Item Q3BOARD OF COUNTY COMMISSIONERS
AGENDA ITEM SUMMARY
Meeting Date: 10/18/06 - KW Division: Growth Management Division
Bulk Item: Yes _ No X Staff Contact Person: Reggie Paros/Jerry D. Sanders
AGENDA ITEM WORDING:
Approval and Adoption of Amendment to 2010 Comprehensive Plan Policy 101.4.24 modifying height
limitations for structures constituting affordable, employee and workforce housing units for four (4) identified
parcels or groupings of parcels in the mixed used/commercial and residential high future land use categories,
using the expedited adoption proceeding provided in the Community Workforce Housing Innovation Pilot
Program ("CWHIP').
(Only One Hearing Required)
ITEM BACKGROUND:
The Florida Legislature recently enacted Session Law 2006-069, Section 27 of which was the Community
Workforce Housing Innovation Pilot Program ("CWRW*), now codified as F.S. §420.5095.
CWHIP will potentially make up to $5,000,000 dollars available for innovative workforce housing public -private
partnerships available to one or more projects in Monroe County should required comprehensive plan
amendments, land acquisition and other measures be taken in time to qualify for the program. F.S. 420.5095
authorizes an expedited process for these amendments requiring only one hearing - the adoption hearing.
The proposed Comprehensive Plan Amendment will modify height limitations for structures constituting
affordable, employee and workforce housing units for four (4) identified parcels or groupings of parcels in the
mixed used/commercial and residential high future land use categories.
PREVIOUS RELEVANT BOCC ACTION:
Approval of forwarding Notice of Intention to Adopt an Amendment to the 2010 Comprehensive Plan and
advertising same to modify height limitations for affordable housing by BOCC on 9/13/06.
CONTRACT/AGREEMENT CHANGES:
STAFF RECOMMENDATIONS:
Approval.
TOTAL COST:
COST TO COUNTY:
REVENUE PRODUCING: I
s o
APPROVED BY: County Atty
DOCUMENTATION: Included
BUDGETED: Yes No
SOURCE OF FUNDS:
AMOUNT PER MONTH Year
OMB/Purchasing
Not Required.
Risk Management
DISPOSITION: AGENDA ITEM #
Revised 8/06
ORDINANCE NO. -2006
AN ORDINANCE BY THE MONROE COUNTY BOARD OF COUNTY
COMMISSIONERS AMENDING THE YEAR 2010 COMPREHENSIVE PLAN
ADOPTING REVISIONS MODIFYING POLICY 101.4.24 HEIGHT
LIMITATIONS FOR STRUCTURES CONSTITUTING AFFORDABLE,
EMPLOYEE AND WORKFORCE HOUSING UNITS FOR FOUR (4)
IDENTIFIED PARCEL GROUPINGS IN THE MIXED USE/COMMERCIAL
AND RESIDENTIAL HIGH FUTURE LAND USE CATEGORIES, AND
DIRECTING THE DIRECTOR OF PLANNING AND ENVIRONMENTAL
RESOURCES TO FORWARD A CERTIFIED COPY OF THIS ORDINANCE
TO THE FLORIDA DEPARTMENT OF COMMUNITY AFFAIRS AND
PROVIDING AN EFFECTIVE DATE.
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Policy 601.1.3 directs
the County to have its Planning Department work "to increase local utilization of state and
federal funding programs"; and
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Policy 601.1.4 directs
the County to "[e]xpand the County's participation in Federal and State housing assistance
programs to rehabilitate owner and rental housing for low and moderate income residents by
seeking grants, loans, and technical assistance"; and
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Policy 601.1.10 directs
the County to "strive to participate in the State Housing Incentives Partnership Program as
specified in the 1992 William Sadowski Affordable Housing Act, ...adopt a Local Housing
Assistance Ordinance which establishes a local housing partnership; a local housing trust fund;
administrative responsibilities; and a Local Housing Advisory Committee... [and to
T]hereafter ... write and implement a Local Housing Assistance Plan and a Local Housing
Incentives Plan as specified in the Act."; and
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Policy 601.1.12 directs
the County to "adopt Land Development Regulations which may include density bonuses,
impact fee waiver programs, and other possible regulations to encourage affordable housing";
and
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Objective 601.2 directs
the County to "adopt programs and policies to encourage housing of various types, sizes and
price ranges to meet the demands of current and future residents"; and
WHEREAS, the Monroe County Year 2010 Comprehensive Plan Objective 601.6 directs
the County to "formulate housing implementation programs corresponding to each of the specific
objectives defined within this element, including:
2 incentive programs, to be implemented in conjunction with the Permit Allocation
System, to promote the development of affordable and elderly housing"; and ...
