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Date of Latest Version: October 2006 Summary of Significant Changes:
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The objective of the Communications Annex is to show how Canada's health partners are preparing to respond to the public communications challenges associated with an influenza pandemic. Canadians will need accurate, timely and consistent information so they can take appropriate action to help minimize death, illness and social disruption. The Communications Annex was developed in partnership by federal, provincial and territorial governments through
The strategies outlined in the Communications Annex provide the framework for consistent and coordinated public communications across all involved organizations. Strategies and tactics outlined in this document provide guidance to the organizations identified and will be
The Annex outlines a cascading approach to pandemic communications that is closely aligned with the World Health Organization's pandemic phases. Roles, responsibilities, and strategies are outlined by jurisdiction and by WHO pandemic phase so that communications are appropriate to the threat level. Currently, activities for the inter-pandemic, pandemic alert and pandemic periods are identified This Annex reflects current thinking on pandemic influenza communications and will continue to be revised as the plans of organizations evolve and new information and research becomes available.
Pandemic influenza communications planning is based on a strategic risk communications approach. This means that we would openly communicate pandemic influenza risks and control options, and that assumptions, values, methods and plans will be clear and accessible. Where facts are uncertain or unknown, the strategic risk communications approach supports transparency about information gaps and efforts to fill them.
The strategies outlined here are designed to promote well-coordinated, effective communications from federal, provincial, territorial governments and other health partners. Each level of government in Canada has unique stakeholders and responsibilities. The Communications Annex acknowledges these differences while reflecting the ongoing need for all levels of government to deliver consistent messages during an influenza pandemic.
Operational plans for public communications will reside within the specific organizations involved in the response to an influenza pandemic. The Communications Annex provides a working tool to ensure that these operational plans are closely tied to the roles and responsibilities highlighted in Annex K.
Provincial, territorial health ministries, and/or local authorities assume lead responsibility for public communications within their jurisdiction. If the pandemic moves beyond a single province or if a national emergency is declared, the Public Health Agency of Canada is the lead organization for national health communications, providing leadership in coordination of communications strategies and activities and in ensuring consistent messaging.
Citizen: | to raise awareness of the threat of pandemic influenza (and other types of influenza) by building on annual influenza campaigns, leading to better self-protective measures. |
Stakeholders/partners: | to develop a comprehensive pandemic plan, with clearly identified roles and responsibilities, aligned with risk communications. |
Organizational: | to demonstrate leadership and coordination between jurisdictions in influenza and pandemic preparedness. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To co-chair PIC Communications Subcommittee. | To establish and maintain PIC Communications Subcommittee. | Direct. | Proactive. | Formal research into Canadian interests and priorities to develop strategies and messages. Dialogue among key players – fed./P/T. Develop and maintain a network “map” or org chart, plus database. Develop and maintain matrix. |
To steward communications plans. To build relationships (federal, provincial, territorial and international) to enhance communications response. | To coordinate federal, provincial and territorial communications response. To develop and maintain Communications Plan. To share information. To seek opportunities to work together. | Direct. | Proactive. | Matrix. Workplan. Message templates and draft messages. Ongoing meetings, workshops to ensure plan and matrix are up-to-date. Media Relations Plan, message development and testing. Research. |
To define and establish networks with national stakeholders and partners. | To establish stakeholder networks and roles and responsibilities. To support P/T in their development of stakeholder networks. | Direct. | Proactive. | Teleconferences – PIC tripartite meetings – US, UK and Canada. WHO meetings. Alignment of research. Meetings. NGO Network, consultations on role of stakeholders, matrix to define roles and responsibilities. Tools and information developed with national stakeholders and partners, including matrix, plans and message templates. |
To keep ministers and governments informed. | To keep policy decision-makers aware of potential risks and public interest. | Direct. | Proactive. | Regular briefings, speaking engagements, media opportunities. |
To establish link with WHO Communications. To establish and maintain international networks. To source and share primary information. | To work with the WHO to support public health risk communications globally. To provide template materials that can be adapted to local needs. To support global risk communications training through WHO. To ensure alignment with national and WHO plans. To establish primary Canadian communications contact with WHO communicators. To liaise with WHO, US and UK. To provide international perspective back to Canada. To provide federal perspective/key messages to P/Ts. | Direct. | Proactive. Communicate through PIC Communications team and other networks. | WHO pandemic influenza communications framework. WHO Pandemic Influenza Communications Steering Committee. Participation in WHO meetings on risk communications. Ongoing information sharing. Share best practices. Solve problems. Organize regular opportunities for sharing. Document outcomes to ensure continuous learning. Build in ability to detect and correct at all levels – needs to be part of roles and expectations. Protocols for information-sharing between organizations. |
To prepare media at national level for their information support role in a pandemic. To ensure quality control. |
To ensure media is prepared and has adequate background information to provide necessary support in case of a pandemic. To establish and maintain a comprehensive monitoring system. |
Direct, consultative. Direct, consultative. |
Proactive on some aspects, opportunistic on others. Proactive. |
Consult with key media (roles and responsibilities of media, key messages). Provide technical briefings for key national media. Proactive communications to media on pandemic preparedness. Technical briefings. Media backgrounder packages. Provide spokespersons to address media inquiries. Regular (daily) media scans. Feedback to spokespersons. |
To ensure all Canadians have access to important background information on pandemic influenza. | To establish pre-tested background information on pandemic influenza. | Direct. | Proactive. | Post information on PHAC website. |
