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Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 1

Briefing note July 2015

Mozambique's Rovuma Basin Decree-Law:


Key uncertainties and their impact
The much anticipated Decree-Law for the Rovuma Basin Area 1 and Area 4
LNG projects provides a comprehensive legal framework for the development of
the projects. However, there remain a number of uncertainties in key areas, the
potential impact of which we examine below.
The Mozambican LNG
market
Projects for the construction,
operation and management of
liquefied natural gas (LNG) facilities in
the northern Mozambican province of
Cabo Delgado are currently being
discussed with the Government of
Mozambique (GoM). These facilities,
if developed, could produce the first
export LNG by 2020. The LNG
projects will require an investment of
US$25-30 billion, which would be by
far the largest foreign investment
made in Mozambique.
On 23 September 2014, the
Mozambique Parliament passed Law
No. 25/2014 (published in The new Petroleum Law August 2014 (the New Petroleum
Mozambiques Official Gazette Law), repealing the previous
The background for these legal 1
(Boletim da Repblica), 1st Series - Petroleum Law.
No. 76) (the Enabling Law), developments was a new legal
framework for the petroleum sector in The New Petroleum Law expressly
empowering the GoM to establish by
Mozambique. provides that its scope extends
decree a special regime for the LNG
beyond standard exploration and
projects to be developed in Areas 1 In August 2014, the Mozambican production activities to gas
and 4 of the Rovuma Basin. The Parliament approved a new liquefaction and LNG activities. The
GoM adopted such a special regime Petroleum Law (Law No. 21/2014), New Petroleum Law confirmed that
for the development of the Rovuma which was published in
Basin Projects on 25 November 2014 Mozambiques Official Gazette
(Decree-Law No. 2/2014) (the (Boletim da Repblica) (1st Series -
Decree-Law) and this came into force No. 66) and entered into force on 18
on 2 December 2014.
1
See our Client Briefing on the new
Mozambican Petroleum Law (New
Petroleum Law: The Future of Oil & Gas in
Mozambique), published in October 2014.
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 2

liquefaction activities, either onshore Basin Project to which the GoM to be met by each Rovuma Basin
or offshore, can be undertaken under is a party, including any EPCCs. Project.
Exploration and Production
Special Purpose Vehicles Unitisation
Concession Contracts (contrato de
concesso de pesquisa e produo) Special purpose vehicles may be To the extent that any reservoirs
(EPCCs) without the need for a established in Mozambique as with petroleum reserves straddle
separate licence or concession (albeit project companies for any Area 1 and Area 4 of the Rovuma
subject to further GoM approval). Rovuma Basin Project. Basin, the concessionaires of
That said, the New Petroleum Law is Area 1 and 4 may jointly develop
Special purpose vehicles for
somewhat lacking in details on key such reserves.
marketing, shipping and financing
points, including how liquefaction
purposes related to a Rovuma Such joint development will be
activities may be undertaken by
Basin Project may be established subject to the concessionaires
participants that do not otherwise
in a transparent jurisdiction presenting an agreed unitisation
have interests under an EPCC or any
outside of Mozambique, provided agreement to the GoM within six
other concession or licence available
that the GoM's prior approval is months of the Decree-Law
under the New Petroleum Law. 2
obtained. entering into force.
The New Petroleum Law provides
that the GoM is responsible for GoM's approval will be required If the parties are unable to
producing, within 60 days from its for any exit, transfer of shares or provide such unitisation
publication, regulations that are change of control of any project agreement within the six-month
expected to address the majority of company, though we note that deadline, the GoM is empowered
uncertainties arising from the New this is not unusual and similar to appoint an independent expert
Petroleum Law. provisions are often found in to decide upon any matters on
concession contracts worldwide. which the concessionaires could
Although a preliminary draft of such not come to an agreement, and
supplementary petroleum regulations Mega Projects Law
the expert's decision will be final
was recently circulated by the GoM to The Decree-Law acknowledges and binding.
various market participants for that the Mega Projects Law (Law
consultation, to date such regulations We note that the time-frame
No. 15/2011 of 10 August 2011)
have not yet been adopted. related to the provision of such
applies to the Rovuma Basin
unitisation agreements is based
Projects and includes provisions
Rovuma Basin Decree- explaining how the benefit-
upon the Decree-Law coming
Law into force, rather than the
sharing requirements of the
discovery of reserves.
Mega Projects Law are met by
Scope Consequently, uncertainty arises
the Projects. Unfortunately, the
in circumstances where, for
The Decree-Law was passed to Decree-Law does not address
instance, a concessionaire
establish a special legal and how the requirement of the Mega
discovers further reserves in a
contractual regime to be applied Projects Law that 35% of all
new reservoir straddling Area 1
to any project developed in Areas taxable benefits of any project
and Area 4, or a reservoir first
1 and 4 of the Rovuma Basin, must be shared with the State is
thought to be solely within one
including the exploration,
Area is subsequently discovered
extraction and production of
to straddle both licence Areas.
natural gas and associated LNG
As the Decree-Law provides that
liquefaction activities (each a
whenever a matter is not
Rovuma Basin Project or
regulated in the Decree-Law, the
Project). 2
'Transparent jurisdiction' is defined in the relevant Mozambican legislation
The Decree-Law will apply to any New Petroleum Law as a jurisdiction which on such matter shall apply, it is
allows the Mozambican GoM to possible that the unitisation
contracts related to a Rovuma
independently verify the ownership,
management, control and finances and regime under the New Petroleum
accounts of a non-Mozambican legal entity. Law may be applicable to any
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 3

