HomeMy WebLinkAbout20110802Reply Comments.pdfLISA D. NORDSTROM
Lead Counsel
Inordstrom(âidahopower.com
RECEJ\JE
PM ~: 54
es11J~POR(I
An IDACORP Company
August 1, 2011
VIA HAND DELIVERY
Jean D. Jewell, Secretary
Idaho Public Utilities Commission
472 West Washington Street
P.O. Box 83720
Boise, Idaho 83720-0074
Re: Case No. IPC-E-11-05
IN THE MA TTER OF THE APPLICA nON OF IDAHO POWER COMPANY
FOR A PRUDENCY DETERMINA nON OF 2010 ENERGY EFFICIENCY
RIDER EXPENDITURES
Dear Ms. Jewell:
Enclosed for filng please find an original and seven (7) copies of Idaho Power
Company's Reply Comments in the above matter.
Very truly yours,
X~l).7/~
Lisa D. Nordstrom
LDN:csb
Enclosures
1221 W. Idaho St. (83702)
P.O. Box 70
Boise, ID 83707
JASON B. WILLIAMS
LISA D. NORDSTROM (ISB No. 5733)
Idaho Power Company
1221 West Idaho Street (83702)
P.O. Box 70
Boise, Idaho 83707
Telephone: (208) 388-5104
Facsimile: (208) 388-6936
jwilliamsCâidahopower.com
Inordstrom~idahopower.com
RECEIVED
2Dfl AUG -I PM 4: 54
Attorneys for Idaho Power Company
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF THE APPLICATION )
OF IDAHO POWER COMPANY FOR A ) CASE NO. IPC-E-11-05
PRUDENCY DETERMINATION OF 2010 )
ENERGY EFFICIENCY RIDER ) IDAHO POWER COMPANY'SEXPENDITURES. ) REPLY COMMENTS
)
Idaho Power Company ("Idaho Powet' or "Company") respectfully submits the
following Reply Comments in the above-captioned case.
I.
BACKGROUND
On March 15, 2011, Idaho Power filed an Application requesting a prudency
determination related to Company expenditures in 2010 totaling $42,479,692 in Idaho
Energy Effciency Rider ("Ridet') funds. On April 26, 2011, the Idaho Public Utilties
Commission ("Commission") issued a Notice of Application and Notice of Modified
Procedure, Order No. 32232, establishing a 60 day comment period and a 14 day reply
comment period. On June 30, 2011, the Commission issued Order No. 32283
extending the comment period to July 18, 2011, and the reply comment period to
August 1, 2011. In responding to Commission Staff ("Staff') production requests, Idaho
IDAHO POWER COMPANY'S REPLY COMMENTS - 1
Power discovered that $526,781 of Rider funds had been inadvertently charged to the
Idaho Energy Efficiency Tariff Rider rather than the Oregon Rider. On July 1,2011, the
Company filed a letter with the Commission explaining the error and reduced its request
"
for a prudency determination in this case to $41,952,911 rather than $42,479,692. The
Staff, Idaho Conservation League ("ICL"), Idaho Irrigation Pumpers Association, Inc.
("IIPA"), the Industrial Customers of Idaho Power ("ICIP"), and one member of the public
submitted comments in this case. With the exception of Staff (as described in more
detail below), none of the comments recommend a disallowance of 2010 Rider
expenses.
II.
THE COMMISSION SHOULD ALLOW ALL
RIDER RELATED LABOR COSTS.
Staff recommends that $120,070 of Rider expenses incurred in 2010 related to
labor costs be disallowed in this case and only be deemed prudent pending the
outcome of the Company's general rate case, Case No. IPC-E-11-08. While it is clear
Staff is targeting Company employee wage increases as a policy matter and wil most
likely raise this issue in the Company's pending general rate case, the recommended
disallowance is not appropriate in this demand-side resources ("DSM") prudency case.
Accordingly, the Commission should deny Staffs disallowance recommendation.
