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Status of MSW management system in northern India-anoverview
Kuldeep Ojha
Received: 11 February 2010 / Accepted: 14 June 2010 / Published online: 23 June 2010� Springer Science+Business Media B.V. 2010
Abstract Many Indian cities are facing serious problems in managing solid wastes with
rise in population and urbanization. This article assesses the existing state of municipal
solid waste management (MSWM) in northern India with the aim of identifying the major
obstacles to its efficiency and the prospects for improvisation of the solid waste man-
agement system in the region. The existing solid waste management system in the region is
found to be highly inefficient. Primary and secondary collection, transportation and open
dumping are the only activities practiced that too in a non-technical manner. Many cities in
region face serious problems in managing solid wastes. The annual waste generation
increases in proportion to the rises in population and urbanization. This paper systemati-
cally assesses the obstacles in the existing solid waste management system in the urban
areas of region and also tries to assess the potentials for its improvisation.
Keywords Municipality solid waste � Waste management system � Waste to energy
1 Introduction
From time immemorial, human beings have been utilizing resources of earth to support
themselves. In early times, the needs were less and resources were plenty as the population
was much less, and consequently, wastes were not a significant problem. Waste is a result
of human activities from the dawn of civilization, which has become more prominent
during and after industrial revolution and rise of population. Today, accumulation of waste
has become a consequence of life in an industrialized society.
India has, in the past two decades, become a potential economic world leader and is
experiencing a steady economic growth. This increased growth has led to increasing
Readers should send their comments on this paper to [email protected] within 3 monthsof publication of this issue.
K. Ojha (&)Dr B R Ambedkar National Institute of Technology, Jalandhar, Indiae-mail: [email protected]
123
Environ Dev Sustain (2011) 13:203–215DOI 10.1007/s10668-010-9256-6
consumerism, especially in the urban sector. This is fast leading to depletion of natural
resources and poses a significant challenge to the country’s sustainable and ecological
development (Zia and Devadas 2000).
1.1 Waste management system
Refuse is often considered as useless, unwanted and therefore discarded. Waste is defined
as ‘‘anything rejected as worthless, or in excess of what is required’’ (New edition concise
English-dictionary 1999). Byrne considered the waste as material, which has no direct
value to the producer and so must be disposed of (Byrne 1997). Bailie declares that ‘‘for
practical purposes, the term ‘waste’ includes any material that enters the waste-manage-
ment system’’, i.e. organized program and central facilities established not only for final
disposal of waste but also for recycling, reuse, material reclamation, composting and
incineration (Bailie et al. 1996). Wastes are generally classified as per the three states of
matter, namely gaseous, liquid, or solid. Solid wastes form the subject of the present study
with respect to northern India. Balilie described solid refuse as including all waste
materials that are not hazardous; in addition, there are liquid wastes and emissions to the
atmosphere (Bailie et al. 1996). Kiely interestingly defined solid refuse to embrace wastes
from ‘‘human and animal activities, including liquid wastes like paints, old medicines,
spent oils, etc.’’ (Kiely 1998). However, the present study considers solid refuse to be
largely non-flowing. Because of this characteristic and its inability (at ambient tempera-
tures) to vaporize, its handling and management are relatively difficult compared with
those for liquid and gaseous wastes (Ogunbiyi 2001). Hence, the solid waste has to be
retained hygienically until it is physically removed for disposal. Municipal solid waste
(MSW) is all waste collected by private and public authorities from domestic, commercial
and some industrial (non-hazardous) sources. Furthermore, some researchers posited that
MSW comprises small and moderately sized solid waste items from houses, businesses and
institutions (Bailie et al. 1996; Kiely 1998). The composition and type of refuse may vary
from location to location, as well as from one householder to another (Kiely 1998; Pickford
1977). Hence, solutions should be location specific. Even domestic refuse from a single
house will vary from week to week and from season to season. MSW is a complex mixture
of biodegradable and non-biodegradable substances. Thus, a comprehensive waste man-
agement program is needed, and it should consider the inconsistencies of the refuse in
relation to the location and season. Waste management system is associated with the
identification, reduction, storage, collection, transfer and transport, reuse and recycling,
and processing and disposal of waste, keeping in view health, economics, engineering,
conservation, esthetics and all other environmental conditions involved in the complete
spectrum of solution to the problem of waste (Jalan and Srivastava 1996).The inefficient
and improper methods of waste management particularly in developing country like India
(Vrat 1979) are creating pollution problems in the air, land and water resources that are
interfering with community life and development.