future discoveries of additional the commercial assessment of concessionaire have been


reserves in Area 1 or Area 4. the reserves pursuant to the subject to criticism that they
relevant EPCC. appear to not dedicate any gas
Although not yet official, the
for local consumption. This issue
Mozambican national news has Sales
will have to be observed by the
recently reported that, in an
The concessionaires' right to Area 4 concessionaire in a
attempt to comply with the six-
market and sell natural gas shall satisfactory manner in light of the
month time-frame pursuant to the
be set out in the relevant EPCCs. New Petroleum Law, the
Decree-Law, the concessionaires
resolution of the local gas issue
have submitted a letter to the The National Oil Company
for Area 1 and public opinion.
GoM confirming that they have (Empresa Nacional de
come to an agreement in respect Hidrocarbonetos, E.P. or ENH) Procurement of Goods and
of the unitisation of the field, shall act as the GoM's authorised Services
though they require further time representative in matters
The procurement of goods shall
to finalise the details. It remains regarding the sale of natural gas
be in accordance with the
uncertain whether the GoM will belonging to the Mozambican
national aim of preference for the
accept this as fulfilling the state in accordance with (a) the
procurement of goods and
requirement under the Decree- Tax on Production of Petroleum
services from Mozambican
Law to submit a binding and (b) any quota set out in
companies, Mozambican persons
unitisation agreement within the relevant EPCCs, although it is
or in partnership with
six-month deadline. not yet clear how this will work in
Mozambican companies or
practice.
Development Plans persons, with a view to
It has recently been reported in empowering the Mozambican
Concessionaires will be expected
the Mozambican national media private sector.
to submit to the Minister of
that the GoM is finalising
Energy and Mineral Resources To that end, concessionaires are
negotiations with the
(Ministro da Energia e Recursos required to create a local content
concessionaires in respect of
Minerais) a development plan plan to establish the participation
how much gas from each
regarding any Rovuma Basin of Mozambican persons and
Rovuma Basin Project should be
Project, detailing expected companies in relation to the
dedicated to the Mozambican
development and production procurement of goods and
domestic market. Although the
operations, in addition to any services for the Rovuma Basin
New Petroleum Law provides
prospective liquefaction, delivery, Projects.
that 25% of all gas produced in
sales, installation, maintenance
Mozambique should be set aside Each local content plan must be
and operation activities. An
for local consumption, the provided to the GoM for approval
environmental impact
relevant EPCCs for the Rovuma and will be reviewed every three
assessment will be expected to
Basin Projects were executed years.
be included with all development
prior to the New Petroleum Law
plans. Preference will be given to
entering into force and did not
Mozambican suppliers of goods
The term of any development include any such domestic
and services only to the extent
plans shall be no longer than 30 market obligations. As such, it is
feasible and provided that such
years from the date of the GoM's expected that the figure of 25%
goods, materials, services and
approval of such plan. will be negotiated downwards for
equipment:
the Rovuma Basin Projects,
Concessionaires may submit new
particularly given the importance a) are competitive in terms of
or revised development plans in
of the Projects to the quality and deliverability;
relation to any Rovuma Basin
Mozambican economy.
Project. That said, no new b) meet international industry
development plan may be In this regard, we note that the standards; and
submitted later than ten years floating LNG (FLNG) facilities to
following the commencement of be developed by the Area 4
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 4