The setting of prospective rates in a general rate case based upon a
determination of prudent levels for salaries in a test year is very different than evaluating
the prudency of past costs incurred. If the Commission determines that recoverable
salary expenses are appropriately set at levels lower than those proposed by the
Company in a general rate case, the Company has the abilty to react to such a
IDAHO POWER COMPANY'S REPLY COMMENTS - 2
Commission directive and prospectively adjust employee compensation and any other
expenses disallowed or adjusted by Commission order. However, in this cost prudency
review case, the Company has already spent the money. Idaho Powets pending rate
case is based upon a 2011 test year; it does not apply to expenses incurred in 2010,
such as the 2010 Rider expenses. A determination that past wage adjustments were
not prudently incurred by the Company would require the Company to expense the
$120,070 immediately, eliminating the opportunity for the Company to recover the full
2010 costs of the cost-effective DSM programs. Thus, if the Commission approves
Staffs recommendation, the Company will have no mechanism to recover any of those
expenses. This is a wholly inequitable result, and the Commission should deny Staff's
recommendation.
In addition, Staff justifies its recommended disallowance by the fact that the
Company has submitted a general rate case during the pendency of the prudency
determination in this docket, thus giving the Commission an opportunity to examine
Rider employees' salary adjustments in that context. However, tying the disposition of a
specific expense to a finding in a particular general rate case filing poses significant
practical problems on a going-forward basis. If the logic of Staff's recommendation is
followed, it would suggest that the Company can only provide wage increases to
employees paid for by Rider funds during years in which the Company files a general
rate case. Again, this yields an inequitable result for the Company; the timing of when it
chooses to file a general rate case should not dictate when Rider-funded employees
should receive wage increases.
IDAHO POWER COMPANY'S REPLY COMMENTS - 3
Importantly, all programs reviewed for prudency in this case were deemed cost-
effective pursuant to the three cost-effectiveness tests required by the Memorandum of
Understanding signed by the Company and Staff in Case No. IPC-E-09-09 ("DSM
MOU"). Notably, each of those cost-effectiveness tests included the Rider employee
salaries, inclusive of the wage increases at issue. Thus, the Company has met its
obligation to provide cost-effective DSM measures even with the wage increases.
Moreover, the Company has fronted a significant amount of capital toward the
Rider programs at its own risk with the anticipation that it will be allowed dollar-for-dollar
cost recovery through the Rider. As pointed out above, the disallowance recommended
by Staff, if granted, would require the Company to immediately expense the $120,070 at
issue and there would be no mechanism for the Company to recover those funds. Put
differently, if Staffs recommendation is granted, not only wil the Company not have
earned its allowed rate of return for investing millons of dollars in energy efficiency
activities in 2010, the Company would be penalized by $120,070. Staff's recommended
disallowance highlights the asymmetric risk and reward proposition for the Company's
cost-effective energy efficiency efforts. On balance, the Commission should consider
this lack of symmetry and conclude that Staff's recommendation is not warranted.
II.
THE COMMISSION HAS PREVIOULSY ACKNOWLEDGED
CLASS CROSS-SUBSIDIZATION IS AN INHERENT
PART OF ENERGY EFFICIENCY ACTIVITY.
Staffs Comments express concern that some customer classes receive a greater
percentage of Rider fund benefits than they contribute. Staff Comments at 4. However,
Staff concedes that "the Company should not discontinue more cost effective programs
in one class in exchange for less cost effective programs in another class simply to
IDAHO POWER COMPANY'S REPLY COMMENTS - 4
promote DSM revenue/program cost equity." Id. ICIP is especially critical as to what it
perceives are inefficient energy efficiency programs for the residential class. ICIP
Comments at 8-9.
The Commission has addressed the issue of class cross-subsidization in the
energy efficiency context on two previous occasions. First, in Order No. 29065, the
Commission directed the Company to "implement a balanced portolio of DSM
programs for all customer classes over the long-term . .. The energy savings
generated by such an approach wil indirectly benefit all ratepayers as more class-
specific DSM programs are implemented over time." Id. at 8. Second, in Order No.
32113, the Commission stated, "An exact 'matching' of the costs and benefits for an
individual DSM program is a worthy, albeit unrealistic, goal. There wil always be some
level of cross-subsidization of DSM programs occurring amongst and between a utilty's
various customer classes." Id. at 8-9.
