04/16/2002 03:07 PM House HES
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+ teleconferenced
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ALASKA STATE LEGISLATURE
HOUSE HEALTH, EDUCATION AND SOCIAL SERVICES
STANDING COMMITTEE
April 16, 2002
3:07 p.m.
MEMBERS PRESENT
Representative Fred Dyson, Chair
Representative Peggy Wilson, Vice Chair
Representative John Coghill
Representative Vic Kohring
Representative Sharon Cissna
Representative Reggie Joule
MEMBERS ABSENT
Representative Gary Stevens
COMMITTEE CALENDAR
CONFIRMATION HEARING
Professional Teaching Practices Commission
Steven Beardsley - Anchorage
- CONFIRMATION ADVANCED
CS FOR SENATE BILL NO. 11(FIN)
"An Act relating to required school attendance; and providing
for an effective date."
- MOVED CSSB 11(FIN) OUT OF COMMITTEE
PREVIOUS ACTION
BILL: SB 11
SHORT TITLE:COMPULSORY SCHOOL ATTENDANCE/AK HISTORY
SPONSOR(S): SENATOR(S) THERRIAULT
Jrn-Date Jrn-Page Action
01/08/01 0014 (S) PREFILE RELEASED - 12/29/00
01/08/01 0014 (S) READ THE FIRST TIME -
REFERRALS
01/08/01 0014 (S) HES, FIN
02/05/01 (S) HES AT 1:30 PM BUTROVICH 205
02/05/01 (S) Heard & Held
02/05/01 (S) MINUTE(HES)
04/20/01 (S) HES AT 1:30 PM BUTROVICH 205
04/20/01 (S) Heard & Held
04/20/01 (S) MINUTE(HES)
04/27/01 (S) HES AT 1:30 PM BUTROVICH 205
04/27/01 (S) Moved Out of Committee
04/27/01 (S) MINUTE(HES)
04/28/01 1323 (S) HES RPT 1DP 1DNP 2NR
04/28/01 1323 (S) NR: GREEN, WARD; DP: DAVIS;
DNP: LEMAN
04/28/01 1323 (S) FN1: INDETERMINATE(EED)
02/21/02 (S) FIN AT 9:30 AM SENATE FINANCE
532
02/21/02 (S) Heard & Held
02/21/02 (S) MINUTE(FIN)
02/28/02 (S) FIN AT 9:00 AM SENATE FINANCE
532
02/28/02 (S) Moved CS(FIN) Out of
Committee
02/28/02 (S) MINUTE(FIN)
03/01/02 2336 (S) FIN RPT CS 6DP 3NR NEW TITLE
03/01/02 2336 (S) DP: DONLEY, KELLY, GREEN,
AUSTERMAN,
03/01/02 2336 (S) WILKEN, LEMAN;
03/01/02 2336 (S) NR: HOFFMAN, OLSON, WARD
03/01/02 2336 (S) FN1: INDETERMINATE(EED)
03/05/02 (S) RLS AT 10:00 AM FAHRENKAMP
203
03/05/02 (S) MINUTE(RLS)
03/05/02 2387 (S) RULES TO CALENDAR 3/6/02
03/06/02 2387 (S) FN2: ZERO(EED)
03/06/02 2389 (S) READ THE SECOND TIME
03/06/02 2389 (S) FIN CS ADOPTED UNAN CONSENT
03/06/02 2389 (S) ADVANCED TO THIRD READING
UNAN CONSENT
03/06/02 2389 (S) READ THE THIRD TIME CSSB
11(FIN)
03/06/02 2389 (S) PASSED Y14 N4 E2
03/06/02 2390 (S) EFFECTIVE DATE(S) SAME AS
PASSAGE
03/06/02 2390 (S) DAVIS NOTICE OF
RECONSIDERATION
03/13/02 2419 (S) RECON TAKEN UP - IN THIRD
READING
03/13/02 2419 (S) PASSED ON RECONSIDERATION Y18
N- E1 A1
03/13/02 2419 (S) EFFECTIVE DATE(S) SAME AS
PASSAGE
03/13/02 2420 (S) TRANSMITTED TO (H)
03/13/02 2420 (S) VERSION: CSSB 11(FIN)
03/15/02 2537 (H) READ THE FIRST TIME -
REFERRALS
03/15/02 2537 (H) EDU, HES
04/03/02 (H) EDU AT 8:00 AM CAPITOL 120
04/03/02 (H) Moved CSSB 11(FIN) Out of
Committee
MINUTE(EDU)
04/03/02 2778 (H) EDU RPT 4DP 1NR
04/03/02 2778 (H) DP: GUESS, PORTER, WILSON,
BUNDE;
04/03/02 2778 (H) NR: GREEN
04/03/02 2778 (H) FN2: ZERO(EED)
04/16/02 (H) HES AT 3:00 PM CAPITOL 106
WITNESS REGISTER
STEVEN BEARDSLEY, Appointee
Professional Teaching Practices Commission
13201 Reef Place
Anchorage, Alaska 99515
POSITION STATEMENT: Testified as appointee to the Professional
Teaching Practices Commission.