WHEREAS, in 2006 the Florida Legislature enacted Section 420.5095, F.S. which
implemented the Community Workforce Housing Innovation Pilot Program ("CWHIP"); and
WHEREAS, CWHIP will potentially make up to $5,000,000 dollars available for
innovative workforce housing public -private partnerships available to one or more projects in
Monroe County should required comprehensive plan amendments, land acquisition and other
measures be taken in time to qualify for the program; and
WHEREAS, CWHIP provides that funding priority will be given to counties where
regulatory incentives are timely adopted including "adopting land development regulations
designed to allow flexibility in densities" and financial strategies including "local contributions"
such as "providing land": and
WHEREAS, Florida Housing Finance Corporation ("Florida Housing"), the agency
responsible for administering CWHIP, has recently recognized Monroe County as the highest
cost burdened county for housing affordability and CWHIP is designed to allocate funds with
priority to "high cost" and "high growth" counties; and
WHEREAS, CWHIP gives special recognition to permissible median income levels to
be served with CWHIP funding awards in any county which has been designated as an Area of
Critical State Concern for more than 20 years, of which Monroe County is a qualifying
jurisdiction; and
WHEREAS, CWHIP will potentially make its funding available for innovative
workforce housing public -private partnerships available to one or more projects in Monroe
County should required comprehensive plan amendments, land acquisition and other measures
be taken in time to qualify for the program; and
WHEREAS, pursuant to CWHIP Monroe County and its municipalities have defined
"Essential Services Personnel" in the Local SHIP Local Housing Assistance Plan ("LHAP"),by
promptly amending its LHAP on September 20, 2006; and
WHEREAS, Monroe County intend wherever possible to make application for funding
under CWHIP and other funding sources; and
WHEREAS, Monroe County intends to use density bonuses, limited parcel -specific
height incentives and other innovative land use mechanisms to maximize the potential
affordable, workforce and employee housing opportunities in land use districts near employment
centers and public transportation facilities and the County has determined those districts to
primarily be the Suburban Commercial, Mixed Use and Urban Residential land use districts,
which districts already allow multi -family housing and are most suitable for density bonuses,
limited height limitation relaxation and other mechanisms to maximize economical housing
potential; and
WHEREAS, the Board of County Commissioners makes the following findings of fact:
1. A lack of sufficient affordable housing opportunities for the local workforce
creates serious risks to the local economy.
2. There is limited land area suitable for residential development remaining in the
County.
There is a current estimated unmet need of as many as 7,317 affordable units in
the County.
4. Further delineation and relaxation of height limitations will clearly comport and
further CWHIP's encouragement of "flexibility in densities" and will likely lead to the creation
of more affordable housing under the Code, and construction data, analysis and renderings from
qualified developers of affordable housing has been provided supporting this amendment.
5. Certain amendments to Policy 101.4.24 will permit an additional habitable floor
above parking (3 floors maximum) and thereby make certain parcels more economical locations
for affordable housing conditions.
6. The County has acquired up to four (4) parcel groupings where limited height
relief might increase the prospect of funding as a CWHIP project or even other state or federal
housing assistance programs and the County is willing to contribute the land to such a project
with an identified private partner as required under CWHIP.
7. The Carlisle Group has successfully completed projects with Florida Housing, has
the expertise to put together a competitive RFP response, and has indicated a willingness to
partner with the County if the County moves promptly to make regulatory changes relating to
height and density and other matters to help make workforce housing projects feasible under
CWHIP and other programs.