c) do not cost (including taxes)


over 10% more than the price
of equivalent imported goods
and services.

No preference to Mozambican
suppliers is required in respect of
principal contracts and/or goods
and services related to
technology, patents or
specialised supplier equipment,
including in connection with the
construction, operation and
maintenance of infrastructure
related to the Projects.

Contracts concerning the


procurement of goods or services
valuing more than US$3 million
must be subject to public tender. building or facility built on land, to legal challenge. The GoM has
This threshold amount will be subject to a right to use and to not yet released any statements
adjusted annually in accordance enjoy the land on which it is built, on this matter, which will
with the then applicable U.S. including the right to mortgage obviously be of concern to the
consumer price index (CPI). such structure, building or facility. concessionaires and their lenders.
That said, notwithstanding the Concessionaires and/or any Third Party Rights
value of the relevant contract, project company may assign any
sole source procurement is Third party access to
of their land rights.
admissible in certain infrastructure will be negotiated
circumstances for instance, in Each concessionaire in respect between any relevant parties and
the event that only one supplier of a Rovuma Basin Project shall approved by the GoM.
can provide the relevant products, have equal rights of access to
For these purposes, 'third parties'
materials, services or equipment, and use of those areas where
are defined as entities which own
or if the goods to be acquired common infrastructure of the
significant quantities of natural
need to be uniform to existing Rovuma Basin Projects is located.
gas with specifications similar to
goods in any facilities and/or Further clarification of the nature
the natural gas in Areas 1 and 4,
infrastructure. of such common rights is needed.
other than the concessionaires of
Land Rights There is ongoing debate as to the Areas 1 and 4, the Rovuma
validity of the land rights Basin project companies or the
Licence holders shall have conferred by the Decree-Law. GoM.
exclusive rights of access, use, According to local non-
enjoyment and exploitation over Although the Decree-Law
governmental organisations
all areas where the project provides that concessionaires
(NGOs), the process of granting
infrastructure is to be located. In must provide third parties with
the land rights did not follow the
addition, they are also able to access to infrastructure if there is
legal framework in respect of the
have access, use and enjoyment sufficient capacity and the third
proper compensation of previous
of coastal and maritime areas parties' use of the infrastructure
rights holders and local
necessary for the Projects. does not adversely impact the
communities. Consequently, the
existing owners and users, third
Concessionaires and/or any local NGOs suggest that certain
party access remains subject to
project company will have the land rights provided to the
commercial agreements between
right to own any structure, concessionaires may be subject
the relevant parties. This clarifies
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 5