Consistent with these Commission guidelines, Idaho Power maintains that all of
its energy efficiency program savings and demand response peak savings in 2010
created system benefits for all customers, regardless of specific customer class
measures. That said, the Company continues to work on this disparity, particularly in
the residential class. Specifically, the Company currently offers eleven incentive
programs targeted at the residential class which incentivizes those customers to lessen
their home energy usage. In addition, the Company actively pursues the residential
education initiative, which provides customers with information that can help them
reduce their energy use through their own conservation actions.
IDAHO POWER COMPANY'S REPLY COMMENTS - 5
IV.
THERE IS NO CONFLICT OF INTEREST BETWEEN THE DSM
EVALUATION AND IMPLEMENTATION TEAMS.
Staffs Comments suggest that there is a conflict of interest with having the
Energy Efficiency Program leaders and the Customer Research and Analysis leader
report to the Manager of Customer Relations & Energy Efficiency. Staff Comments at
6-8. Staff alleges that it has identified specific examples in the Demand-Side
Management 2010 Annual Report ("2010 DSM Report") where this perceived conflict of
interest "could have produced questionable results." Staff Comments at 7.
Idaho Power disagrees with Staffs assertion. The Company offers energy
efficiency programs to reduce the need for energy generation and to provide customers
opportunities to reduce their energy use. Idaho Power has nothing to gain by gaming
the efficacy of the cost-effectiveness of these programs. As the program administrator,
the Company is charged with identifying any deficiencies that evaluations might
highlight in the programs; this enables the Company to modify, improve, or discontinue
any program that was not effective, providing transparency and satisfaction for all
stakeholders.
The Staff cites examples alleging that certain programs had large budgets and
low cost-effectiveness, that the Company's evaluations of certain programs were
strategically delayed, and that the evaluations delivered in the 2010 DSM Report were
designed to highlight implementation successes and minimize deficiencies. The
Company disagrees with these assertions. The 2010 DSM Report shows that all of the
Company's DSM programs met the Staff-approved cost-effectiveness tests set forth in
the DSM MOU. A change to the Company's internal employee reporting structure
IDAHO POWER COMPANY'S REPLY COMMENTS - 6
would not change the cost or cost-effectiveness of these programs. Further, Staffs
suggestion that the evaluations of Idaho Powets demand response programs could
have been strategically delayed are completely unfounded and inaccurate. Idaho
Power has begun and continues to conduct evaluations of all of its demand response
programs on a routine and regular basis, including third-party evaluations. In fact, in
production request responses in this case, the Company provided copies of third-party
reviews of the AlC Cool Credit as well as Company reviews of the Irrigation Peak
Rewards and FlexPeak programs. While the Company is and continues to remain open
to suggestions to improve its energy efficiency activities, it does not find unfounded
criticisms of its programs to be constructive. Accordingly, the Commission should
disregard the unsubstantiated allegations related to the Company's purported conflict of
interest made by Staff in its Comments in this proceeding.
V.
THE COMPANY IS APPROPRIATELY ADMINISTERING
ITS DEMAND RESPONSE PROGRAMS.
Staff was critical of all three of the Company's demand response programs.
First, with regard to the Irrigation Peak Rewards program, Staff asserts that it did
not "appear to have interrupted irrigators as frequently as it could have to avoid relying
on incremental cost generation resources." Staff Comments at 7. As described in the
Company's 2009 Integrated Resource Plan ("2009 IRP"), the goal of demand response
programs is to reduce summer peak electric load during periods of high demand and
minimize or delay the need to build new supply-side resources. 2009 IRP at 47.
Demand response programs, like the Irrigation Peak Rewards program, were not
designed by Idaho Power to reduce real time power supply costs. The design of
IDAHO POWER COMPANY'S REPLY COMMENTS - 7
demand response programs aligns with the IRP planning process where these
programs are intended to fil a need when demand is high and resources are short or
non-existent. It is diffcult to justify extreme need if the Company is not running its
supply-side resources and real time wholesale market prices are well below what
customers are paying through their rate$. In addition, because of the few hours these
programs are available and the fact that much of the energy use is shifted to a different
time period, not reduced, presents limited opportunity to reduce real time power supply
costs.
