dismissed
L-1A
dismissed L-1A Case: Import/Export
Decision Summary
The appeal was dismissed because the petitioner failed to establish that the beneficiary would be employed in a primarily managerial or executive capacity. The evidence submitted, including a quarterly wage report, indicated that the U.S. company had insufficient staffing to relieve the beneficiary from performing the day-to-day operational tasks of the business.
Criteria Discussed
Managerial Capacity Executive Capacity Staffing Levels New Office Extension Requirements
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-...a-.:A.:--..1--.a.1.IIJS datadelltllllto preventclearlyunwmanted invuionofpcI'SODI1privacy PUBLICCOpy U.S.Department of Homeland Security 20 Massachusetts Ave., N.W., Rm. A3000 Washington, DC 20529 u.S. Citizenship and Immigration Services File: WAC 06 085 51662 Office: CALIFORNIA SERVICE CENTER Date: NOV 01 2001 IN RE: Petitioner: Beneficiary: Petition: Petition for a Nonimmigrant Worker Pursuant to Section 101(a)(15)(L) of the Immigration and Nationality Act, 8 U.S.c. § 1101(a)(15)(L) IN BEHALF OF PETITIONER: INSTRUCTIONS: This is the decision of the Administrative Appeals Office in your case. All documents have been returned to the office that originally decided your case. Any further inquiry must be made to that office. R~;~~f Administrative Appeals Office www.uscis.gov WAC 06 08551662 Page 2 DISCUSSION: The Director, California Service Center, denied the petition for a nonimmigrant visa. The matter is now before the Administrative Appeals Office (AAO) on appeal. The AAO will dismiss the appeal. The petitioner filed this nonimmigrant visa petition seeking to extend the employment of its president as an L lA nonimmigrant intracompany transferee pursuant to section 101(a)(15)(L) of the Immigration and Nationality Act (the Act), 8 U.S.C. § llOl(a)(15)(L). The petitioner is a corporation organized under the laws of the State of California and is allegedly an import/export business. The beneficiary was initially granted two one-year periods of stay to open a new office in the United States, and the petitioner now seeks to extend the beneficiary's stay. The director denied the petition concluding that the petitioner did not establish that the beneficiary will be employed in the United States in a primarily managerial or executive capacity. The petitioner subsequently filed an appeal. The director declined to treat the appeal as a motion and forwarded the appeal to the AAO for review. On appeal, counsel to the petitioner asserts that the director erred and that the beneficiary's duties are primarily those of an executive. To establish eligibility for the L-l nonimmigrant visa classification, the petitioner must meet the criteria outlined in section 101(a)(15)(L) of the Act. Specifically, a qualifying organization must have employed the beneficiary in a qualifying managerial or executive capacity, or in a specialized knowledge capacity, for one continuous year within three years preceding the beneficiary's application for admission into the United States. In addition, the beneficiary must seek to enter the United States temporarily to continue rendering his or her services to the same employer or a subsidiary or affiliate thereof in a managerial, executive, or specialized knowledge capacity. The regulation at 8 C.F.R. § 214.2(1)(3) states that an individual petition filed on Form 1-129 shall be accompanied by: (i) Evidence that the petitioner and the organization which employed or will employ the alien are qualifying organizations as defined in paragraph (1)(l)(ii)(G) of this section. (ii) Evidence that the alien will be employed in an executive, managerial, or specialized knowledge capacity, including a detailed description of the services to be performed. (iii) Evidence that the alien has at least one continuous year of full-time employment abroad with a qualifying organization within the three years preceding the filing of the petition. (iv) Evidence that the alien's prior year of employment abroad was in a position that was managerial, executive or involved specialized knowledge and that the alien's prior education, training, and employment qualifies him/her to perform the intended services in the United States; however, the work in the United States need not be the same work which the alien performed abroad. WAC 06 08551662 Page 3 The regulation at 8 C.F.R. § 214.2(l)(14)(ii) also provides that a visa petition, which involved the opening of a new office, may be extended by filing a new Form 1-129, accompanied by the following: (A) Evidence that the United States and foreign entities are still qualifying organizations as defined in paragraph (l)(1)(ii)(G) of this section; (B) Evidence that the United States entity has been doing business as defined in paragraph (l)(l)(ii)(H) ofthis section for the previous year; (C) A statement of the duties performed by the beneficiary for the previous year and the duties the beneficiary will perform under the extended petition; (D) A statement describing the staffing of the new operation, including the number of employees and types of positions held accompanied by evidence of wages paid to employees