some uncertainty in the New Although the Decree-Law into account safety requirements
Petroleum Law which appeared provides some relief that and the need to maintain
to oblige owners of petroleum payments may be made in a reasonable standards of
infrastructure (particularly currency other than local efficiency in conducting
pipelines) to allow third parties to currency and money can be operations.
have access rights, regardless of transferred and held offshore, the
In addition, certain labour rules
cost. restrictions of payments set out in
apply to workers in Mozambique,
the foreign exchange provisions
Foreign Exchange including maximum lengths of
in the Decree-Law could cause
working shifts and rest and
Concessionaires, project some difficulties when it comes to
holiday entitlements. Although
companies and principal negotiating accounts agreements
these provisions are somewhat
contractors shall have the right to and payment waterfalls with
confusing, on a practical level, all
open, maintain and operate lenders.
work practices must comply at all
onshore accounts in
Labour and Employment Regime times with Mozambican
Mozambique denominated in
employment and labour law,
Mozambican Metical (MZM). Concessionaires, project
international industry work
companies, principal contractors
Certain payments e.g. payment practices and the social, health
and subcontractors must employ
of Mozambican taxes, payments and safety requirements of any
Mozambican citizens at all levels
to domestic subcontractors and lenders.
of their organization on a
payments of Mozambican
preferential basis, including Insurance and Reinsurance
workers must be made with
specialists in technically complex
funds from such MZM accounts. Should the Projects require
and managerial positions.
insurance from outside of
In addition, concessionaires,
However, concessionaires, Mozambique (which, given their
project companies and any
project companies, principal size, is more than likely), the
principal contractors shall be able
contractors and subcontractors relevant concessionaires must
to open, maintain and operate
may hire foreign employees in first have attempted to place
foreign currency accounts with
positions other than unskilled such insurance with at least three
any bank outside of Mozambique,
work positions. insurance companies in
which shall be used for certain
Mozambique capable of
payments, for example payments The percentage of non-
underwriting the risks.
related to liquefaction services. Mozambican workers to be hired
by the concessionaires, project To the extent that at least three
Unless the parties agree
companies or their contracted insurance companies in
otherwise, all payments to the
entities to work in Mozambique Mozambique capable of
GoM, except the payment of
shall be established in a underwriting the risks (a) refuse
taxes, shall be made in US
workforce plan, enclosed as a to do so or (b) do not provide a
dollars.
part of the development plan, and response within seven days, the
Subject to the terms of any updated on an annual basis. relevant concessionaires may
financing agreements, each procure such insurance from
In addition, foreign workers may
concessionaire and any project outside of Mozambique, subject
be employed on a short-term
company may repay lenders to providing the Institute for the
basis to perform any type of work
located outside of Mozambique Supervision of Insurances of
for a period of up to 180 days,
directly out of the proceeds of Mozambique with at least ten
whether consecutive or not.
any sale of LNG or natural gas working days' notice. Such notice
through foreign currency The concessionaires and project must include evidence of refusal
accounts located outside of companies are required to or non-response from relevant
Mozambique. establish a training program for Mozambique-licensed insurance
Mozambican employees across companies and detailed
all levels of operations, taking information regarding the foreign
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 6

insurance company, cover value LNG Marine Terminal Financing and Lenders'
and the main terms of the policy.
The concessionaires and project Rights
Concessionaires may procure companies shall have the right to The Decree-Law includes specific
reinsurance outside of design, construct, install, own, finance, provisions in relation to the financing
Mozambique without needing the encumber or mortgage, manage, of the Projects.
prior approval of the Institute for operate, use and maintain an LNG
the Supervision of Insurances of marine terminal in Afungi, Cabo The Decree-Law provides that the
Mozambique or any other public Delgado (the LNG Marine Terminal). concessionaires and/or project
entity. companies may obtain both domestic
In relation to such development, and international financing for the
Insurance concerning construction and operations, the Projects, provided that the GoM has
infrastructure related to the concessionaires and project approved the financing structure
Projects must be procured companies shall have the exclusive (including any hedging arrangements
onshore. The Decree-Law does rights of access and operation over and security to be provided to the
not provide any further details on land and related maritime areas. lenders).
what infrastructure is intended to
be covered. Once constructed, the port authority, Host state approval over financing
Portos de Cabo Delgado, S.A. (PCD), documents is unusual. International
Coverage from Mozambican will be involved in vessel-loading lenders may be hesitant to give the
insurers shall only take priority activities and will have access to the State the right to control or veto the
when the coverage is LNG Marine Terminal facilities in structuring of the finance package. In
comparable to international order to monitor and verify the volume practice, the impact of these
insurance standards and the of loaded materials. provisions will depend on how they
policy can be placed onshore at a
Further, in addition to local content are applied, for instance whether by
price no higher than 10% of the
requirements, the concessionaires direct GoM participation in the
price which such insurance
are expected to employ Mozambican negotiation process (which is unlikely)
coverage could be obtained from
citizens at all levels of the operation of or delivery to the GoM for its consent
the international market (inclusive
the LNG Marine Terminal and shall of the financing documentation once
of taxes and any fees).
provide them with relevant training in agreed. That said, having to secure
Should no Mozambican respect of the functioning of the the GoM approval for amendments
insurance company be able to terminal. may be a concern for both borrowers
provide the relevant insurance and lenders (see below).
coverage, concessionaires are In addition, to the extent that there are
multiple entities involved in a Rovuma In addition, the Decree-Law provides
entitled to obtain such insurance
Basin Project (regardless of whether that, once the financing arrangements
from the international market.
in Area 1 or Area 4), each have been approved by the GoM, the
The Decree-Law does not concessionaire and/or project lenders may exercise their rights and
expressly provide for situations company shall have equal rights of pursue any remedies (including the
where a Mozambican insurance access, use and enjoyment of the enforcement of security) without the
company is willing to provide LNG Marine Terminal throughout the consent of any GoM authority.
coverage but its credit rating is duration of the Projects, whether such Further, the Decree-Law stipulates
below a standard required by joint rights are established by a joint that any guarantee, security,
lenders. We query whether this venture arrangement or otherwise. debenture or mortgage related to
would fall under the 'comparable
The Decree-Law is somewhat lacking rights in rem over petroleum
to international insurance
in detail about the development of the infrastructure shall be registered,
standards' carve-out.
LNG Marine Terminal, particularly maintained and operated by the
regarding risk allocation and National Petroleum Institute (NIP).
remuneration of the developing entity. We expect that this is simply an
obligation to register any security with
the NIP, though the use of the
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 7