The sectors of waste management, waste generation and consumption of outputs of
waste management are schematically shown in Fig. 1. Most MSW that are generated find
their way into land and water bodies without proper treatment, causing severe water
pollution. They also emit greenhouse gases like methane and carbon dioxide and add to air
pollution. Tsiliyannis (1999) discussed the main environmental problems related to
MSWM, and in particular those concerning pollutant releases. The problems caused by
solid and liquid wastes can be significantly mitigated through the adoption of environment-
friendly waste-to-energy technologies that will allow treatment and processing of wastes
204 K. Ojha
123
before their disposal. These measures would reduce the quantity of wastes, generate a
substantial quantity of energy from them and greatly reduce pollution of water and air.
For MSW management, generally local governments are responsible, but most
administrations in developing countries like India fail to provide the service for a large
section of the population (Pfammatter 1996). The main reason for this situation is the rapid
growth of population coupled with the expansion of cities together with the diminishing
financial resources. It is reported that urban population in developing countries is
increasing at about 50 million per year all of whom demand for service provision (Choguill
1996). Thus, the local governing bodies have difficulties in keeping pace with this
development and in meeting the growing demand for MSW management services in
general and collection services in particular. However, due to a lack of capacity in the
public sector, the private sector has stepped in to fill the gap. The contribution by the
private sector to solid waste service provision is now a common phenomenon in most cities
in developing countries (Ali 1997).
1.2 Northern India
Northern India consists of states of Rajasthan, Uttar Pradesh, Uttarakhand, Delhi, Hari-
yana, Punjab, Himachal Pradesh, and Jammu and Kashmir, as well as the Union Territory
of Chandigarh. Mainly, the MSW management system is a feature of cities due to higher
population density. In rural areas, it is not such a serious problem. So the paper presents
overview of waste management system in class 1 cities in northern region. The cities to be
covered under the project were classified into four categories, namely Very Big, Big,
Medium and Small. The cities were divided into the four categories based upon the
population of the city (census report, 2001) as shown in Table 1, Fig. 2.
Waste generating Sectors
Domestic Waste
Commercial Commercial Waste
General Municipal Waste
Composting Biodegradable
recycling Non-biodegradable
recycling
Incineration Landfills
Consuming sector
Fig. 1 Overall waste management system
Status of MSW management system in northern India-an overview 205
123
About 32 % of total population is centered in four major cities Delhi, Lucknow, Jaipur
and Kanpur as shown in Fig. 1. Out of total 52 million population, 15% is of big cities
population, 15% is of medium cities population and 38% is from small cities.
1.3 Methodology
At the outset, extensive literature review has been done on the available and employed
methods for MSW management in the region. Subsequently, information about policy,
legislation and general information on waste management was collected from various
government reports and research papers. Information about waste quantities and charac-
teristics was taken from National Master Plan for Development of Waste-to-Energy. Field
studies were conducted by the Authors to understand the various issues regarding col-
lection, transportation and disposal of municipal waste.
2 Generation and composition of wastes
Waste generation is the first element of waste management. It is a prerequisite to any waste
management plan to have adequate knowledge of the generators of waste, its physical and
chemical characteristics. Table 2 shows generators and types of municipality solid waste.
The composition and amount of the wastes that are generated are critical data for the
formulation of new waste management plans and technologies. Accurate estimations of
these variables are necessary to the design of resource recovery and materials cycles.
Waste minimization will not be carried out effectively without having reliable waste
composition data. An evaluation of the impacts of certain types of waste and an estimation
Table 1 Division of class 1 cities in northern region (Source—National Master Plan for Development ofWaste-to-Energy in India)
Serial no. Category Population range Number of cities
1 Very big city More than 1.5 Million 04
2 Big city Between 1.0 Million and 1.5 Million 07
3 Medium city Between 0.5 and 1.0 Million 11
4 Small city Less than 0.5 Million 96
32%
15%15%
38%
Very big cities
Big cities
Medium cities
Small cities
Fig. 2 Division of population inclass 1 cities in northern region(Total population = 52 million)
206 K. Ojha
123
of the life of landfills require sufficient waste composition data (Klee 1994). Both the
quantity and composition of waste vary widely from day to day and from season to season,
and considerable differences may be observed not only between countries but also between
neighboring localities and between types of property within the same city.