Second, Staff's Comments point out that the expenses for the FlexPeak program
rose dramatically without a subsequent increase in demand reduction and that Idaho
Power did not explain this in the 2010 DSM Report. Staff Comments at 7. During the
first year of the program, EnerNOC Inc. ("EnerNOC"), the program's third-party
contractor, provided more demand reduction than it was committed to provide. In 2009,
EnerNOC was compensated for the three-month average of only 7.4 megawatts ("MW")
while actually providing a maximum of 17.1 MW (a 230% difference), giving Idaho
Power a lower-cost resource in the first year. In contrast, in 2010, the three-month
average was 31.0 MW while providing an actual reduction of 42.1 MW (a 135 percent
difference). Subsequently, the costs better aligned with EnerNOC's commitment in
terms of performance in 2010. On page 82 of the Demand-Side Management 2009
Annual Report, the Company noted that in 2009 EnerNOC's initial goal was to achieve 2
MW of demand reduction and that lower expenses and higher demand reduction
contributed to the program's cost-effectiveness in year one. In response to Staff's
Production Request No. 17 in this case, Idaho Power addressed the difference in the
IDAHO POWER COMPANY'S REPLY COMMENTS - 8
cost per megawatt between 2009 and 2010 and the fact that the Company is only
required to compensate EnerNOC for 10 percent of its demand reduction above the
nominated amount. Thus, Staff's assertion that the costs were high without any
explanation is not entirely accurate.
Third, Staff states that the AlC Cool Credit program "continues to suffer from low
cost-effectiveness ratios. . .," and suggests that giving demand response programs a
twenty-year life is "generous." Staff Comments at 7. ICIP levels similar criticisms
against the FlexPeak Management program, suggesting that the use of a different
program life somehow creates undervaluation of the program. ICIP Comments at 8.
Importantly, regardless of the program life used in the cost-effective analysis of demand
response programs, they are all cost-effective from a program life perspective and from
a one year perspective. As noted in Supplement 1: Cost-Effectiveness to the 2010
DSM Report "For 2010, AlC Cool Credit, FlexPeak Management, and Irrigation Peak
Rewards passed the B/C test with TRC's of 1.23, 1.33, and 1.12 respectively." Id. at 3.
Thus, both Staffs and ICIP's criticisms in this regard are unfounded.
ICIP is also critical of the Company's demand response programs, suggesting
that the Company should use inputs from its 2011 IRP to analyze and value its
programs. The Company's Application, which was filed on March 15, 2011, seeks
recovery of expenses incurred in 2010. The 2011 IRP, filed on June 30, 2011, is stil
pending before the Commission. ICIP effectively recommends that the Company
conduct a forward-looking analysis based on the 2011 IRP for expenses incurred in
calendar year 2010. The cost-effective analysis for an after-the-fact prudency review is
based on the inputs from the most recent IRP acknowledged by the Commission and
IDAHO POWER COMPANY'S REPLY COMMENTS - 9
other information that is the best information known at the time that the funds were
utilized, in this case 2010. Thus, the appropriate IRP for the 2010 prudency review is
the Company's acknowledged 2009 IRP. The Company cannot use the inputs from the
2011 IRP until the Commission acknowledges it. Once acknowledged, the Company
wil begin using the 2011 IRP inputs in its DSM research and analysis. Accordingly, the
Commission should reject ICIP's recommendation to rerun its cost-effectiveness tests
with 2011 IRP data.
ICIP also complains that the Company used third-party evaluators for nine
process evaluations in 2010 but did not use third-party evaluators to conduct actual
cost-effectiveness reviews of programs. Idaho Power follows the DSM MOU regarding
cost-effectiveness, which includes no requirement to use third-party evaluators to
conduct cost-effectiveness evaluations. In accordance with the DSM MOU section 5.a,
Idaho Power plans to undertake process and impact evaluations of all substantial
programs on a reasonable and frequent cycle, two to three years.
ICIP also contends that Idaho Power had put a "cap" on its demand response
programs in the 2011 IRP to justify the acquisition of new supply-side resources. ICIP
Comments at 3-6. As stated in the Company's Response to ICIP's Request for
Production No. 6.b:
As long as system demand is growing, Demand Response
programs are not intended to, nor are they capable of, eliminating
the need for all new resources. Demand Response, as a resource
in a system with growing demand, is intended to defer new
resources and only satisfy deficits that occur within the program
operating parameters. At some point, the deficits become too large
and out of scope for demand response programs.
