommends that the Federal Department of Employment, Education and Training, through the Assistance for Disadvantaged Schools and Students Program, fund: training programs aimed at giving teachers a greater sensitivity to and understanding of students demonstrating behavioural difficulties, or those who are unable to cope with existing school programs, in order to better equip them to assist those students; preventive and early intervention programs aimed at meeting the personal development, educational and vocational needs of young people who are homeless or clearly 'at risk' of homelessness; and the development, with responsible State and Territory authorities, of innovative truancy prevention programs. Student Accommodation RECOMMENDATION 22.5: The Inquiry recommends that a proposed Youth Accommodation and Support Services Program include the provision of specially designed accommodation and support services for students detached from their families. This accommodation should be located as near as possible to schools in the areas of greatest need. JOB TRAINING AND EMPLOYMENT PROGRAMS (Chapter 23) Job Creation and Job Training RECOMMENDATION 23.1: The Inquiry recommends that both job creation and job training should be part of a co-ordinated response to assisting homeless youth. Particularly Disadvantaged Unemployed Young People RECOMMENDATION 23.2: The Inquiry recommends that a special assistance program for 'particularly disadvantaged' unemployed young people be implemented in accordance with the following guidelines: the 'particularly disadvantaged' should be defined to include young people who are or have been homeless, or are at serious risk of becoming homeless; community-based organisations providing services to homeless youth and representatives of the business community should be actively involved in the development of the program; local advisory groups to oversee the implementation of this program should be established by Commonwealth Employment Service zone offices and should include representatives of relevant government agencies, local agencies working with homeless youth and the local business sector; individual community-based organisations should be funded under this program both to undertake specific employment and training programs and to provide support services, counselling and referral services to participants and potential participants; and teachers should be seconded to this program from State and Territory Education Departments to provide educational support services, such as numeracy and literacy training, and to assess the suitability of TAFE and other complementary courses. RECOMMENDATION 23.3: The Inquiry recommends that this intensive program incorporate a commitment to continuity so that services are provided for each participant through all stages of training readiness, training and employment readiness programs. Ultimately, a job should be provided for each participant. To facilitate this, a quota should be set for homeless/formerly homeless children and young people in all pre-traineeship programs commissioned. RECOMMENDATION 23.4: To enhance the chances of success for each participant, the following must be observed: secure, affordable accommodation must be provided for each participant; and wages paid should be sufficient to enable participants to live independently. A YOUTH ACCOMMODATION AND-SUPPORT SERVICES PROGRAM (Chapter 24) New, Comprehensive Commonwealth-State Program RECOMMENDATION 24.1: The Inquiry recommends that Federal, State and Territory governments negotiate a new Youth Accommodation and Support Services Program to be jointly funded and to incorporate the features which we detail below. (See paragraph 24.2.) RECOMMENDATION 24.2: The Inquiry recommends that this new Commonwealth-State Arrangement a Youth Accommodation and Support Services Program should form the centrepiece of government programs for homeless children. Commonwealth Roles RECOMMENDATION 24.3: The Inquiry recommends that, under the new arrangement, the Commonwealth's roles should be: monitoring the quality of service provision under the Program at a national level by establishing clear guidelines for the development of service contracts; monitoring the achievement of objectives by setting clear indicators for describing and measuring those objectives (these should be kept as simple as possible); encouraging innovation by supporting selected pilot programs and models and developing sound assessment techniques and information systems for the implementation of successful models; encouraging efficiency in administration by establishing and, where appropriate, funding training programs and by promulgating clear and simple guidelines; commissioning and funding research on needs and service models; and approving and funding projects jointly with State or Territory governments and in consultation with community representatives. State Roles RECOMMENDATION 24.4: The Inquiry recommends that the States' and Territories' roles should be: developing State/Territory objectives consistent with national objectives and monitoring their achievement; development of service contracts with each service provider which are consistent with national guidelines; supporting regional co-ordinating mechanisms (especially with information); promoting and funding training and the exchange of information between services; encouraging the participation of communities and community representatives in the assessment of local need and in the development and piloting of new service models; and approving and funding projects jointly with Federal officials and in consultation with community representatives. RECOMMENDATION 24.5: The Inquiry recommends that each State and Territory establish, either in its Premier's/Chief Minister's Department or as a unit directly responsible to the Minister in charge of welfare services, an Office of Youth Affairs. Consistent with the preceding recommendation, this Office would have the following functions: overall planning and co-ordination of youth policies; overall co-ordination of State activity and State-funded activity in the areas of housing, education, job training, employment, financial support and health and support services for youth; overall co-ordination to ensure rational and efficient delivery of services to children and youth, whether in families or not; development of innovative and more effective programs particularly for the prevention of homelessness; facilitation of networks and information dissemination among youth services and among young people development and funding of training for youth workers and related sectors; overall administration of youth programs; and overall supervision of project funding. Local Government Role RECOMMENDATION 24.6: The Inquiry recommends that local government authorities be encouraged to participate more actively in meeting the needs of homeless youth. Comprehensive Services RECOMMENDATION 24.7: The Inquiry recommends that a full range of accommodation options, with an emphasis on integrated medium to long-term supported and unsupported accommodation, should be the central objective. Other services for homeless children and young people should be integrated with this accommodation network, including access to financial support, job training and placement programs, life skills training, counselling, health care, advocacy and legal services. Information, referral and outreach services should also be incorporated. Basis for National Standards RECOMMENDATION 24.8: The Inquiry recommends that the standards to be developed for all services to homeless children and young people must take account of the following: the need to provide every assistance to children and their families to enable them to live together where this is possible, consistent with the child's right to be protected from cruelty and abuse; protection and promotion of the rights of children including the rights to adequate care, protection from exploitation and abuse, and enjoyment of their other basic human rights; the obligation of the state, or agencies funded by the state, to provide adequate care to children whose families cannot or will not do so; and the need to provide this care through a network of integrated services with agreed aims one of which should be to assist each child, according to his or her needs, to become a fully-participating member of our community. RECOMMENDATION 24.9: The Inquiry recommends that standards for the provision of accommodation services must ensure that all residents enjoy secure and adequate accommodation and must take into account the special needs of individuals. Basis for State Objectives RECOMMENDATION 24.10: The Inquiry recommends that State and regional objectives must be based on the need to move all residents out of crisis refuges as quickly as possible either back to their families or into more permanent, secure accommodation suitable to their needs. 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