2.1 Solid waste generation
About 29682 tons of solid waste is generated every day in class I cities of northern region of
the country, of which about 13110 tons is generated from the very big cities like Delhi,
Kanpur, Lucknow and Jaipur. The big cities of the region generate about 4372 tons per day,
medium size cities generate solid waste to a tune of about 4137 tons per day (14% of the
total solid waste generated in the region). The total solid waste generation in the small cities
is about 27% of the generation in the region, which is about 8063 tons/day. Figure 3 shows
the quantum of solid waste generation in each category of cities in the region. The average
per capita solid waste generation in class I cities of the region is about 471 gms, with
maximum per capita generation of 830 grams in the city of Kanpur and Ludhiana. The
average per capita solid waste generation of the class I cities is tabulated in the Tables 2, 3.
2.2 Waste characteristics
The waste characteristics of the solid waste generated vary from very big to small cities in
the region. The average biodegradable matter in the very big cities is about 35%, (the city
Table 2 Generators of waste and types of waste
Serial no. Sources of wastes Types of waste
1 Households and institutions Mostly organic with some plastics, glass, metals, inertmaterials and hazardous waste like batteries and paint, etc.
2 Vegetable and fruit marketsrestaurants, etc
Mostly organic
3 Schools Mostly papers
4 Slaughterhouses Bones, blood, intestines, carcasses, etc.
5 Commercial centers Mostly paper and plastics
6 Animal husbandry Dung and used straw
44%
15%
14%
27%
Very big cities
Big cities
Medium cities
Small cities
Fig. 3 Per capita solid wastegeneration in northern region(Source—National Master Planfor Development of Waste-to-Energy in India)
Status of MSW management system in northern India-an overview 207
123
of Delhi has minimum biodegradable content of about 32%) and average moisture content
is about 39%. (Kanpur has very less moisture content of 32%). The average biodegradable
matter in the region is about 38%, and the moisture content of the solid waste generated in
the region is about 39%. (The values are arrived by means of data obtained from various
secondary sources and the documentation of CPCB on Solid Waste Management Practices
in Class I cities of the country). The following Table 4 shows the variation of the per-
centage of biodegradable matter and the moisture content in the solid waste generated in
the class I cities of the northern region. Table 5 shows detailed waste composition in some
selected metro cities in northern region.
2.3 Waste to energy potential
Total estimated potential of waste to energy from MSW in India is 1700 MW out of that
cumulative installed capacity in March 31, 2005, was only 17 MW (waste energy booklet).
So it is evident that only a fraction of waste to energy potential is being utilized. Potential
Table 3 Average per capitasolid waste generation in class Icities of northern region(Source—National Master Planfor Development of Waste-to-Energy in India)
Serial no. Category Average Per capitawaste generation (grams)
1 Very big city 699
2 Big city 522
3 Medium city 490
4 Small city 456
5 Average of the region 471
Table 4 Average solid waste characteristics of northern region class I cities (Source—National Master Planfor Development of Waste-to-Energy in India)
Serial no. Category Biodegradablematter (%)
Moisturecontent (%)
1 Very big city 35 39
2 Big city 72 70
3 Medium city 45 40
4 Small city 42.6 39.5
5 Average of the region 38 39.3
Table 5 Characteristics of municipal solid waste generated by some metro cities in northern India (CPCB1999)
Serialno.
Name ofmetro city
Characteristics (% by Weight)
Paper Textile Leather Plastic Metal Glass Ash, fine earthand others
Compostablematter
1 Varanasi 3 4 – 10 – – 35 48
2 Lucknow 4 2 – 4 1 – 49 40
3 Kanpur 5 1 5 1.5 – – 52.5 40
4 Ludhiana 3 5 – 3 – – 30 40
5 Delhi 6.6 4 0.6 1.5 2.5 1.2 51.5 31.78
208 K. Ojha
123
for recovery of energy (MW) from urban waste in northern states in India is given in
Table 6.