IDAHO POWER COMPANY'S REPLY COMMENTS - 10
The results of Idaho Powets 2011 IRP analysis, conducted in the fall of 2010,
demonstrated 351 MW (the cap claimed by ICIP) was a reasonable estimate of the
demand response potential which could economically reduce Idaho Powets future peak
demands. The fact of the matter, however, is that the Company has not set a cap.
Subsequent to the 2011 IRP analysis and the issuance of Order No. 32200, without any
restricting or capping of its demand response programs for the summer of 2011, Idaho
Power has achieved approximately 400 MW of demand reduction potential through the
administration of its DSM programs. This is an increase over 100 MW from 2010.
Vi.
IDAHO POWER SHOULD NOT HAVE TO FILE AN
ADDENDUM TO THE 2010 DSM REPORT.
Commission Staff recommends that the Company file an addendum to the 2010
DSM Report that "includes an explanation of the changes to its program life benefit-cost
ratio methodology, a revised Appendix 4 with correction highlighted, and an explanation
of how the Company's accounting practices have been improved to prevent the
incorrect allocation of prgram expenses." Staff Comments at 9. While the Company
agrees with Staff that Idaho Power should explain these three items, the Company
asserts it can be done in these Reply Comments and that there is no need to file an
addendum. Attachment No. 1 is a revised version of Appendix 4 per Staffs request.
Further, the Company offers the following explanations for the revisions.
A. The Company Modified Its Benefit/Cost Ratio Methodology As Part of Its
Continuing Efforts to Enhance Its DSM Programs.
After consulting with the Company's financial analyst and power supply analyst,
the Company changed its method of calculating the program life cost-effectiveness
ratios in 2010 in an effort to more accurately reflect the present value of the costs and
IDAHO POWER COMPANY'S REPLY COMMENTS - 11
benefits of a program. While Idaho Power admittedly should have explained this
change in methodology in the 2010 DSM Report, Idaho Power met with Staff and ICIP
on July 8, 2011, for a workshop where the Company explained the change in
methodology used in program life cost-effectiveness. At that time, Idaho Power also
demonstrated that every Idaho energy effciency program is cost-effective under either
calculation for its program life from the utilty cost and the total resource cost
perspective.
In its 2009 DSM Report, Idaho Power calculated the program life benefit/cost
(B/C) ratios by using the discounted (or present valued) stream of avoided costs
through a program's measure life divided by the discounted stream of costs from year
one of a program to the present year. The economic inputs for the discounting came
from the 2009 IRP. In the 2010 DSM Report, the Company used the sum of the actual
historic annual avoided costs plus the sum of the discounted future avoided costs
divided by the sum of the actual costs from year one to the present year (2010) to
calculate the program life B/C ratios. The economic inputs for the discounting came
from the 2009 I RP.
B. The Company Has Recently Updated and Automated Its Processes For
DSM Programs For Effciency and Accuracy.
Staffs Comments note that the 2010 DSM Report contained some errors. As
indicated above, Idaho Power was aware of the accounting error and correspondingly
updated its prudency request in this docket through a letter dated July 1, 2011.
Importantly, throughout 2010, the Company developed a data repository, which was
implemented in 2011. See Case No. IPC-E-10-09, Reply Comments of Idaho Power
Company. All of Idaho Power's energy efficiency programs have been migrated to this
IDAHO POWER COMPANY'S REPLY COMMENTS - 12
new platform, creating new automated uploading processes.Prior to the
implementation of this system, the tracking and automatic upload of payments were
submitted through databases in which the accounting data was manually entered.
Although extensive checks and balances existed in the previous systems, all
reconciliation had to be performed by manually checking each charge to see that it
contained the correct accounting. With the new system, the likelihood of incentives
being charged to the wrong jurisdiction is greatly diminished, if not eliminated.
VII.
THE COMPANY HAS COMPLIED WITH THE COST-EFFECTIVENESS
TESTS SET FORTH IN THE DSM MOU.