when the beneficiary will be employed in a managerial or executive capacity; and (E) Evidence of the financial status of the United States operation. The primary issue in the present matter is whether the beneficiary will be employed by the United States entity in a primarily managerial or executive capacity. Section 101(a)(44)(A) of the Act, 8 U.S.c. § 1101(a)(44)(A), defines the term "managerial capacity" as an assignment within an organization in which the employee primarily: (i) manages the organization, or a department, subdivision, function, or component of the organization; (ii) supervises and controls the work of other supervisory, professional, or managerial employees, or manages an essential function within the organization, or a department or subdivision of the organization; (iii) if another employee or other employees are directly supervised, has the authority to hire and fire or recommend those as well as other personnel actions (such as promotion and leave authorization), or if no other employee is directly supervised, functions at a senior level within the organizational hierarchy or with respect to the function managed; and (iv) exercises discretion over the day-to-day operations of the activity or function for which the employee has authority. A first-line supervisor is not considered to be acting in a managerial capacity merely by virtue of the supervisor's supervisory duties unless the employees supervised are professional. Section 101(a)(44)(B) of the Act, 8 U.S.C. § 1101(a)(44)(B), defines the term "executive capacity" as an WAC 06 08551662 Page 4 assignment within an organization in which the employee primarily: (i) directs the management of the organization or a major component or function of the organization; (ii) establishes the goals and policies ofthe organization, component, or function; (iii) exercises wide latitude in discretionary decision-making; and (iv) receives only general supervision or direction from higher level executives, the board of directors, or stockholders of the organization. The petitioner does not clarify in the initial petition whether the beneficiary will primarily perform managerial duties under section 101(a)(44)(A) of the Act, or primarily executive duties under section 101(a)(44)(B) of the Act, although counsel on appeal appears to limit the beneficiary to an executive classification. Due to the lack of clarity, the AAO will assume that the petitioner is asserting that the beneficiary will be employed in either an executive or a managerial capacity and will consider both classifications. The petitioner described the beneficiary's job duties in a letter dated January 16,2006 as follows: Under the extended petition, [the beneficiary] will continue to oversee the operations of [the petitioner] and she will focus on expanding the customer and client base and increasing revenue. Some of the specific tasks she will undertake include the following: • Oversee the development and execution of an extensive marketing plan to be carried out by the newly hired marketing director. It is important that [the petitioner's] marketing department complements the marketing department of the parent company overseas. The marketing plan is expected to substantially increase the current customer and supplier base. • Oversee the recruitment of new employees. • Oversee the establishment of personnel policies for new staff. • Negotiate and execute new contracts with new customers and suppliers. • Represent [the petitioner] at national and international trade shows. • Meet with current customers and potential customers. • Oversee the budget and financial aspects of the business and direct the administrative assistant who handles the bookkeeping. The petitioner also claims to employ, in addition to the beneficiary, a marketing director and an office WAC 06 08551662 Page 5 manager. The petitioner submitted an organizational chart showing the beneficiary supervising these two subordinate employees. Moreover, the petitioner submitted 2005 Forms W-2 for the beneficiary and the office manager and a Form 1-9 indicating that the marketing director was hired on January 1, 2006. The instant petition was filed on January 20, 2006. Finally, the petitioner submitted a "projected" organizational chart showing the marketing director and office manager supervising proposed staff members. On February 7, 2006, the director requested additional evidence. The director requested, inter alia, an organizational chart, which includes brief descriptions of the job duties of all subordinate employees, and quarterly wage reports. In response, the petitioner submitted job descriptions for the marketing director and office manager. The marketing director's duties are described generally as designing and implementing the petitioner's marketing plan. The petitioner also asserts that the marketing director has earned a bachelor's degree in business. The office manager's duties are described generally as bookkeeping and office management. The petitioner also claims to have hired a "purchasing manager" after the filing of the instant petition. Furthermore, the petitioner submitted its quarterly wage report for the first