3 Waste disposal trends in northern India
As per 74th Constitutional Amendment, it is the responsibility on local governments to
protect the environment in the areas under their jurisdiction. MSW in cities is collected by
respective municipalities of the cities and transported to assigned disposal sites. However,
limited budgetary provisions of the these municipalities coupled with lack of qualified
personnel, the land availability in metropolises, conspicuously absent waste-processing
facilities and little awareness about the municipal solid waste management rules make the
local bodies ill-equipped to manage the MSW, although it is their basic, obligatory duty.
Therefore, there is an urgent need to augment the revenues of the municipalities and
upgrade the existing infrastructure for efficient MSW management.
Data relating to the solid waste management system in small cities are not available
with respect to quantum of waste collected, transported and disposed off in safe and
hygienic manner. However, on a macro level, it can be concluded that in most of the small
cities, adequate solid waste management system does not exist in a systematic manner. The
four very big cities of Delhi, Kanpur, Lucknow and Jaipur have solid waste management
systems functioning in the cities, and the solid waste is collected and transported to the
dumping stations. The solid waste is dumped in un-engineered dumpsites, and the exact
capacity of the dumping stations is not known. In Delhi, incineration is tried at Timarpur
plant and as on date, the plant is in non-working condition. Plans for revamping the system
are on, and exact details of the same are not available. In Lucknow, biomethanation-based
energy generation plant is existing; however, due to operational problems, the plant is
presently not working. The medium cities lack in proper solid waste management system,
and the solid waste is only dumped at the city outskirts and at open lands. Figure 4 shows
systematic diagram for waste collection and management in the region.
There are a number of legislations at National, State and Local level, which govern the
management of municipal solid waste like the Uttar Pradesh Municipal Corporation Act of
1959 in Uttar Pradesh, Bio-Medical Waste (Management and Handling) Rules, 1998, Haz-
ardous Wastes (Management and Handling Rules), 1989, Municipal Waste (Management
and Handling) Rules, 1999, Manual on municipal solid waste management, 2000, Plastic and
other non-biodegradable garbage Ordinance of July, 2000. However, even the latest manuals
fail to solve the financial problems of local bodies and the status of MSW management.
Informal sector plays a significant role in waste management in the region. Informal
sector means ‘‘unregistered, unregulated, or casual activities carried out by individuals
Table 6 Potential for recoveryof energy (MW) from urbanwastes by state (Source—Wasteenergy booklet, Ministry of Non-Conventional Energy Sources)
Serial no. State Solid wastespotential (MW)
1 Delhi 111
2 Uttar Pradesh 154
3 Punjab 39
4 Rajasthan 53
5 Haryana 18
5 Himachal Pradesh 01
Status of MSW management system in northern India-an overview 209
123
and/or family or community enterprises that engage in value-adding activities on a small-
scale with minimal capital input, using local materials and labor-intensive techniques’’
(Haan et al. 1998). The informal sector engaged in waste recycling mostly means to those
employees who are classified as ‘‘own account’’ workers, e.g. unpaid family workers and
those who collect and treat mostly unregistered waste material (World Bank 1995). This
sector is mainly engaged in recycling activity in the region. The segment comprises of
waste-pickers, dump-pickers, itinerant waste buyers, small and big traders and wholesalers.
Materials like magazines, newspaper, books and copies, bottles, cans, glass and metals are
stored and sold to the waste buyers, who pay for the materials by weight. These itinerant
waste buyers in turn sell to the small-scale waste traders who in turn supply the material to
big traders and wholesalers. Waste-pickers and dump-pickers collect the recyclables from
the various collection points and both official and unofficial waste dump sites.
3.1 Social aspects and hazardous waste management
One problem related to waste in the region, as in many societies, is that it is considered
dirty and filthy, and those dealing with it are perceived as inferior, second-class citizens.
Traditionally, people working with waste in India—popularly know as rag pickers—usu-
ally belong to the ‘‘untouchables’’ (the Dalits); e.g., the raddiwallhas collect or buy waste.
Hence, the prevailing, informal, waste system affects how people view waste (Snel 1999).
The waste workers live and work under extensive health risks and suffer severe exploi-
tation and deprivation. Possible health hazards include raised levels of infant mortality,
hand and leg injuries, intestinal and respiratory infections, eye infections, lower back pain,
malnutrition, skin disorders and exposure to hazardous waste (Solid Waste Management
Manual 2000).
