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MZYJE v Minister for Immigration & Anor [2011] FMCA 60 (28 January 2011)
Last Updated: 9 February 2011
FEDERAL MAGISTRATES COURT OF AUSTRALIA
MZYJE v MINISTER FOR
IMMIGRATION & ANOR
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MIGRATION – Tribunal found applicant not to
be a witness of truth – whether open to Tribunal to reject her evidence?
–
no jurisdictional error – application dismissed.
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First Respondent:
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MINISTER FOR IMMIGRATION & CITIZENSHIP
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Hearing date:
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28 January 2011
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Date of Last Submission:
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28 January 2011
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Delivered on:
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28 January 2011
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REPRESENTATION
The applicant did not
appear
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Counsel for the Respondents:
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Ms Symons
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Solicitors for the Respondents:
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Clayton Utz
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ORDERS
(1) The application for judicial review filed 13 July
2010 is dismissed.
(2) The applicant pay the first respondent’s costs fixed in the amount of
$5,865.00 within 28
days.
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FEDERAL MAGISTRATES COURT OF AUSTRALIA AT
MELBOURNE
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MLG 988 of
2010
Applicant
And
MINISTER FOR IMMIGRATION &
CITIZENSHIP
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First Respondent
Second Respondent
REASONS FOR JUDGMENT
(Delivered Ex tempore and Revised)
- The
applicant arrived in Australia on 16 August 2009 (Court Book “CB”
27) and lodged an application for a Protection (Class
XA) visa on 15 September
2009.
- This
is an application for judicial review of the decision of the Refugee Review
Tribunal (the “Tribunal”) dated 12 June
2010 (CB 128) that affirmed
the decision of the Delegate not to grant the applicant a visa (CB 79).
- The
application for judicial review contains no grounds, but sought an invitation to
the hearing before the Court in order “to let me explain my sufferings
to you directly”.
- In
the orders sought by the applicant in her ‘Personal
Statement’, she alleges bias. She then complains that the decision
makers did not refer to information that she “would be arrested by
Chinese authority (sic “authorities”) and I was in the ‘black
list’”. She complains that the Tribunal found that she would not
be persecuted on her return to China and “I was lack of
credibility”. She contends that there was no material to support the
Tribunal’s decision.
- The
matter was set down for hearing today by orders by consent made 2 December 2010.
The applicant failed to appear at the hearing
today which was listed for 10.15am
and proceeded at 10.35am. The applicant was called a number of times outside
Court but did not
appear. The Court therefore delivers findings on the merits of
the applicant’s case.
- The
applicant attended a hearing before the Tribunal on 1 March 2010 (CB 147.1), but
did not attend the hearing on 6 April 2010 (CB
147.1), although she had been
invited to it (CB 113).
- The
Tribunal sent a s.424A letter to the applicant (CB 115) but the applicant did
not respond (CB 147.2).
- The
Tribunal’s s.424A letter set out many inconsistencies in the
applicant’s evidence.
- The
Tribunal did not accept much of the applicant’s evidence (CB 147 [64]) for
the reasons set out (CB 147 [65] to 148 [73]).
- The
Court adopts the following statement of law.
“Whilst a
decision maker concerned to evaluate the credibility of the testimony of a
person who claims to be a refugee in Australia
will need to consider, and in
many cases consider sympathetically, possible explanation for any delay in the
making of claims, and
for any evidentiary inconsistencies, there is not a rule
that a decision maker may not reject an applicant’s testimony on
credibility
grounds unless there are no possible explanations for the delay or
inconsistency (Taylor, “Informational Deficiencies Affecting
Refugee
Status Determinations”). Nor is there a rule that a decision maker must
hold a “positive state of disbelief”
before making an adverse
credibility finding in a refugee case. The reference by Foster J, sitting as a
member of the Full Federal
Court in Guo’s case at 191, to a requirement
for a “positive state of disbelief” was not directed to this issue
of the determination of credibility, but rather to the question of when an
adverse credibility finding will logically found a positive
finding that a
particular fact asserted by the witness does not exist”.