Dispute Resolution state-owned companies in


Mozambique may enter into
The Decree-Law provides that, arbitration agreements. The State
without prejudice to the provisions of Owned Companies Law (Law No.
any EPCCs, the resolution of disputes 6/2012), which came into force in
related to any matter governed by the 2012, provides that only two bodies
Decree-Law shall be in accordance are empowered to hear disputes
with Mozambican Law. involving Mozambican public
We note that this language is companies, namely the Mozambican
ambiguous and could be problematic. courts or, where the dispute relates to
The Decree-Law does not clarify administrative matters, the
whether it only applies to those Administrative Court (Tribunal
disputes arising between the Administrativo).
concessionaires and/or project
Fiscal Support Regime
companies and the GoM, or whether
it also applies to third parties. and Stabilisation
In addition, the Decree-Law includes Concessionaires and project
Articles on lenders' rights. As such, companies benefit from a specific
the dispute resolution provisions in legal and fiscal stability regime
wording 'operated' causes some the Decree-Law might result in some established in the Decree-Law.
uncertainty and will require uncertainty as to whether the lenders' This regime incorporates stability
clarification. rights under the financing documents provisions including a guarantee in
As noted above, the Decree-Law are to be governed by Mozambique respect of any change in law (subject
provides that the GoM is required to law. It would be unlikely that Lenders to a number of carve-outs).
approve the financing structure and would accept Mozambique law for all
financing documents. Further, the GoM will compensate the
that, once approved, no further
concessionaires and/or project
approvals of the financing structure The Decree-Law further indicates that, companies for any lost profits due to
will be required. Nevertheless, it if no agreement is reached in respect any change in law.
remains unclear whether approvals of any disputes relating to any matter
required under other laws would governed by the Decree-Law, such These provisions will be revised on
continue to be required, for example, disputes may be referred to arbitration the tenth and twentieth anniversary of
the review and approval (visto) of the in accordance with the dispute the date of first shipment of LNG, by
Mozambican Administrative Court resolution provisions referred to in the agreement between the GoM and the
(Tribunal Administrativo), required in relevant EPCC. concessionaires. To the extent that
any transactions involving the GoM, the parties are not able to reach an
public bodies or state-owned Again, it is uncertain whether this agreement within 90 days:
companies where public money is to extends to disputes involving third
parties. a) from the date falling 10 years
be used, certifying that the transaction
from the first shipment of LNG to
is in accordance with the budget and That said, the Decree-Law clarifies the date falling 20 years from the
all relevant Mozambican laws. that this Article does not restrict any first shipment of LNG, the
The situation in relation to subsequent public company, including ENH, from concessionaires shall be liable to
amendments of the financing entering into any other arbitration pay 4% of Tax on Petroleum
documents also remains to be agreement to resolve disputes arising Production; and
clarified. from any concession contract or other
agreement related to the Rovuma b) from the date falling 20 years
Basin Projects. from the first shipment of LNG
until the end of the EPCC, the
This clarification is necessary due to concessionaires shall be liable to
ongoing legal debate on whether
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 8