NOW THEREFORE, BE IT ORDAINED BY THE BOARD OF COUNTY
COMMISSIONERS OF MONROE COUNTY, FLORIDA, THAT:
Section 1. The following language is adopted as an amendment to the Monroe
County Year 2010 Comprehensive Plan to replace the current Policy 101.4.24, with the
corresponding table included in the policy to remain unchanged by this amendment:
Policy 101.4.24
Except as otherwise provided herein, in order to preserve the existing
community character and natural environment, Monroe County shall
limit the height of structures including landfills to 35 feet. Exceptions
will be allowed for appurtenances to buildings, transmission towers
and other similar structures and for the following structures serving
affordable housing needs:
Buildings constructed on parcels specifically designated for
state or federal project funding under programs including but
not limited to those made possible by Florida Statutes Section
420.5095, where the potentially affected parcels are
designated in writing to the Department of Community
Affairs, and where the contemplated project is made up
entirely of residential units that meet affordable, employee
and/or workforce housing guidelines set forth in the land
development regulations, up to a maximum with no more than
three (3) habitable floors over parking with a maximum
average roof height of thirty-eight (38) feet where no portions
of the roof exceed forty-four (44) feet. Portions of roofs
exceeding thirty-eight (38) feet in height shall require
Planning Commission approval in the standard development
review process. The Planning Commission may make
recommendations (i) to deny or approve height elements
exceeding thirty-eight (38) feet, and/or (ii) to attach conditions
based on: architectural character within three hundred (300)
feet, roof pitch, and color, setback requirements, excessive
blocking of scenic views, incompatibility with height of
surrounding vegetation, and distance from open water.
Otherwise customary exceptions will still be allowed for
appurtenances to buildings, transmission towers and other
similar structures. An applicant for a project proposed under
this provision may appeal a Planning Commission denial of a
requested height component or attaching of a condition
directly to the Board of County Commissioners, which may
affirm, reverse, or modify the contested issue within the
limitations of this provision.
2. The applicability of subparagraph 1 is limited to only the following
parcels:
a. Big Coppitt Key — U.S. 1 frontage between Sapphire and
Emerald Streets — appr. .85 acres — RE No. 00156320-
000000 — Zoning SC
b. Key Largo Mandalay Subdivision— 1" Avenue between E
First and Second Streets — appr. .7 acres — RE Nos.
00554720-000000 and 00554720-0001000 — Zoning UR
c. Cudjoe Key — US 1 and La Fitte Drive frontage — appr.
1.15 acres — RE Nos. 00178350-000000, 00178360-
000000, 00178370-000000, 00178380-000000 — Zoning
SC
d. Key Largo — US 1/State Service Road and Burton Drive —
appr. 2.72 acres — RE No. 00488730-000000 — Zoning SC
Section 2. If any section, subsection, sentence, clause, item, change, or provision of
this ordinance is held invalid, the remainder of this ordinance shall not affected by such validity.
Section 3. All ordinances or parts of ordinances in conflict with this ordinance are
hereby repealed to the extent of said conflict.
Section 4. This ordinance shall be transmitted to the Department of Community
Affairs pursuant to law.
Section 5. This ordinance shall be filed in the Office of the Secretary of the State of
Florida and shall become effective in accordance with Section 420.5095, Florida Statutes.
PASSED AND ADOPTED by the Board of County Commissioners of Monroe County,
Florida, at a regular meeting held on the 181h day of October, A.D., 2006.
Mayor Charles "Sonny" McCoy
Mayor Pro Tern Dixie Spehar
Commissioner George Neugent
Commissioner Mario Di Gennaro
Commissioner Glenn Patton
BOARD OF COUNTY COMMISSIONERS
OF MONROE COUNTY, FLORIDA
:•
(SEAL)
Charles "Sonny" McCoy
ATTEST: DANNY L. KOLHAGE, CLERK
MONROE COUNT
APP V
R ERT B. SHILLI GER, JR.