- “It
is not for the Court, on reviewing a decision of the Tribunal, to form its own
view as to whether it would have given the
perceived inconsistencies the
significance attributed to them by the Tribunal, or upon any such view to
conclude that the Tribunal’s
assessment of the applicant’s claims
should not have been made. Those evaluative processes are for the Tribunal. I do
not think
that the Tribunal’s assessment in this matter shows that it did
not apply the law correctly in the way alleged by the applicant.
The matters to
which it had regard were matters which, logically, it might have considered. The
applicant’s contention really
is that an erroneous conclusion was reached,
and that therefore the weight given to the factors must have been misplaced. The
Court
is not empowered to review the Tribunal’s decision on the merits. It
is confined to the ascertainment of reviewable error in
terms of s 476(1) of the
Act. In my judgment, no error of the nature contended for has been
demonstrated.” Kamal v Minister for Immigration [2002] FCA 818; 126 FCR 467 per
Mansfield J at [36].
- As
stated by the Federal Court of Australia in Lee v Minister for
Immigration and Multicultural and Indigenous Affairs [2005] FCA 464 at [27]:
- “The
Tribunal is entitled to accept or reject or give such weight to the evidence
proffered as it thinks appropriate in all
the circumstances.”
- In
W148/00A v Minister for Immigration and Multicultural Affairs
[2001] FCA 679; (2001) 185 ALR 703, Tamberlin and R.D Nicholson JJ stated at
[64]:
- “The
Tribunal decision turned on the question of credibility. A finding as to
credibility is a finding of fact and, as the
authorities indicate, a reviewing
body must not set aside such a finding simply because it thinks that the
probabilities of the case
are against, or even strongly against, the finding. As
the High Court stated in Devries v Australian National Railways Commission
(1993) 177 CLR 472 at 479; 112 ALR 641 at 646 per Brennan, Gaudron and
McHugh JJ:
- If the
trial judge’s finding depends to any substantial degree on the credibility
of the witness, the findings must stand unless
it can be shown that the trial
judge “has failed to use or has palpably misused his advantage” or
has acted on evidence
which was “inconsistent with facts incontrovertibly
established by the evidence” or which was “glaringly
improbable”.
See also Abalos v
Australian Postal Commission [1990] HCA 47; (1990) 171 CLR 167 at 179; [1990] HCA 47; 96 ALR 354. “This
latter case was concerned with the scope for review of a decision founded in
part on demeanour where the court at first
instance had an opportunity to
observe witnesses and form an impression as to the reliability of evidence given
in response to questioning.
Often a conclusion as to the credibility of a
witness will depend not only on the body language and general impression
conveyed by
a witness in the way in which questions are answered but also on a
careful consideration of the factual background or available information,
coupled with ordinary experience as to likely patterns of response. Such an
impression cannot be communicated by consideration of
the transcript
alone.”
- The
Court does not find that the Tribunal has failed to use, or has palpably
misused, its advantage, or that it has acted on evidence
which was inconsistent
with facts incontrovertibly established by the evidence or which was glaringly
improbable or that the probabilities
of the case are strongly against the
findings rejecting the evidence of the applicant.
- The
Court refers to the following decisions:
“The
Tribunal’s conclusion that the Applicant was not credible and his claims
untrue are findings of fact par excellence:
If the primary decision-maker has
stated that he or she does not believe a particular witness, no detailed reasons
need to be given
as to why that particular witness was not believed. The
Tribunal must give the reasons for its decision, not the sub-set of reasons
why
it accepted or rejected individual pieces of evidence. In any event then reason
for disbelief is apparent in this case from the
use of the word
“implausible”. The disbelief arose from the Tribunal’s view
that it was inherently unlikely that
the events had occurred as alleged. Re
Minister for Immigration and Multicultural Affairs; ex parte Durairajasingham
(2000) 168 ALR
407 McHugh J at [67]. So long as the Tribunal’s findings
were open to it, no error is demonstrated: Kopalapillai v Minister
for
Immigration and Multicultural Affairs [1998] FCA 1126; (1998) 86 FCR 547 (FC) at 558-559;
W148/00A v Minister for Immigration and Multicultural Affairs [2001] FCA 679; (2001) 185 ALR 703
(FCA/FC) at [64-69] per Tamberlin and RD Nicholson JJ. The Tribunal’s
findings were open for the reasons it gives. The Court cannot review the
merits
of the Tribunal’s decision: Minister for Immigration and Ethnic Affairs v
Wu Shan Liang (1996) 185 CLR 259 at 272, and there is no error of law, in the
Tribunal making a wrong finding of fact: Abebe v Commonwealth [1999] HCA 14; (1999) 197 CLR 510
at [137].”