Waste sources
1. Households 2. Institutions 3. markets and
commercial establishment
Primary collection
1. Maid-servants 2. Housewives, 3. Private and municipal sweepers
Transport
Secondary collection
1. Open depots 2. Dustbins 3. Some open burning by municipal workers
Reuse and recycling
Disposal at dump site and illegal dumping
Via Kabadiwala, rag pickers, dump pickers and traders
To consumers
Fig. 4 Typical waste collection and its management system
210 K. Ojha
123
Also, there is a growing concern for the safe disposal of hazardous waste generated
from the anthropogenic sources. Hazardous waste may be classified (Babu and Gupta
1997) into (a) solid wastes (b) liquid wastes (c) gaseous wastes and (d) sludge wastes. HPC
(2001) defines hazardous waste as any substance, whether in solid, liquid or gaseous form,
which has no foreseeable use and which by reasons of any physical, chemical, reactive,
toxic, flammable, explosive, corrosive, radioactive or infectious characteristics causes
danger or is likely to cause danger to health or environment, whether alone or when in
contact with other wastes or environment, and should be considered as such when gen-
erated, handled, stored, transported, treated and disposed off. This definition includes any
product that releases hazardous substance at the end of its life, if indiscriminately disposed
off. The hazardous waste needs to be disposed off in secured manner in view of their
characteristic properties. Severe pollution of land, surface and ground water may occur
(Ramakrishna and Babu 1999; Rao 1999) if the options available (Wentz Charles 1995;
Parsa et al. 1996; Chakradhar et al. 1999) for hazardous waste management are not being
efficiently utilized by the waste generators. As per the ideal industrial siting criteria in
India, the industry should have enough land available within its premises for the treatment
and disposal and or reuse/recycling of the wastes generated from it (Murali Krishna 1995).
Mostly the large-scale industries and a few medium-scale industries (Ramakrishna and
Babu 1998) and none of the small-scale industries in the region own the hazardous waste
treatment facilities. Financial, administrative and infrastructural facilities are some of the
reasons attributed for the above limitations. It is interesting to note that, till 1997, there is
no secured landfill facility available in the region to dispose of HW (HPC 2001).
The HW generation in Indian States is given in Table 7 (HPC 2001). Minimum haz-
ardous waste is reported in Chandigarh (0.0069%).
4 Problems in the management of solid waste services in region
Northern region have various problems regarding MSW management. These problems are
summarized as follows.
1. The first problem regarding MSW management is the inconsistency and incomplete-
ness of data. The missing data vary from city to city and from class of city to city. The
incompleteness of data in the very big cities is comparatively lower than that of
smaller cities. Missing data and inconsistency in the data collected are summarized in
Table 7 Status of hazardous waste generation in southern India
State/union territory Code Total districts Districts in whichHW units located
Total units Total HWgeneration TPA
Delhi DEL 9 9 403 1000
Haryana HAR 17 15 309 32559
Himachal Pradesh HP 12 6 116 2159
Punjab PUN 17 15 700 22745
Rajasthan RJN 32 26 332 122307
Uttar Pradesh UP 83 65 1036 145786
Chandigarh CHN 1 1 47 305
Jammu & Kashmir JK 14 5 57 1221
Status of MSW management system in northern India-an overview 211
123
the Table 8. Data regarding general details of the city in Table 8 include location
details, demographic details, topographical features, social structure and major
industries in the city. Data about existing solid waste management system and energy
potential include total quantity of waste generated, per capita waste generation, mode
of collection of waste, mode of transportation of waste, operation and maintenance
costs for the system, mode of disposal of the waste, quality and characteristics of the
solid waste generated and energy potential of the solid waste generated in the city.
Similarly, data about institutional details include total vehicle fleet and manpower
available and budget provisions for the solid waste management. There is practically
no data available about informal sector involved in waste management.
2. Storage problems regarding on-site storage vary from one area to another, but in most
of the cases on-site, storage is not proper. Storage is not secure and does not allow for
effective collection, causing health and environmental problems. Some of the common
problems of storage are leaving waste exposed, emitting odor and attracting flies,
rodents, and stray animals, and residents with no proper waste storage facilities. This
contributes to the inefficiency of collection. Insufficient supply of communal trash
cans results in the storage area becoming a dump site. Scavenging by rodents and stray
animals finally leaves the waste scattered all around the site, and this is unhygienic.