pay 6% of Tax on Petroleum developed in Mozambique and are


Production. therefore of political and economic
importance, it is expected that this
This causes some issues, as the
regime will be more favourable than
Decree-Law is silent as to how such
future regimes. Nevertheless, the
Tax on Petroleum Production shall
Decree-Law demonstrates the level of
apply to LNG sales.
commitment that the GoM might be
Further, it is unclear whether the willing to provide for projects of this
intention of these provisions is that: size and nature.

a) Tax on Petroleum Production will Conclusion


apply to the Rovuma Bay
Projects at a flat rate of 4% or 6%, In conclusion, although the Decree-
notwithstanding the tax rate at Law provides further insight into the
that time, or Rovuma Basin Projects, a significant
amount of detail is missing. As such,
b) concessionaires will only need to the Decree-Law raises a number of
pay 4% or 6% of the Tax on issues that we consider to be integral
Petroleum Production which to the success of the Projects and
would be applicable at the time if could impact future appetite for
it were not for the Decree-Law. investment in similar projects in
In addition, the concessionaires do Mozambique; for example, potentially
not appear to benefit from any limiting the rights of lenders in respect
reduction in any taxes, including of the overall structure of the
corporation taxes, and the tax in financing.
effect at the time of the Decree-Law That said, as the Decree-Law
coming into force shall apply to the provides that whenever a matter is
Projects. The absence of such not regulated in the Decree-Law the
provisions related to tax matters is relevant Mozambican legislation on
due to the fact that such taxation such matter shall apply, some of
matters are reserved exclusively and these issues will be addressed or
absolutely to the Mozambican mitigated by the application of the
Parliament. general legal regime (for example, the
Nevertheless, the concessionaires New Petroleum Law, the Exchange
are likely to execute Host Law (Law No. 11/2009 of 11 March
Government Agreements with the 2009) or the Labour Law (Law No.
GoM, which are expected to include 23/2007 of 1 August 2007)).
further details as to the tax framework Moreover, it is expected that a
for the Projects. number of these issues will be
Finally, confusion arises from the resolved in the Host Government
drafting of the final paragraph of the Agreements to be entered into
Article on Legal and Fiscal Stability, between the concessionaires and the
which appears to provide that the GoM.
fiscal support regime shall not apply
to any other fiscal benefits granted to
the Projects at the discretion of the
GoM.

As the Rovuma Basin LNG Projects


are the first LNG facilities to be
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 9

For more information about "Mozambique's Rovuma Basin Decree-Law (Decree-Law No. 2/2014)", please contact
the following persons:

Clifford Chance Couto, Graa e Associados


Anthony Giustini Pedro Couto
T: +33 14405 5926 T: (+258) 21 486 438/40
E: anthony.giustini@cliffordchance.com E: pcouto@cga.co.mz

Pieter Van Welzen Jorge Graca


T: +31 20711 9154 T: (+258) 21 486 438/40
E: pieter.vanwelzen@cliffordchance.com E: jgraca@cga.co.mz

Russell Wells Telmo Ferreira


T: +44 (0)20 7006 2628 T: (+258) 21 486 438/40
E: russell.wells@cliffordchance.com E: tferreira@cga.co.mz

Nicholas Wong Faizal Jusob


T: + 65 6410 2218 T: (+258) 21 486 438/40
E: nicholas.wong@cliffordchance.com E: fjusob@cga.co.mz

Andr de Sousa Vieira Paulo Ferreira


T: +44 (0)20 7006 1210 T: (+258) 21 486 438/40
E: andre.desousavieira@cliffordchance.com E: pferreira@cga.co.mz

Philip Walsh
T: +44 (0)20 7006 3361
E: philip.walsh@cliffordchance.com
Mozambique's Rovuma Basin Decree-Law: Key uncertainties and their impact 10

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