Despite the Company demonstrating that each of its energy efficiency programs
satisfied all of the cost-effectiveness tests required by the DSM MOU, ICIP is especially
critical of the fact that some of the Company's programs failed to meet the Ratepayer
Impact Measurement ("RIM") test. Specifically, ICIP asserts "that the limited process
evaluations do little to dispel ICIP's concern that the residential program has a serious
free rider problem," citing a Global Energy Partners ("GEP") report ("GEP Report") to
support its position. ICIP Comments at 9. Further, ICIP urges the Commission to
require Idaho Power to engage a qualified third-party to fully evaluate the cost-
effectiveness of each of its residential programs, including any free-rider problems. As
an initial matter, free riders are program participants who would have taken action
without program incentives and spillover accounts for actions taken as a result of a
program, but without an incentive. The net to gross ("NTG") ratio is a factor that is
multiplied by a program's gross savings to identify an estimate of net savings, often to
adjust for various factors such as free ridership and spilover. It must be noted that
IDAHO POWER COMPANY'S REPLY COMMENTS - 13
determining utilty-specific, program-specific free ridership and spilover is a very labor
intensive and expensive process. When Idaho Power contracted with GEP to conduct
process evaluations of its residential programs, it was asked to identify if sufficient
information was available to make a reasonable estimation of free ridership and, if not
available, to provide recommendations on how to estimate free ridership. In its report,
GEP provided several recommendations to help the Company estimate free ridership in
this process evaluation. GEP Report at 7-4. One of GEP's recommendations was to
use "deemed" NTG values from established third-party sources when estimating free
ridership. The Company currently uses such deemed NTG ratios based on program
type in calculating cost-effectiveness. These sources and NTG ratios are noted in the
Demand-Side Management 2010 Annual Report, Supplement 1: Cost-Effectiveness.
Thus, the Company is actively engaging on the free ridership issue.
VII.
CONCLUSION
In 2010, Idaho Powets DSM efforts continue to show increased participation and
energy savings as well as positive cost-effective performance of programs. All energy
efficiency programs produced savings at a benefit/cost ratio of greater than one when
analyzed from the perspectives of total resource cost, utility cost, and participant cost.
The Company takes significant risks by spending substantial amounts every year on its
DSM initiatives with no guarantee of cost recovery. Staff's proposed disallowance of
certain labor costs is unwarranted and inequitable. While the Commission has
acknowledged certain cross-subsidization is inherent in the Company's energy
efficiency activities, Idaho Power has demonstrated that each of its programs exceed
the required cost/benefits ratios. While the Company misallocated some Oregon funds
IDAHO POWER COMPANY'S REPLY COMMENTS - 14
to the Idaho jurisdiction, it corrected the error and has implemented new automated
systems which should minimize the risks of similar occurrences happening in the future.
Accordingly, Idaho Power respectfully requests that the Commission issue an
Order designating Idaho Power's expenditure of $41 ,952,911 in Idaho Energy Efficiency
Rider funds in 2010 as prudently incurred expenses.
DATED at Boise, Idaho, this 1st day of August 2011.
~LQit~~JASON B. WILLIAM ~
Attorney for Idaho Power Company
IDAHO POWER COMPANY'S REPLY COMMENTS - 15
CERTIFICATE OF SERVICE
I HEREBY CERTIFY that on this 1st day of August 2011 I served a true and
correct copy of IDAHO POWER COMPANY'S REPLY COMMENTS upon the following
named parties by the method indicated below, and addressed to the following:
Commission Staff
Weldon B. Stutzman
Deputy Attorney General
Idaho Public Utilities Commission
472 West Washington
P.O. Box 83720
Boise, Idaho 83720-0074
Industrial Customers of Idaho Power
Peter J. Richardson
Gregory M. Adams
RICHARDSON & O'LEARY, PLLC
515 North 2ih Street
P.O. Box 7218
Boise, Idaho 83702
Dr. Don Reading
Ben Johnson Associates
6070 Hil Road
Boise, Idaho 83703
Idaho Conservation League
Benjamin J. Otto
Idaho Conservation League
710 North Sixth Street
P.O. Box 844
Boise, Idaho 83701
Idaho Irrigation Pumpers Association
Lynn S. Tominaga, Executive Director
Idaho Irrigation Pumpers Association
1109 West Main, Suite 300
P.O. Box 2624
Boise, Idaho 83701-2624
IDAHO POWER COMPANY'S REPLY COMMENTS - 16
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BEFORE THE
IDAHO PUBLIC UTiliTIES COMMISSION
CASE NO. IPC-E-11-05
IDAHO POWER COMPANY
ATTACHMENT NO.1
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