quarter of 2006. This report indicates that the petitioner employed only the beneficiary and the marketing director at the time the petition was filed. The record indicates that the petitioner did not employ the office manager after December 30, 2005 and that, in her absence, the marketing director performed her duties. On July 12, 2006, the director denied the petition. The director concluded that the petitioner failed to establish that the beneficiary will be employed primarily in a managerial or executive capacity. On appeal, the petitioner asserts that the beneficiary's duties are primarily those of an executive. Upon review, the petitioner's assertions are not persuasive. Title 8 C.F.R. § 214.2(l)(3)(v)(C) allows the "new office" operation one year within the date of approval of the petition to support an executive or managerial position. Despite the one-year extension previously approved by the director in this matter, there is no provision in Citizenship and Immigration Services (CIS) regulations that allows for an extension of the one-year "new office" period. If the business does not have sufficient staffing after one year to relieve the beneficiary from primarily performing operational and administrative tasks, the petitioner is ineligible by regulation for an extension. In the instant matter, the United States operation has not reached the point that it can employ the beneficiary in a predominantly managerial or executive position. When examining the executive or managerial capacity of the beneficiary, the AAO will look first to the petitioner's description of the job duties. See 8 C.F.R. § 214.2(l)(3)(ii). The petitioner's description of the job duties must clearly describe the duties to be performed by the beneficiary and indicate whether such duties are either in an executive or managerial capacity. Id. The petitioner's description of the beneficiary's job duties has failed to establish that the beneficiary will act in a "managerial" or "executive" capacity. In support of its petition, the petitioner has provided a vague and WAC 06 08551662 Page 6 nonspecific description of the beneficiary's duties that fails to demonstrate what the beneficiary will do on a day-to-day basis. For example, the petitioner states that the beneficiary will "oversee" the petitioner's operations, the recruitment of employees, and the establishment of personnel policies. However, the petitioner does not explain what, exactly, the beneficiary will do in "overseeing" these duties when the petitioner does not employ a subordinate staff assigned to perform the inherent non-qualifying tasks. The fact that the petitioner has given the beneficiary a managerial or executive title and has prepared a vague job description which includes overly broad duties does not establish that the beneficiary will actually perform managerial or executive duties. Specifics are clearly an important indication of whether a beneficiary's duties are primarily executive or managerial in nature; otherwise meeting the definitions would simply be a matter of reiterating the regulations. Fedin Bros. Co., Ltd. v. Sava, 724 F. Supp. 1103 (E.D.N.Y. 1989), aff'd, 905 F.2d 41 (2d. Cir. 1990). Going on record without supporting documentary evidence is not sufficient for purposes of meeting the burden of proof in these proceedings. Matter of Treasure Craft of California, 14 I&N Dec. 190 (Reg. Comm. 1972). Likewise, the petitioner did not provide a breakdown of how much time the beneficiary will devote to the many duties ascribed to her. This is particularly important in this matter because many of the duties listed by the petitioner appear to be non-qualifying administrative or operational tasks which will not rise to the level of being managerial or executive in nature. For example, the petitioner states that the beneficiary will negotiate and execute contracts with new customers and suppliers, represent the petitioner at trade shows, and meet with current customers and potential customers. However, such duties constitute non-qualifying administrative or operational tasks. As the organizational chart and job descriptions for the subordinate employees fail to identify any workers who will relieve the beneficiary of the need to perform the non qualifying tasks inherent to both these duties and the management of the business in general, it must be concluded that she will perform these tasks. As the petitioner has not established how much time the beneficiary will devote to such non-qualifying tasks, it cannot be confirmed that she will "primarily" be employed as a manager or an executive. An employee who "primarily" performs the tasks necessary to produce a product or to provide services is not considered to be "primarily" employed in a managerial or executive capacity. See sections 101(a)(44)(A) and (B) of the Act (requiring that one "primarily" perform the enumerated managerial or executive duties); see also Matter af Church Scientology International, 19 I&N Dec. 593, 604 (Comm. 1988). The petitioner has also failed to establish that the beneficiary will supervise and control the work of other supervisory, managerial, or professional employees, or will manage an essential