- Having
made the finding of fact that the applicant was not a “witness of
truth” (CB 148 [74]), the Tribunal went on to find that “she
had created her claims in order to obtain the visa sought” (Ibid); it
then rejected much of her evidence (Ibid) as it was free to do (Lee
supra).
- The
Tribunal considered and rejected the applicant’s claim that members of the
Communist Party in China are not supposed to
believe in Buddhism (CB 149
[75]).
- The
Tribunal did not “accept that the applicant will be perceived or likely
to be perceived to be of interest to the authorities on her return to
China for
a Convention related reason” (CB 149 [76]).
- The
Tribunal found “remote the chance that the applicant would be
discriminatorily denied the protection of the Chinese authorities, should she
require it, for any Convention reason” (CB 149 [77]).
- The
Tribunal was “was not satisfied that there is a real chance that the
applicant will suffer from serious harm amounting to persecution for
reason of
her race, religion, membership of a particular social group or political
opinion, if she returns to China, either now or
in the reasonably foreseeable
future” (CB 149 [78]).
- The
Tribunal was “satisfied the applicant is able to return to
China” and was “not satisfied the applicant has a well
founded fear of persecution” (CB 149 [79]). Those findings of fact
were open to the Tribunal on the material before it and are not amenable to
review.
- In
NAHI v Minister for Immigration and Multicultural and Indigenous Affairs
[2004] FCAFC 10, the Full Court of the Federal Court decided at [10] as
follows:
“In their written submissions, the appellants took
exception to a number of findings of the Tribunal. In many cases, those
exceptions
were purely on the basis that the appellants disagree with the
findings. In effect, the appellants sought to have the Court take
a different
view of various issues of fact from that taken by the Tribunal. To engage in
fact-finding about the merits of the appellants’
case is no part of the
function of the Court, whether at first instance or on appeal, in dealing with
an application for relief under
s.39B of the Judiciary Act. As Stone J said,
Plaintiff S157 establishes that it is necessary for the appellants to show
jurisdictional
error on the part of the Tribunal, if they are to succeed.
Whatever be the boundaries of jurisdictional error, they do not comprehend
errors of fact as to merits of the case put to the Tribunal.”
- As
stated in Selvadurai v Minister for Immigration and Ethnic Affairs [1994] FCA 1105; (1994)
34 ALD 347 at [7]: “A decision-maker does not have to have rebutting
evidence available before he or she can lawfully hold that a particular factual
assertion by an applicant is not made out”.
- In
Chen Xin He v Minister for Immigration and Ethnic Affairs [1995] FCA 1682
(Federal Court of Australia, 23 November 1995, unreported) RD Nicholson J
stated at [24]:
- “It
is not the case, as the submissions for the applicant appear to assume, that the
evidence of the applicant should have
been believed by the Tribunal unless
specifically disproved by the objective evidence before the Tribunal. Rather it
was for the
Tribunal to decide what facts it found on a consideration of all the
evidence, subjective and objective. This required the Tribunal
not only to
consider inconsistencies but also to determine what evidence it found
credible”.