WILDA RODMAN, Staff
to Senator Gene Therriault
Alaska State Legislature
Capitol Building, Room 121
Juneau, Alaska 99801
POSITION STATEMENT: Testified on behalf of the sponsor of CSSB
11(FIN).
EDDY JEANS, Manager
School Finance and Facilities Section
Education Support Services
Department of Education and Early Development
801 W 10th Street, Suite 200
Juneau, Alaska 99801-1894
POSITION STATEMENT: Answered questions.
KATHY WIGHT-MURPHY, Vice President
National Education Association - Alaska
(No address provided)
POSITION STATEMENT: Highlighted the importance of attendance.
ACTION NARRATIVE
TAPE 02-32, SIDE A
Number 0001
CHAIR FRED DYSON called the House Health, Education and Social
Services Standing Committee meeting to order at 3:07 p.m.
Representatives Dyson, Wilson, Coghill, and Joule were present
at the call to order. Representatives Stevens and Cissna
arrived as the meeting was in progress.
CONFIRMATION HEARING
Professional Teaching Practices Commission
CHAIR DYSON announced that the first order of business would be
the consideration of Steven Beardsley's appointment to the
Professional Teaching Practices Commission (PTPC).
Number 0071
STEVEN BEARDSLEY, Appointee, Professional Teaching Practices
Commission, testified via teleconference. Mr. Beardsley
informed the committee that he has served on PTPC for one term,
three years, and this confirmation would result in another
three-year commitment. In response to Chair Dyson's comments
regarding Mr. Beardsley's skiing activities, Mr. Beardsley
expressed his pleasure in having been involved with the World
Special Olympic Games. In further response to Chair Dyson, Mr.
Beardsley informed the committee that he is in his 27th year
teaching in Anchorage. He specified that he has worked at both
the Huffman Elementary and Klatt Elementary Schools.
CHAIR DYSON inquired as the types of issues that come before
PTPC.
MR. BEARDSLEY explained that PTPC deals with teaching ethics
around the state for all [certified] positions. Mr. Beardsley
predicted that the state is going to face the issue of teachers
going out on contracts. Some of the Bush communities are
finding it difficult to find teachers to fill their needs. If
those teachers are found, the teachers often have difficulties
adjusting to the Bush lifestyle. These difficulties can result
in teachers leaving [before their contract is completed]. Mr.
Beardsley said that he didn't view leaving in such a situation
as very ethical.
CHAIR DYSON related his belief that [many] in the legislature
are very concerned with such situations in the Bush. He
inquired as to the enforcement powers of PTPC and the
legislature when teachers break contracts.
MR. BEARDSLEY explained that it would be a contractual issue for
which the district would have to file a complaint that would
have to be investigated by the executive director of PTPC. The
action taken in such a situation could go as far as suspension.
He confirmed that the PTPC has taken action in such situations.
Number 0378
CHAIR DYSON recalled that the legislature passed school behavior
and safety standards requiring each district to go through a
process with the community in order to agree upon behavior and
safety standards. Chair Dyson said, "I'm pretty zealous that
each district and school do that and that the teachers be able
to see what those agreed upon standards are before they sign a
contract."
MR. BEARDSLEY pointed out that the [reasons some teachers leave]
may also be related to working conditions and social standards,
especially in the Bush.
CHAIR DYSON agreed.