function of the organization. As explained in the organizational chart, wage reports, and job descriptions for the subordinate staff members, the beneficiary appears to supervise one subordinate employee, the marketing director, who was hired approximately three weeks before the filing of the instant petition. However, the petitioner has not established that this employee will be primarily engaged in performing supervisory or managerial duties. To the contrary, it appears that this employee will perform the tasks necessary to produce a product or to provide a service, e.g., marketing and, in the absence of the office manager, bookkeeping and clerical tasks. Furthermore, the petitioner's actual and planned employment of additional staff after the filing of the instant petition is not relevant to the instant petition and may not be used to qualify the beneficiary as a managerial or executive employee. The petitioner must establish eligibility at the time of filing the nonimmigrant visa petition. A visa petition may not be approved at a future date after the petitioner or beneficiary becomes eligible under a new set offacts. Matter ofMichelin Tire Corp., 17 I&N Dec. 248 (Reg. Comm. 1978). WAC 0608551662 Page 7 In view of the above, it appears that the beneficiary will primarily be a first-line supervisor of a non professional employee, the provider of actual services, or a combination of both. A managerial employee must have authority over day-to-day operations beyond the level normally vested in a first-line supervisor, unless the supervised employees are professionals. Section 101(a)(44)(A)(iv) of the Act; see also Matter of Church Scientology International, 19 I&N Dec. at 604. Moreover, the petitioner has not established that the beneficiary will manage professional employees. I Therefore, the petitioner has not established that the beneficiary will be employed primarily in a managerial capacity.' 'In evaluating whether the beneficiary manages professional employees, the AAO must evaluate whether the subordinate positions require a baccalaureate degree as a minimum for entry into the field of endeavor. Section 101(a)(32) of the Act, 8 U.S.C. § IlOI(a)(32), states that "[t]he term profession shall include but not be limited to architects, engineers, lawyers, physicians, surgeons, and teachers in elementary or secondary schools, colleges, academies, or seminaries." The term "profession" contemplates knowledge or learning, not merely skill, of an advanced type in a given field gained by a prolonged course of specialized instruction and study of at least baccalaureate level, which is a realistic prerequisite to entry into the particular field of endeavor. Matter of Sea, 19 I&N Dec. 817 (Comm. 1988); Matter of Ling, 13 I&N Dec. 35 (R.C. 1968); Matter of Shin, 11 I&N Dec. 686 (D.D. 1966). Therefore, the AAO must focus on the level of education required by the position, rather than the degree held by the subordinate employee. The possession of a bachelor's degree by a subordinate employee does not automatically lead to the conclusion that an employee will be employed in a professional capacity as that term is defined above. In the instant case, the petitioner has not, in fact, established that a bachelor's degree is actually necessary to perform the duties of the marketing director. 2Whilethe petitioner has not argued that the beneficiary will manage an essential function of the organization, the record nevertheless would not support this position even if taken. The term "function manager" applies generally when a beneficiary does not supervise or control the work of a subordinate staff but instead is primarily responsible for managing an "essential function" within the organization. See section 101(a)(44)(A)(ii) of the Act. The term "essential function" is not defined by statute or regulation. If a petitioner claims that the beneficiary is managing an essential function, the petitioner must furnish a written job offer that clearly describes the duties to be performed in managing the essential function, i.e., identify the function with specificity, articulate the essential nature of the function, and establish the proportion of the beneficiary's daily duties attributed to managing the essential function. See 8 C.F.R. § 214.2(l)(3)(ii). In addition, the petitioner's description of the beneficiary's daily duties must demonstrate that the beneficiary manages the function rather than performs the duties related to the function. In this matter, the petitioner has not provided evidence that the beneficiary will manage an essential function. The petitioner's vague job description fails to document what proportion of the beneficiary's duties would be managerial functions, if any, and what proportion would be non-managerial. Also, as explained above, the record establishes that the beneficiary will primarily be a first-line manager of a non-professional employee and/or will perform non qualifying operational or administrative tasks. Absent a clear and credible breakdown of the time spent by the beneficiary performing her duties, the AAO cannot determine what proportion of her duties will be managerial, nor can it deduce whether the