- The
Court refers to the decision of Collier J in SZINP v Minister for Immigration
and Citizenship [2007] FCA 1747 at [26] as follows:
- “Decisions
of the Tribunal are privative clause decisions and as such are not open to
review on the facts: S157/2002 v Commonwealth
(2003) 211 CLR 476. As is clear
from such cases as Attorney-General (NSW) v Quin (1990) 170 CLR 1 and NAAP v
Minister for Immigration and Multicultural and Indigenous Affairs [2003] FCAFC
76 errors of fact do not give rise to jurisdictional
errors”.
And at [29]:
“if the Tribunal made an error of fact, it is not a jurisdictional
error if there is some evidence upon which the finding of
fact could be made:
Epenisa v Minister for Immigration and Multicultural Affairs [2007] FCA 80 at
[36], Abebe v Commonwealth [1999] HCA 14; (1999) 197 CLR 510”.
- The
issue the applicant seeks to agitate is no more than an impermissible attack on
the factual finding of the Tribunal. The challenge
is no more than an invitation
to review the merits. The authorities make clear that the making of findings of
fact is uniquely a
matter for the decision-maker. In SHUB v Minister for
Immigration and Multicultural and Indigenous Affairs (2003) 137 FCR 43, the
Full Court at [12] quoted a passage from the decision of Selway J at first
instance, where His Honour had said:
- 16 “I
have considered all of the matters put to me. The relevant principle is clear.
Notwithstanding whatever concerns I
may have about the reasoning of the Tribunal
is analysing the factual material before it, the assessments of the material was
a matter
for the Tribunal, not for this Court. The appellant asked the Court to
undertake a review on the merits of the decision of the Tribunal.
The Court has
no jurisdiction to do so. As it was put by Justice Kenny in a similar context
in Minister for Immigration and Multicultural
Affairs v Rajalingam [1999] FCA 719; (1999) 93 FCR
220 at [146]:
- “A
tribunal such as the RRT does not commit an error of law merely because it
adopts unsound or questionable reasoning. See
Minister for Immigration and
Multicultural Affairs v Eshetu [(1999 197 CLR 611]...at paras 40, 44-45 per
Gleeson CJ and McHugh J,
138 per Gummow J and cf para 159 per Hayne; Australian
Broadcasting Tribunal v Bond [1990] HCA 33; (1990) 170 CLR 321 at 356 per Mason CJ with Brennan
J at 365, Deane J at 369 and Toohey and Gaudron JJ at 387 agreed; Road
Corporation v Dacakis [1995]
2 VR 508 at 517-520; Minister for Immigration and
Affairs v Epeabaka [1999] FCA 1; (1999) 160 ALR 543 (FC)...agree with the remarks of Katz J in
[Zuway v Minister for Immigration and Multicultural Affairs 160 ALR 391 at 399]
that a search by the Court for objective cogency in the reasons of the RRT
creates a real risk that the Court will substitute
its own view of the merits of
the case for that of the Tribunal”.
- The
applicant’s application to review findings of fact is dismissed.
- In
her application to the Court, the applicant alleges bias by the Tribunal.
- No
particulars are provided and no evidence has been filed to comply with the
requirement that an allegation of bias must be “distinctly made and
clearly proven”: SZHPD v Minister for Immigration and Citizenship
[2007] FCA 157 at [22], citing Minister for Immigration and Multicultural
Affairs v Jia Legeng (2001) 205 CLR 507. The Court also accepts that it
“will be a rare and exceptional case where actual bias can be
demonstrated solely from the published reasons for decision”: SCAA
v Minister for Immigration and Multicultural and Indigenous Affairs [2002]
FCA 668 at [38].
- To
establish bias the applicant would have to show that the Tribunal
“acted dishonestly or arbitrarily or capriciously”: SBBS v
Minister for Immigration and Multicultural and Indigenous Affairs [2002] FCAFC 361; (2002) 194
ALR 749 per Tamberlin, Mansfield and Jacobson JJ at [56-59].