MR. BEARDSLEY informed the committee that all teachers who have
applied for a certificate have received the professional
teaching practices standards that have been adopted by PTPC and
supported by the legislature. Therefore, the teachers should be
cognizant of the standards in effect via the regulations that
already exist.
Number 0493
REPRESENTATIVE JOULE inquired as to whether housing is an issue.
MR. BEARDSLEY said that he believes it can be sometimes.
Housing is a contractual item with which PTPC isn't involved.
He reiterated the difficulties that result when teachers leave
after signing a contract.
REPRESENTATIVE JOULE thanked Mr. Beardsley for his service.
REPRESENTATIVE WILSON asked if there are other issues that PTPC
addresses.
MR. BEARDSLEY replied yes. There are a host of regulations that
PTPC addresses, from sexual [misconduct] to situations with
firearms. Mr. Beardsley pointed out that some school districts
have gone into mediation with the National Education Association
- Alaska (NEA-AK) in order to deal with many of the personal
issues that aren't really related to ethics. He predicted that
such will happen more in the Bush communities.
REPRESENTATIVE COGHILL noted his appreciation of Mr. Beardsley's
work. He inquired as to how PTPC would deal with teachers who
have qualifications on paper, but aren't actually qualified
teachers.
MR. BEARDSLEY characterized such a situation as a district
concern. He said that [PTPC] doesn't see too many of those
situations.
CHAIR DYSON asked if there was any objection to forwarding Mr.
Beardsley's name to the full body for confirmation. There being
no objection, Mr. Beardsley's name was forwarded. Chair Dyson
thanked Mr. Beardsley for his work on the PTPC.
SB 11-COMPULSORY SCHOOL ATTENDANCE/AK HISTORY
CHAIR DYSON turned to the next order of business, CS FOR SENATE
BILL NO. 11(FIN), "An Act relating to required school
attendance; and providing for an effective date."
Number 0709
WILDA RODMAN, Staff to Senator Gene Therriault, Alaska State
Legislature, testified on behalf of the sponsor of CSSB 11(FIN).
She pointed out that AS 14.30.010(a) establishes the compulsory
school age for attendance at seven. She paraphrased the
following sponsor statement:
SB 11 requires a parent or guardian who elects to
enroll a child in first grade at the age of six to
maintain that child in attendance. It does not take
away the parent's option of choosing public, private
or home schooling. It also does not take away the
option of enrolling a child in kindergarten at age
five or six. Finally, it does not take away any of
the exemptions for allowable absences currently
provided under existing law.
Research indicates that earlier education is
beneficial, and in fact most children in Alaska are
enrolled by the age of six. However, a small
percentage of students who are enrolled do not
actually attend on a regular basis because state law
does not require attendance until age seven. So even
though a six-year-old might be enrolled in school,
he/she could miss an unlimited number of days and
still not be considered truant. This places a burden
on teachers to keep that student up with the rest of
the class and increases the potential for the student
to be "held back."
CHAIR DYSON asked what would happen if a parent enrolls their
child at age six, but it becomes obvious that the child isn't
prepared. Is there a process by which the parent can disenroll
the child and thus not fall under the compulsory education
rules, he asked.
MS. RODMAN said she didn't know, but believes that it would be a
situation in which the child would have to stay out of school
once disenrolled. She deferred to Mr. Jeans.
Number 0880
EDDY JEANS, Manager, School Finance and Facilities Section
Education Support Services, Department of Education and Early
Development (EED), informed the committee that if a parent
elects to withdraw their child, there are 12 exemptions under
the compulsory school law that would allow the parent to
withdraw the child from the public school system. He reiterated
that the intent of SB 11 is that once a child is enrolled, the
child remains in attendance, not sporadic attendance. He
offered to provide the committee with the law listing the 12
exemptions. In response to Chair Dyson's question, Mr. Jeans
specified that a parent could withdraw a child on the premise
that the child will be home schooled, which is the one he would
recommend the parent utilize [in such a situation]. Mr. Jeans
related his belief that SB 11 is intended to be a tool for
principals to use for sporadic attendance.
CHAIR DYSON said that the 12 exemptions don't seem to exactly
handle the situation which he posed. He agreed that the only
applicable exemption seems to be if the child is educated at
home. Chair Dyson reiterated that he asked if a child could be
withdrawn because the child is really not mature enough for
school. Under the 12 exemptions it seems that such a withdrawal
could only occur if a competent medical authority determines
that the child isn't capable [of attending public school].