3. Collection and disposal problems are littering around communal trash cans results in
inefficiency of collection. Different weight and sizes of trash cans makes collection of
waste difficult. Crude dumping is widely practiced. Poor control of the site results in
haphazard tipping. There is also shortage of suitable land for disposal.
4. Other problems regarding waste management in the region are as follows:
• Population growth inconsistent with growth in waste management services
• Uncontrolled and unplanned urbanization
• Economic austerities and huge economic debt
• Insufficient public education and limited community participation
• Uncontrolled and accelerated generation of municipal waste
• Negligence of waste management by local and national authorities
• Inadequately trained human resources
• Poor budget monitoring due to lake of basic data and untimely reports
Table 8 Missing data in Urban sector (Source—National Master Plan for Development of Waste-to-Energy in India)
Section Description Data availability in
Very big Big cities Mediumcities
Smallcities
General details of thecity
Available for all the cities Availablefor all thecities
Relevantdataavailable
Available Available
Solid wastemanagement system
For all four cities (solid wastecharacteristics available forvery big cities)
PartialDataAvailable
Verypartialdataavailable
Verypartialdataavailable
Nomissingdata
Institutional details ofthe solid wastemanagement system
Available for all four cities Availablefor allfourcities
Partialdataavailable
Verypartialdataavailable
Verypartialdataavailable
212 K. Ojha
123
• Labor conflict such as strikes by worker unions
• Incomplete legislation and insufficient enforcement
• Poor productivity of human resources due to untrained staff, poor pay scale, fixed
working hours, insufficient working practice and poor incentive for good
performance.
• No benchmarking to assess efficiency of services
• No proper charges
• Lack of equipment maintenance: maintenance is often reactive rather than regular
preventive maintenance with servicing and routine checkup
• Secondary priority for municipal administration and fragmented responsibilities by
various department
• Lack of supervision and waste management planning
5 Recommendations
Following are the few recommendations for effecting solid waste management services in
the region.
1. Suitable steps should be taken to reduce financial strain of urban local bodies. Strained
balance sheets of urban local bodies/state governments do not provide financial
comfort to local and private investors in the field. Participation of all stakeholders
including informal waste-recycling sector in MSWM should be promoted. Stakehold-
ers in an MSWM include residents of the region, welfare associations, non-
governmental organizations (NGOs), community-based organizations (CBOs), private
contractors/organizations, and central/state government authorities and the informal
waste-recycling sector.
2. Waste-to-energy projects are integral and important part of MSWM. Conferring an
industry status on the waste-to-energy projects should be conferred industry status so
that they get all the benefits as outlined in the industrial location policies of state
governments.
3. Formation of database regarding the waste quantity, quality from various sources
separately is also recommended in the study area with regular updating.
4. Decentralization of procedural and clearance activities that can help in faster
implementation of effective MSWM in the region. Proper coordination should be
established to ensure timely and adequate co-ordination so that the agencies
responsible for promoting waste to energy projects.
5. Compliance of MSWM rules by people and authorities should be promoted in the
region. Increase in awareness among the people about the ill-effects of mismanage-
ment of solid waste can also result in better compliance and cooperation for
implementing various programs. Therefore, special measures like proper information
educational campaign to sensitize the public through print media and multi-media,
educational campaigns in schools and colleges, and through religious leaders, are
simultaneously required should be taken in this regards.
6. Technical and financial issues regarding collection, storage, disposal, recycling and
waste to energy project should be taken care of properly by local and state authorities.
Again participation of all stakeholders including informal waste-recycling sector
should be promoted to reach on proper solutions.
Status of MSW management system in northern India-an overview 213
123
6 Conclusion
Rapid urbanization and population growth of the region is bound to bring an increase in the
overall waste generation in the coming years. The challenges now being faced by solid
waste management in the region include reducing the quantity of waste from the source,
promoting the recycling of solid waste, improving disposal levels and reforming solid
waste management systems. The existing SWM system in the region is not so efficient. The
informal waste-recycling sector, despite its importance, is ignored by the local authorities.
There is, therefore, an urgent need to take suitable steps to stop further decay of the system
and for utilizing existing waste to energy potential in region.
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