- In
order to make out a case of actual bias on a decision-maker’s part, the
person alleging bias must establish that, before
a conclusion could properly be
reached, the decision-maker had made up his or her mind and was incapable of
being persuaded differently;
see e.g., Minister for Immigration and
Multicultural Affairs v Jia Legeng (2001) 205 CLR 507 (Jia) at
531 per 531 per Gleeson CJ and Gummow J.
A party alleging bias
carries a heavy onus. The allegation must be “distinctly made and
clearly proved” see Jia 531 per Gleeson J and Gummow J and 546
per Kirby J. A case of actual bias is seldom made out by reference solely to the
decision-maker’s
reasons for decision.
- The
Court refers to the following passage in SCAA v Minister for Immigration
and Multicultural and Indigenous Affairs [2002] FCA 668 at
[38]:
“Reasons for decision reflect conclusions reached at
the end of the decision making process, and if the decision is against
the party
complaining, the expression of adverse findings on credit and fact are an
inevitable part of the expression of the reasons.
The mere fact of adverse
findings at the end of the matter give rise to no inference as to the state of
mind of the decision maker
before and whilst the matter was under consideration,
nor of prejudgment of the issues that fell for decision. Even where it is
possible
to show that the adverse findings or some of them are contrary to the
evidence or unreasonable, or that the reasoning process is
hopelessly flawed,
that without more is unlikely to demonstrate that the decision maker had
embarked on the case with a closed mind,
not open to persuasion”.
- Further,
the fact that the Tribunal did not believe his claims is not evidence of bias.
Minister for Immigration and Multicultural and Indigenous Affairs v SBAN
[2002] FCAFC 431, VFAB v Minister for Immigration and Multicultural and
Indigenous Affairs [2003] FCA 872.
- In
Re Refugee Review Tribunal & Anor; Ex parte H & Anor [2001] HCA 28; (2001) 179
ALR 425 at 434 at [27], the High Court stated (citing Ebner v Official
Trustee in Bankruptcy [2000] HCA 63; (2000) 176 ALR 644 at 647 [6] per Gleeson CJ, McHugh,
Gummow and Hayne JJ) that:
- “The
test for apprehended bias in relation to curial proceedings is whether a
fair-minded lay observer might reasonably apprehend
that the judge might not
bring an impartial mind to the resolution of the question to be decided.”
There is nothing here to show that a “fair
minded lay observer might reasonably apprehend that the judge (being the
Tribunal member) might not bring an impartial mind to the resolution of the
question to be decided”.
- Bias
has not been established. The claim of bias is dismissed.
- The
applicant alleges also that the Tribunal “did not give (her) a proper
opportunity to explain my case and simply refused my application base on bias
against me”.
- The
Court has dismissed the allegation of bias. As to the allegation that the
Tribunal did not give her a proper opportunity to explain
her case, the Court
refers to the First Respondents Contentions of Fact and Law.
- The
applicant was invited to, and did attend the hearing on 1 March 2010 (CB 98).
The applicant was invited to the second hearing
on
6 April 2010 (CB 113) but
did not attend and did not contact the Tribunal to explain her absence (CB
147.2). A s.424A letter was sent
out to the applicant on 7 April 2010 (CB 115),
but the applicant did not respond (CB 147.2)
- The
applicant attended the hearing on 1 March 2010 to give evidence and present
arguments. The hearing was conducted with the assistance
of an interpreter in
the Mandarin and English languages (CB 135 [30]). (The date of appearance on 6
April 2010 (CB 135 [30]) appears
to be an error as it is inconsistent with the
detail at CB 147.1 and CB 138 at [54]. The Court finds the date of 1 March 2010
to
be the correct date; whatever date is correct, it is clear that the applicant
was invited to two hearings, and attended one).
- The
Court finds that the applicant was given full opportunity to advance her case.
She failed to respond to the s.424A letter and
address the Tribunal’s
concerns as to adverse information and her credibility. The Tribunal gave a
summary of the evidence
given at the Tribunal hearing (CB 135-138) which shows
that the applicant’s claims were covered thoroughly.
- The
claim that the Tribunal did not give the applicant a proper opportunity to
explain her case is dismissed.