The committee took a brief at-ease from 3:22 p.m. to 3: 23 p.m.
CHAIR DYSON continued by saying that it seems that once a child
is enrolled in school, a parent can't easily make the decision
that it was an inappropriate decision to enroll the child. He
related his understanding that the parent would have to go
through a medical authority or go through a bit of a charade by
saying that the child is being home schooled.
MR. JEANS concurred with Chair Dyson's analysis. However, Mr.
Jeans explained that once a parent notifies the school district
that their child will be withdrawn on a full-time basis, the
school district doesn't view the child as being truant.
CHAIR DYSON said that although he understood that [SB 11]
attempts to solve a problem, it inadvertently places the parent
in a bit of a quandary in the aforementioned scenario. Chair
Dyson proposed the possibility of the school nurse determining
that a child isn't ready for school.
REPRESENTATIVE JOULE interjected that many schools don't have
nurses.
Number 1135
REPRESENTATIVE WILSON related her belief that the school nurse
wouldn't be in a position to make such a decision. It seems
that currently this bill takes care of [the attendance problem]
unless the parent merely withdraws the child, which the parent
can't do if this bill is passed.
REPRESENTATIVE JOULE asked if, in the scenario presented by
Chair Dyson, the child returning to school at age seven would be
required to start where the child had left off.
CHAIR DYSON assumed that would be the case. Chair Dyson
clarified that his scenario was one in which a six-year-old
starts school and in a couple of weeks the parent decides that
the child isn't mature enough and thus withdraws the child.
Chair Dyson pondered the addition of a paragraph (13) that would
specify that a parent could withdraw a child once in a year.
REPRESENTATIVE WILSON directed attention to AS 14.30.010(8),
which says: "is excused by action of the school board of the
district at a regular meeting or by the district superintendent
subject to approval by the school board of the district at the
next regular meeting;". Therefore, she surmised that a parent
wanting to withdraw a child could approach the superintendent to
do so. It seems like a fairly easy process, she said.
CHAIR DYSON suspected that would be fairly easy. However, many
schools are far away from their superintendent or school board.
Number 1327
MR. JEANS informed the committee that school districts are
required to perform a developmental profile on students when
they first enter the public school system. Mr. Jeans said he
understood Chair Dyson's scenario to be one in which the parent
and/or the school determine that a child isn't ready for first
grade. He related his difficulty in believing that a school
district would keep a child in school an additional year when
the parent, and probably the developmental profile, has
determined that the child isn't ready. He indicated agreement
with Representative Wilson that paragraph (8) could be used to
relieve a child of the compulsory school age requirement.
MR. JEANS noted that the members of the Senate Health, Education
and Social Services Standing Committee were very reluctant about
lowering the compulsory school age to six because of some of the
issues that have been raised today. Therefore, the result was
CSSB 11(FIN), which says that once the child is enrolled, the
child must attend school.
CHAIR DYSON said that he, too, didn't foresee a school forcing a
child to attend school. However, the school's average daily
membership (ADM) would fall [if the child doesn't stay until
October when it's calculated]. Chair Dyson expressed objection
to the lack of an easy category for a parent to formally
withdraw a student. Chair Dyson presented the option of holding
the bill so that Senator Therriault could decide whether this is
an issue to bother about or whether the bill could be passed out
of this committee and could be dealt with in the House Rules
Standing Committee.
Number 1530
MS. RODMAN said that she was unclear as to why Chair Dyson felt
that the paragraph (8) exemption wouldn't work.
CHAIR DYSON related his belief that a parent should be able to
withdraw his/her child without getting the superintendent,
school board, or doctor involved. Furthermore, he didn't
believe that the parent should have to commit in writing to
doing full-blown home education. Although Chair Dyson felt it
[paragraph (8)] would work, he said it doesn't quite fit
ethically.
REPRESENTATIVE WILSON reiterated her belief that paragraph (8)
would address Chair Dyson's concern. Even if the superintendent
or school board is miles away, there has to be a principle
teacher who would call and take care of the situation. She
didn't view this as a problem.