Ca= IEF ASSIS/TANT�pUNTY ATTORNEY
DEPUTY CLERK
Jerry Coleman, Esq. JERRY COLEMAN, P.L. Truman Annex
Email: iemcoleMW1& ellsouth.net 201 Front Street, Suite 203 Building 21 Second Floor
Tel: 305-292-3095 Key West, Florida 33040 Fax: 305-296-6200
(Admitted Florida and New York)
MEMORANDUM (CONSULTANT REPORT)
TO: Monroe County Board of County Commissioners
FROM: Jerry Coleman
DATE: October 6, 2006
MEETING DATE: October 18, 2006
RE: REVISIONS TO MONROE COUNTY COMPREHENSIVE PLAN
POLICY 101.4.24 MODIFYING HEIGHT LIMITATIONS FOR
STRUCTURES CONSTITUTING AFFORDABLE, EMPLOYEE
AND WORKFORCE HOUSING UNITS FOR FOUR (4)
IDENTIFIED PARCEL GROUPINGS IN THE MIXED
USE/COMMERCIAL AND RESIDENTIAL HIGH FUTURE LAND
USE CATEGORIES
I. BACKGROUND
This proposed Comprehensive Plan amendment ordinance is proposed for four (4) designated
parcel groupings owned by Monroe County or the Land Authority pursuant to the expedited
procedure allowed under Section 420.5095, F. S. (the Community Workforce Housing Innovation
Pilot Program ("CWHIP"). The County contemplates leasing these parcels to the Carlisle Group
under the present 99-year lease program and partnering with Carlisle to pursue CWHIP project
funding for workforce housing development on one or more of these parcels. By written Section
420.5095, F.S. notices, dated September 13, 2006, submitted to the Department of Community
Affairs, the County advised of a planned October 18, 2006 adoption hearing of three (3) draft
comprehensive plan amendments for contemplated CWHIP projects (dealing with density
bonuses, height incentives and fractional ROGO allocations for smaller units, respectively). The
author of this report advised the BOCC on September 13 in Key Largo that per the BOCC's
direction staff would work with the Department and would not present any proposed amendments
for adoption on October 18 if the Department had registered objections to their final form. After
discussions with the Department, staff has decided to withdraw the proposed CWHIP fractional
ROGO amendment at this time. The Department maintains that any CWHIP comp plan
amendment must be limited to specified potential CWHIP project parcels (of which the County
itself owns four (4) single or contiguous groupings of such identified parcels). Therefore, the
proposed new height language will not operate anywhere in the County other than at the
specifically identified parcels set forth in the amendment.
a SUMMARY
Our existing land development regulation code, currently provides the following height guidance
(provision adopted in 1986):
Sec. 9.S-283. Maximum height.
No structure or building shall be developed that exceeds a maximum
height of thirty-five (35) feet. Notwithstanding the provisions of this
section, any hotel or affordable housing unit may be development to a
height of three (3) stories over parking or a maximum of forty-four (44)
feet, whichever is lower, measured from grade level, if constructed to
meet wind load resistances of one hundred fifty (1 50) miles per hour and
a binding commitment is signed that such facilities will be used as official
hurricane shelters in accordance with specifications of the Monroe
County Department of Civil Defense. Affordable housing structures
exceeding thirty-five (35) feet in height must be allocated proportionately
to low -and moderate -income households according to identified demand.
However, our current 2010 Comprehensive Plan policy relating to building height, adopted after
1986 with the entire new Comprehensive Plan, reads as follows:
Policy 101.4.24
In order to preserve the existing community character and natural environment,
Monroe County shall limit the height of structures including landfills to 35 feet.
Exceptions will be allowed for appurtenances to buildings, transmission towers and
other similar structures.
Obviously, these two provisions are in clear conflict, and have led to some confusion. It is the
author of this report's opinion that the latter more restrictive provision does not permit limited
and controlled exceptions for desperately needed affordable, employee and workforce housing
construction. It is a fact that many commercial, residential and public buildings in the Keys today
exceed by far even the 44 feet limitation of 1986.