beneficiary will primarily perform the duties of a function manager. See IKEA US, Inc. v. Us. Dept. ofJustice, 48 F. Supp. 2d 22, 24 (D.D.C. 1999). WAC 06 08551662 Page 8 Similarly, the petitioner has failed to establish that the beneficiary will act in an "executive" capacity. The statutory definition of the term "executive capacity" focuses on a person's elevated position within a complex organizational hierarchy, including major components or functions of the organization, and that person's authority to direct the organization. Section 101(a)(44)(B) of the Act. Under the statute, a beneficiary must have the ability to "direct the management" and "establish the goals and policies" of that organization. Inherent to the definition, the organization must have a subordinate level of employees for the beneficiary to direct, and the beneficiary must primarily focus on the broad goals and policies of the organization rather than the day-to-day operations of the enterprise. An individual will not be deemed an executive under the statute simply because they have an executive title or because they "direct" the enterprise as the owner or sole managerial employee. The beneficiary must also exercise "wide latitude in discretionary decision making" and receive only "general supervision or direction from higher level executives, the board of directors, or stockholders of the organization." !d. For the same reasons indicated above, the petitioner has failed to establish that the beneficiary will be acting primarily in an executive capacity. The job description provided for the beneficiary is so vague that the AAO cannot deduce what the beneficiary will do on a day-to-day basis. Moreover, as explained above, it appears that the beneficiary will be primarily employed as a first-line supervisor and will be performing tasks necessary to produce a product or to provide a service. Therefore, the petitioner has not established that the beneficiary will be employed primarily in an executive capacity? Counsel correctly observes that a company's size alone, without taking into account the reasonable needs of the organization, may not be the determining factor in denying a visa to a multinational manager or executive. See § 101(a)(44)(C) of the Act. However, in reviewing the relevance of the number of employees a petitioner has, federal courts have generally agreed that CIS "may properly consider an organization's small size as one factor in assessing whether its operations are substantial enough to support a manager." Family, Inc. v. U.S. Citizenship and Immigration Services, 469 F.3d 1313, 1316 (9 th Cir. 2006) (citing with approval Republic of Transkei v. INS, 923 F.2d 175,178 (D.C. Cir. 1991); Fedin Bros. Co. v. Sava, 905 F.2d 41,42 (2d Cir. 1990) (per curiam); Q Data Consulting, Inc. v. INS, 293 F. Supp. 2d 25, 29 (D.D.C. 2003). Furthermore, the reasonable needs of the petitioner will not supersede the requirement that the beneficiary be "primarily" employed in a managerial or executive capacity as required by the statute. See sections 101(a)(44)(A) and (B) 3It is noted that counsel to the petitioner cited the unpublished opinion in Matter ofIrish Dairy Board, A28 845-42 (AAO Nov. 16, 1989), in support of his contention that the beneficiary is primarily employed as an executive. In that decision, the AAO recognized that the sole employee of the petitioner could be employed primarily as a manager or executive provided he or she is primarily performing executive or managerial duties. However, counsel's reliance on this decision is misplaced. First, counsel has furnished no evidence to establish that the facts of the instant petition are analogous to those in the unpublished decision. Second, while 8 C.F.R. § 103.3(c) provides that AAO precedent decisions are binding on all CIS employees in the administration of the Act, unpublished decisions are not similarly binding. Third, as explained above, the petitioner has not established that the beneficiary will be primarily employed in an executive or managerial capacity. This is paramount to the analysis, and a beneficiary may not be classified as a manager or an executive if he or she will not be primarily performing managerial or executive duties regardless of the number of people employed by the petitioner. Therefore, as the petitioner has not established this essential element, the decision in Matter of Irish Dairy Board would be irrelevant even if it were binding and analogous. WAC 06 08551662 Page 9 of the Act, 8 U.S.c. § 1101(a)(44). Accordingly, in this matter, the petitioner has failed to establish that the beneficiary will primarily perform managerial or executive duties, and the petition may not be approved for that reason. Beyond the decision of the director, the petitioner failed to establish that the beneficiary had been employed abroad for at least one continuous year in a position that was managerial, executive, or involved specialized knowledge. 