REPRESENTATIVE DYSON asked if Representative Wilson believes
that a parent needs to have the school board and the
superintendent rubber stamp their decision, or should a parent
be able to withdraw their child on their own.
REPRESENTATIVE WILSON said she didn't believe it's a big deal to
tell the teacher or the principal that the parent wants to
withdraw their child.
CHAIR DYSON stressed that it's not official until the school
board and the superintendent [approve the withdrawal].
REPRESENTATIVE WILSON mentioned that this would be a problem for
those schools with nine students.
REPRESENTATIVE COGHILL said this is something worth addressing.
Number 1666
REPRESENTATIVE JOULE suggested that maybe the law should read
that the compulsory school attendance age is seven, but if the
parent chooses to enroll their child at age six ...
CHAIR DYSON interjected, "then they can't get out without the
superintendent and the school board agreeing." Chair Dyson
clarified that such will be the situation if this legislation
passes.
REPRESENTATIVE CISSNA expressed concern that making a big deal
out of something with children can sometimes make the child feel
that they are to blame or that they are stupid. Therefore,
[withdrawal] should be [a fairly easy] process for the child.
CHAIR DYSON agreed, but suspected, as Representative Wilson has
indicated, that the [withdrawal process] would happen quite
matter of factly.
MS. RODMAN remarked that CSSB 11(FIN) addresses this issue in
that parents knowing that such a withdrawal process was required
may make parents think twice before enrolling their child and
letting the child attend sporadically. At least this
legislation would eliminate the problem of parents using the
school as a day care.
Number 1801
KATHY WIGHT-MURPHY, Vice President, National Education
Association - Alaska (NEA-AK), informed the committee that she
has been a teacher for 27 years, 19 of those years have been in
Alaska. Ms. Wight-Murphy said that she has never seen a school
deny a parent's request to withdraw their child. Ms. Wight-
Murphy related her belief that decisions are made with respect
to the best interests of the children. She couldn't imagine a
decision would be made to hold a child in a classroom for which
a child wasn't developmentally ready if the parent was
requesting withdrawal.
CHAIR DYSON agreed. However, he asked if Ms. Wight-Murphy
believes that a parent should only be able to withdraw a student
under one of the current 12 exemptions.
MS. WIGHT-MURPHY said that she hasn't seen the 12 exemptions.
However, in the reality of everyday life she didn't believe a
school would deny a parental request to withdraw their child.
Although she has never personally seen the need for
documentation in relation to these 12 exemptions, she noted that
she has limited knowledge about [withdrawal processes].
CHAIR DYSON surmised that [schools] have done the right thing
without obeying the law.
MS. WIGHT-MURPHY related, as a public school teacher, that
parents' wishes are taken into consideration. Having taught
kindergarten and first grade, Ms. Wight-Murphy said that the
issue of attendance is critical as is the need for the child to
have good peer relations as well as feel successful. She
estimated that one or two children in every classroom across the
state miss a great deal of days during the school year.
CHAIR DYSON agreed with the need to solve this attendance
problem. The only question that has been raised is with regard
to the need to include a category in the criteria to accomplish
exactly what Ms. Wight-Murphy is saying.
Number 1982
REPRESENTATIVE CISSNA surmised that it has been state law that
once a child is enrolled in school, the child can't be withdrawn
without some formal process. If the case has been that the
teachers have been understanding and allowed the withdrawals
when requested by the parent, then would they have been breaking
the law.
MR. JEANS said that isn't really the issue before the committee.
He explained that currently the compulsory school age is seven
and thus seven-year-olds are required to attend school unless
they meet one of the 12 exemptions. Mr. Jeans explained that
this legislation came about because some elementary school
principals have first grade students that are attending school
sporadically. In response to questions about these students'
sporadic attendance, the parents say that their six-year-old
isn't required to attend school because the child isn't seven-
years-old. If there is enough sporadic attendance, the child
ultimately will be held back. However, that still doesn't
address the disruption that occurs with the sporadic attendance.
This legislation intends to specify that once a parent enrolls
his/her six-year-old in first grade, the child is required to
attend on a daily basis. If the parent decides that his/her
child isn't ready for school, then the parent doesn't have to
enroll the child until age seven.