- The
applicant claims that the Tribunal “did not refer to any information
from any resources about that I would be arrested by Chinese authority and I was
in the ‘black
list’”.
- The
claim of being on a “black list” was mentioned by the
Tribunal (CB 132.4) and subsumed in the finding of greater generality that
“she was not involved in or perceived to be involved in any
anti-government activity or that she wrote letters to municipal
authorities” (CB 148 [74]). It was unnecessary for the Tribunal to
make a finding on this particular claim as it was subsumed in a finding of
greater generality: Applicant WAEE v Minister for Immigration and
Multicultural and Indigenous Affairs [2003] FCAFC 184 at [47]. The claim
that the Tribunal did not have grounds to dismiss her claim about being entered
on a ‘black list’ is dismissed
- The
ground for dismissing the application was that the Tribunal found that the
applicant was “not a witness of truth” (CB 147 [64]). It
therefore rejected her claims. The decision to reject her evidence was properly
open to it (Lee supra) and is not amenable to review.
- The
Tribunal found that the applicant was not detained or harmed in China for any
reason whatsoever (CB 148 [74]). That finding of
fact was open on the material
before the Tribunal and is not amendable to review.
- The
Tribunal dealt with the claim of persecution for being a Buddhist while being a
member of the Chinese Communist Party. The Tribunal
found that there is no
evidence to support that claim (CB 149 [75]). In other words, the applicant had
not proven that claim.
- Although
“the concept of onus of proof is not appropriate to administrative
inquiries and decision making” (Yao-Jing Li v Minister for
Immigration and Multicultural Affairs (1997) 74 FCR 275 at 288), the
relevant facts of the individual case will have to be supplied by the applicant
himself or herself, in as much detail
as is necessary to enable the examiner to
establish the relevant facts.
The Court refers to the following
decisions:
“The mere fact that a person claims fear of persecution for a
particular reason does not establish either the genuineness of
the asserted fear
or that it is “well-founded” or that it is for the reason claimed.
It remains for the applicant to
satisfy the Tribunal that all of the statutory
elements are made out.”
A decision-maker is not required to make the applicant’s case for him
or her: Prasad v Minister for Immigration and Ethnic Affairs [1985] FCA 47; (1985) 6 FCR
155 at 169-70; Luu & Anor v Renevier [1989] FCA 518; (1989) 91 ALR 39 at 45. Nor is the
Tribunal required to accept uncritically any and all allegations made by the
applicant: Randhawa v Minister for
Immigration and Ethnic Affairs [1994] FCA 1253; (1994) 52 FCR
437 at 451. Minister for Immigration and Ethnic Affairs v Guo & Anor (1997)
144 ALR 567 at 596. Nagalingham v Minister for Immigration,
Local Government and
Ethnic Affairs [1992] FCA 470; (1992) 38 FCR 191.
- The
Court applies the following decision in another
matter:
“The reasons that the applicant failed to establish
this matter, includes that he failed to provide sufficient information about
his
claims to satisfy the Tribunal. The decisions of the Full Federal Court in NAST
v Minister for Immigration and Multicultural
and Indigenous Affairs [2004] FCAFC
208 (Beaumont, Merkel and Hely JJ), NAVX v Minister for Immigration and
Multicultural and Indigenous Affairs [2004] FCAFC 287 (French, Emmett and
Dowsett JJ) and Minister for Immigration and Multicultural and Indigenous
Affairs v VSAF of 2003 [2005] FCAFC 73 (Black CJ, Sundberg and Bennett JJ)
confirm that this is a valid reason for the application to be
rejected.”
- The
Court finds that the Tribunal’s decision is a privative clause decision
that has not been infected with jurisdictional error.
In such circumstances, and
pursuant to s.474 of the Act, there is no jurisdiction for this Court to
interfere.
- The
application for judicial review is dismissed.
I certify that the
preceding fifty (50) paragraphs are a true copy of the reasons for judgment of
Turner FM
Date: 7 February 2011
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