The proposed revised Comprehensive Plan Amendment to Policy 101.4.24 for only the four
potential CWHIP funding parcel groupings would be as follows (changes underlined):
Policy 101.4.24
Except as otherwise provided herein, in order to preserve the existing
community character and natural environment, Monroe County shall limit the
height of structures including landfills to 35 feet. Exceptions will be allowed
for appurtenances to buildings, transmission towers and other similar structures
and for the following structures serving affordable housing needs:
1. Buildings constructed on parcels specifically designated for state or
federal Moect� mnAa MW= including but not limited to
those made possible by Florida Statutes Section 420.5095. where the
potentially affected parcels are designated in writing_ to the
Department of Community Affairs, and where the contemplated
project is made up entirely of residential units that meet affordable,
employee and/or workforce housing guidelines set forth in the land
development regulations, up to a maximum with no more than three
(2) habitable floors over pgddgg with a maximum average roof height
of thirty+ -eight (38) feet where no portions of the roof exceed forty;_
four M feet. Portions of roofs exceeding thirty-eight (38 fed
ed in
hei ht shall require Plamina Commission approval in the standard
development review process. The Planning Commission may make
recommendations (i) to deny or approve height elements exceeding
fl iM--ei t 38? fea and/or lif o attach conditions based on:
architectural character within three hundred Q00) feet, roof pitch and
color. setback requirements, excessive blocking of scenic views,
incompatibility+ with height of surrounding vegetation, and distance
from open water. Otherwise customary exceptions will still be
allowgd fOr appurtenances to buildings. transmission towers and other
similar structures. An applicant for a_project proposed under this
provision may appeal a Planning Commission denial of a requested
height component or attaching of a condition directly to the Board of
County Commissioners. which may affirm, reverse or modify the
contested issue within the limitations of this provision.
2. Initial designation is made to the Department anent of Communty affmia of
the following parcels subiect to subparagraph 1. though subsequent
written notifications of otherwise aualifving parcels need not be made
in the form of a plan amendment:
a. Big Coppitt Key - U.S. 1 frontage between Sapphire and Emerald -
Streets - MM. .85 acres - RE No. 00156320-000000 - Zoning SC
b. Key LgMo- Mandalay Subdivision - 1't Avenue between E First
and Cetmnd .ihretc — skmw 7 arrec — RR Nnc (N rtr%A n -A(WWM
c. Cudioe Key - US 1 and La Fitte Drive frontage - appr. 1.15 acres
- RE Nos. 00178350-000000. 00178360-000000, 00178370-
000000.00178380-000000 - Zoning_SC
d. Key L&go - US I/State Service Road and Burton Drive - appr.
2.72 acres - RE No. 00488730-000000 - Zoning SC
III. FINDINGS OF FACT AND SUPPORTING DATA AND ANALYSIS PER RULE
9J-5, F.A.C.
1. Staff finds the proposed amendment to be consistent with the goals, objectives, and
policies of the Monroe County Year 2010 Comprehensive Plan.
2. The BOCC notes and makes finding that numerous statutes encourage higher densities in
appropriate areas, among them:
a. F.S. 163.3177 which encourages comp plan identification of land use
densities, building intensities, and transportation management programs to
promote public transportation systems in designated public transportation
corridors so as to encourage population densities sufficient to support such
systems.
b. F.S. 163.3177: The Legislature finds that mixed -use, high -density
development is appropriate for urban infill and redevelopment areas.
Mixed -use projects accommodate a variety of uses, including residential
and commercial, and usually at higher densities that promote pedestrian -
friendly, sustainable communities. The Legislature recognizes that mixed -
use, high -density development improves the quality of life for residents and
businesses in urban areas. The Legislature finds that mixed -use, high -
density redevelopment and infill benefits residents by creating a livable
community with alternative modes of transportation. Furthermore, the
Legislature finds that local zoning ordinances often discourage mixed -use,
high -density development in areas that are appropriate for urban infill and
redevelopment. The Legislature intends to discourage single -use zoning in
urban areas which often leads to lower -density, land -intensive development
outside an urban service area. Therefore, the Department of Community
Affairs shall provide technical assistance to local governments in order to
encourage mixed -use, high -density urban infill and redevelopment projects.
3. Policy 101.4.4 of the 2010 Comprehensive Plan provides that "the principal purpose of the
Residential High category is to provide for high -density single-family, multi -family, and
institutional residential development, including mobile homes and manufactured housing,
located near employment centers." The Urban Residential (UR) district affected by this
comp plan change is in the Residential High land use category. All districts that have been
zoned UR have thus been previously approved by the Department as consistent with high
density use located near employment centers. No new parcels are here being proposed for
more intense zoning than already exists. The UR district already allows under Sec. 9.5-
233 "attached dwelling units" so no substantial change of character will occur in this
regard. Recreational, marina and time-share uses are also permitted as well as pre-existing
lawfully noncomforming uses. The Key Largo Mandalay Subdivision parcels are zoned
UR and appropriate for application of height incentives for affordable housing purposes.