8 C.F.R. §§ 214.2(l)(3)(iii) and (iv). In support of the petition, the petitioner submitted a letter dated January 25, 2004 from the foreign entity in which it described the beneficiary's position abroad as "trade development manager." The foreign entity vaguely described the beneficiary's duties abroad as "establishing and maintaining business relationships with customers and suppliers, negotiating contracts, and directing import and export logistics" and claimed that the beneficiary supervised "a staff of six sales personne1." Upon review, the petitioner has not described the beneficiary as performing primarily qualifying duties abroad. To the contrary, the petitioner has submitted a job description indicating that the beneficiary primarily performed non-qualifying duties, e.g., working directly with customers and negotiating contracts and serving as a first-line supervisor of sales staff. As indicated above, an employee who "primarily" performs the tasks necessary to produce a product or to provide services is not considered to be "primarily" employed in a managerial or executive capacity. See sections 101(a)(44)(A) and (B) of the Act; see also Matter of Church Scientology International, 19 I&N Dec. at 604. A managerial employee must have authority over day-to-day operations beyond the level normally vested in a first-line supervisor, unless the supervised employees are professionals. Section 101(a)(44)(A)(iv) of the Act; see also Matter of Church Scientology International,19 I&N Dec. at 604. Accordingly, the petitioner failed to establish that the beneficiary had been employed abroad for at least one continuous year in a position that was managerial, executive, or involved specialized knowledge, and the petition may not be approved for this additional reason. Beyond the decision of the director, the petitioner failed to establish that it has a qualifying relationship with the foreign employer because it failed to establish that the foreign employer is currently doing business. The regulation at 8 C.F.R. § 214.2(l)(3)(i) states that a petition filed on Form 1-129 shall be accompanied by "(e]vidence that the petitioner and the organization which employed or will employ the alien are qualifying organizations." See also 8 c.P.R. § 2I 4.2(l)(l4)(ii)(A). Title 8 C.P.R. § 214.2(l)(l)(ii)(G) defines a "qualifying organization" as a firm, corporation, or other legal entity which "meets exactly one of the qualifying relationships specified in the definitions of a parent, branch, affiliate or subsidiary specified in paragraph (l)(1)(ii) of this section" and "is or will be doing business." "Doing business" is defined in pertinent part as "the regular, systematic, and continuous provision of goods and/or services." 8 C.F.R. § 214.2(l)(1)(ii)(H). In this matter, the record is devoid of evidence of the foreign entity currently being engaged in the regular, systematic, and continuous provision of goods and/or services. While the petitioner submitted a letter from the foreign entity dated over one year prior to the filing of the instant petition, a 1999 Chinese business license, a company brochure, and a 2005 tax document, these documents are not probative of current business activity WAC 0608551662 Page 10 abroad. Going on record without supporting documentary evidence is not sufficient for purposes of meeting the burden of proof in these proceedings. Matter of Soffici, 22 I&N Dec. 158 , 165 (Comm. 1998) (citing Matter of Treasure Craft ofCalifornia, 14 I&N Dec. 190). Accordingly, the petitioner has not established that it and the foreign entity are still qualifying organizations. For this additional reason, the petition may not be approved. The initial approval of an L-IA new office petition does not preclude CIS from denying an extension of the original visa based on a reassessment of petitioner's qualifications. Texas A&M Univ. v. Upchurch, 99 Fed. Appx. 556, 2004 WL 1240482 (5th Cir. 2004) . Despite any number of previously approved petitions , CIS does not have any authority to confer an immigration benefit when the petitioner fails to meet its burden of proof in a subsequent petition. See section 291 of the Act, 8 U.S.C. § 1361. An application or petition that fails to comply with the technical requirements of the law may be denied by the AAO even if the Service Center does not identify all of the grounds for denial in the initial decision. See Spencer Enterprises , Inc. v. United States, 229 F . Supp. 2d 1025 , 1043 (E.D. Cal. 2001) , aff'd, 345 F .3d 683 (9th Cir. 2003); see also Dar v. INS, 891 F .2d 997, 1002 n. 9 (2d Cir. 1989) (noting that the AAO reviews appeals on a de novo basis). The petition will be denied for the above stated reasons , with each considered as an independent and alternative basis for denial. When the AAO denies a petition on multiple alternative grounds, a plaintiff can succeed on a challenge only if it is shown that the AAO abused its discretion with respect to all of the AAO's enumerated grounds . See Spencer Enterprises , Inc., 229 F. Supp.2d at 1043 . In visa petition proceedings, the burden of proving el igibility for the benefit sought remains entirely with the petitioner. Section 291 of the Act. Here, that burden has not been met. Accordingly, the appeal will be dismissed. ORDER: The appeal is dismissed. - - -- -- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -- -
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