REPRESENTATIVE CISSNA stressed that this is a child and the
parent may not know the reaction of the child until he/she is
attending school. She indicated the need to have an escape
clause for a parent who sees their child having difficulty [in
public school]. In the case in which a parent decides to
withdraw a student, [this legislation and existing exemptions]
don't really work.
MR. JEANS agreed that there isn't a clean [process] for the
parent when a parent wants to withdraw their six-year-old three
weeks into the school year. If the committee decides to do an
amendment, he recommended the amendment be to subsection (c)
versus adding another exemption under the compulsory school age.
Number 2190
MS. RODMAN reported that Senator Therriault is chairing a Senate
State Affairs Standing Committee meeting and thus would
recommend holding the bill if his assistance is necessary. Ms.
Rodman related her belief that Senator Therriault would be
amenable to an amendment to [subsection (c)].
Number 2200
CHAIR DYSON informed the committee that he has developed the
following amendment: "(13) the parent may withdraw a six-year-
old child from the first grade once." Chair Dyson offered Ms.
Rodman the choice of moving the bill out of committee with the
aforementioned amendment or holding the bill until Thursday.
MS. RODMAN requested that the committee move out the bill [with
the amendment].
REPRESENTATIVE COGHILL said that he was thinking about adding
language to subsection (c) that would say, "choosing to withdraw
the child may be one time this year".
REPRESENTATIVE STEVENS commented that this is as much about
parents as it is about children. Representative Stevens
returned to the developmental profile, which has the goal of
determining whether the child is truly ready to enter the first
grade. He asked whether the parents and teacher of the child
would meet to determine whether a child is ready to enter the
first grade.
MR. JEANS said that the developmental profile is performed when
the child first enrolls, which would be in kindergarten or first
grade. Mr. Jeans agreed with Representative Stevens assumption
that the developmental profile would screen out those children
that aren't ready for the first grade.
REPRESENTATIVE STEVENS said that he didn't really see a problem.
REPRESENTATIVE JOULE, in response to Chair Dyson, said that he
didn't know if the screening works in the communities in his
district. He mentioned that in his area many children enter
school at age four or five. Therefore, at age six there [should
be] knowledge [as to whether the child is ready for first
grade].
Number 2337
REPRESENTATIVE CISSNA informed the committee that in her
district a number of schools have high transiency rates. The
principals have related to her that these are very different
children. The parents of these children often work two jobs and
thus [the school] is sort of teaching the parents along with the
children.
TAPE 02-32, SIDE B
REPRESENTATIVE CISSNA expressed the need for the school to have
as good a relationship with the parents as possible.
CHAIR DYSON informed the committee that there is also the option
of passing out CSSB 11(FIN) unamended, and if need be there
could be an amendment on the floor.
Number 2290
REPRESENTATIVE WILSON identified the problem as the parent
wanting the child to stay in school [even with sporadic
attendance] while the school wants consistent attendance.
CHAIR DYSON related his belief that exemption (8) in existing
law addresses that problem. Chair Dyson pointed out that the
system will know whether the child is ready for first grade for
those children who enter school for kindergarten or other early
education. The child of concern is the one for which the front-
end screening doesn't work and after enrollment the parent
determines that the child isn't ready for first grade. Although
the parent and school may agree that the child should be
withdrawn, there isn't an existing exemption that accurately
fits the situation.
MR. JEANS reminded the committee that this discussion really
addresses enrolling six-year-olds who have never been part of
the public school system. However, the legislation is really
for those children who have been part of the public school
system, but have had sporadic attendance and used the compulsory
school age law as a reason that the child doesn't have to attend
consistently.
CHAIR DYSON announced that he wouldn't offer his amendment.
REPRESENTATIVE COGHILL announced that he wouldn't offer his
amendment, although he would specify the need to amend on the
bill report.
Number 2180
REPRESENTATIVE COGHILL moved to report CSSB 11(FIN) out of
committee with individual recommendations. There being no
objection, CSSB 11(FIN) was reported from the House Health,
Education and Social Services Standing Committee.
CHAIR DYSON announced that he would be presenting a bill for the
committee to consider whether to sponsor. The bill is an effort
that he and Senator Kelly are working on with regard to funding
for elective abortions.
ADJOURNMENT
There being no further business before the committee, the House
Health, Education and Social Services Standing Committee meeting
was adjourned at 4:00 p.m.
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