4. Policy 101.4.5 of the 2010 Comprehensive Plan provides that "the principal purpose of the
Mixed Use/Commercial land use category is to provide for the establishment of
commercial zoning districts where various types of commercial retail and office may be
permitted at intensities which are consistent with the community character and the natural
environment. Employee housing and commercial apartments are also permitted." No new
parcels are being proposed for more intense Mixed Use or Suburban Commercial zoning
than already exists. The MU and SC districts already allow under Secs. 9.5-235 and 9.5-
248 a tremendous variety of commercial uses which necessarily will offer employment
opportunities in the districts near any potential workforce housing and require
transportation options to service the already allowed commercial uses. Moreover these
districts already all "commercial apartments involving less than six (6) dwelling units",
"attached and unattached residential dwellings involving less than six (6) units, designated
as employee housing", "commercial apartments involving six (6) to eighteen (18) dwelling
units", "attached and unattached residential dwellings involving six (6) to eighteen (18)
units, designated as employee housing", and "attached and unattached residential
dwellings involving more than eighteen (18) units, designated as employee housing", so no
substantial change of character will occur in this regard. Recreational, marina and time-
share uses are also permitted as well as pre-existing lawfully noncomforming uses. The
Big Coppitt, Cudjoe Key and Key Largo Burton Drive parcels are zoned SC and are
appropriate for application of height incentives for affordable housing purposes.
Consultant staff finds the amendment consistent with F.A.C. Chapter 9J-5, Chapter 163
and 420 Florida Statutes, and The Principles for Guiding Development, Section 380.0552,
Florida Statutes.
IV. PROPOSED TEXT CHANGE
Please see attached Ordinance.
V. RECOMMENDED ACTION
Based on the Findings of Fact, Workforce Housing Task Force counsel
recommendsAPPROVAL of the proposed text change to Comprehensive Plan Policy 101.4.24
and the County Attorney's office has reviewed the ordinance for legal sufficiency. The
Department has advised that while adequate measures to assist in providing affordable and
workforce housing are matters of state concern, the specific question of adjustment to height
limitations in this context is a matter of local determination. The Department has not as of the
time of this writing had an opportunity to comment on this report or the proposed amendment.
A
oevs�of+��rr �+�icwwseMvrr conls�rro.ro�+
Octob.er 5,:2006
spaces need to .be at least 1-6 iodhes .deep : t is equates.
to 9.5 feet per floor. In this example, three stories
over parking produces 9:5' 'x 4 stories _ .3$' height..(See
attached)
3) Roof lines - Note.. that: the heights Iisted °above do
not allow for. any, kind" of pi tthed roofs, mansards;
parapets, etc, to improve the -,aesthetics of
The well icnoim "Key 'West:" architectural s.tX a artclic#es a'
pitched .roof, usual.1y witty :a, tin detailed; manssrd'., T4at
very spec-isl to , k►; foe ,Which. the :,Key- fain�itis. .1 1 add,
another 9 6' .of hei-ght to the structure. (See attaach0 .) .
Therefore, a rel.ativeiy 'mirior modi:facatioh in height_
standard produces .a :nearly;5:O�s increase h 'the_A rdable..
Ifousang to,be bu:i.lt on an availabl'e p,3 cel of land. In tnO,.
area of the- State Which hi s..the :scarcest and most expensive
developable land., combined with the most pressing need for,
41 tsems*oAffordableHous3t� .om ih
the -height - limitation is' es.sent,;Lal
I intend to tteod::yotir ,County Couhlasion :zneetxir'g oxr
October. 18 to'discuss these .issues: all al;sw+er, any itel�i�ed
questions..,
6 F16 N. 4r*4,44-1 � j
FLAT ROOF ' FITCHED ROOF'
:iJ
AFFORDABLE HOUSING
BONUS HEIGHT
ADJUSTMENT
METAI ROOFING ON
mbi I k2m A'OOD WAME.
ARCHITECTURE, INC. `
604 Whitehead Suee,
Key West, Florida 3304Q -
Pax, 305-294-7412
Email- inFDAulbj-k2m.com
lJR1--www,m4E k2m.ccm
PROF RE.C. A:A;6001659
PROPOSED BLDG. HEIGHT
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