To promote business continuity and community planning. To engage the public on pandemic influenza preparedness. | To inform different audiences about threat and implications, and provide information on what they need to do to prepare. To stimulate and support business leader continuity planning. To better understand public's views, help influencers understand challenges of pandemic influenza management. | Direct. | Proactive. | Stakeholder meetings. Document on community planning, tool kits, exercises and scenarios. Expert discussions, town hall meetings. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To engage First Nations and Inuit stakeholders to prepare for and respond appropriately to avian and pandemic influenza. | To link with national FNs organizations to increase awareness of pandemic influenza and the necessity for planning. | Direct, consultative and through First Nations and Inuit Health Branch regions. | Proactive. | Meetings. Tools and information developed with national aboriginal organizations and partners. Matrix, research, meetings. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To participate on PIC Communications Subcommittee. Identify one provincial or territorial co-chair of the PIC committee. | To ensure PIC participation. To represent P/T communications interests. | Direct. | Proactive, consultative. | Participation in PIC meetings. Development of communications materials to raise awareness and readiness to act for identified partners, municipalities, provincial employees, stakeholders and public audiences based on message templates and messages developed by the committee. Dialogue amoung key players – fed./P/T. |
To provide leadership on P/T plan and national/regional coordination. | To develop and maintain P/T Communications Plan. To ensure alignment of P/T plans with national plan. To ensure alignment with regional health authorities/local municipalities. | Direct, consultative. | Proactive. | Strike provincial communications subcommittee. Conduct formal research aligned with the PHAC Option: self-audit amongst subcommittee members of plan readiness. Workshops, meetings, teleconferences, subcommittee. |
To particiapte in communications planning for populations under provincial jurisdiction | To develop a communications plan for area of responsibility | Direct. | Define roles and responsibilities; develop communications plan. Develop and test messages appropriate to these specific populations. | Matrix, research, meetings. |
To communicate with authorities to encourage them to develop their communications plans. | To support the provincial government's response to an influenza pandemic. | Direct. | Develop provincial roles and responsibilities matrix. | Internal provincial/territorial communications strategy to raise awareness of need for emergency planning. Briefings. |
To steward communications plans. To build relationships (federal, provincial, territorial) to enhance communications response. | To liaise with federal, provincial and territorial governments to provide coordinated communications response. To develop and maintain Communications Plan. To share information. To seek opportunities to work together. | Direct. | Proactive. | Matrix. Workplan. Message templates and draft messages. Ongoing meetings, workshops to ensure plan and matrix are up-to-date. Media Relations Plan, message development and testing. Research. |
To establish and maintain networks with PT stakeholders & partners. | To communicate directly with Regional/Local Health Authorities. To make sure that the P/T plan is accessible and understood by stakeholders; partners' roles are clear; accountabilities are clear. To ensure health regions have communications plans. To assist with development and maintenance as required. To establish stakeholder networks and roles and responsibilities. | Direct. | Proactive. | Workshops for partners and stakeholders. Email, web messages and teleconferences to partners and stakeholders. Plan to ensure common approach to risk communication and alignment on what to do and how to do it. Protocols for information-sharing between organizations. Orientation and networking workshops. Media relations program. Share pandemic plans. Alignment of research. Consultations on role of stakeholders, matrix to define roles & responsibilities. Tools & information developed with provincial stakeholders and partners, including matrix, plans & message templates. |
To share best practices and problem-solve. | To organize regular (at least annual) opportunities for sharing. To document outcomes to ensure continuous learning. | Networking workshops. Provincial communications subcommittee and PIC Communications Subcommittee. | Workshops, email. | |
To source and share information. | To organize regular opportunities for sharing. To document outcomes to ensure continuous learning. To provide template materials that can be adapted to local needs. To ensure alignment with national plans. To establish primary provincial communications contact with federal communications. To provide national perspective back to province/territory. To provide provincial perspective/key messages to municipalities. | Direct. | Proactive. Communicate through PIC communications team & other networks. | Workshops, email, PSAs. Info packages out through schools, physicians, hospitals, etc. 1-800 numbers. Self-care info on websites. Organize regular opportunities for sharing. |
To prepare media at provincial level for their information support role in a pandemic. | To ensure media is prepared and has adequate background information to provide necessary support in case of a pandemic. | Direct, consultative. | Proactive on some aspects, opportunistic on others. | Consult with key media (roles and responsibilities of media, key messages). Provide technical briefings for key national/provincial media. Proactive communications to media on pandemic preparedness. Technical briefings. Media backgrounder packages. Provide spokespersons to address media inquiries. |
To ensure all residents have access to important background information on pandemic influenza. | To establish pre-tested background information on pandemic influenza. | Direct. | Proactive. | Post information on website. |
To promote business continuity and community planning. To engage the public on pandemic influenza preparedness. | To inform different audiences about threat and implications, and provide information on what they need to do to prepare. To stimulate and support business leader continuity planning. To better understand public's views, help influencers understand challenges of pandemic influenza management. | Direct. | Proactive. | Stakeholder meetings. Document on community planning, tool kits, exercises and scenarios. Expert discussions, town hall meetings. |
To liaise between federal and regional/local. | To ensure that regions have federal and P/T messages, information on actions taken. | Direct. | Proactive. | Regular updates (email, teleconference). |
To keep ministers and governments informed. | To keep policy decision-makers aware of public interests. | Direct. | Proactive. | Regular briefings, speaking engagements, media opportunities. |
To ensure quality control throughout the P/T network. | To establish a comprehensive P/T monitoring system. To provide feedback into PIC Committee. To monitor, detect and correct. | Direct. | Proactive. | Media scans, detect-and-correct strategy, regular (daily) media scans. Daily feedback to spokespersons. Conference calls/emails. Feedback to Committee as appropriate. |
Citizen: to inform citizens that organizations are mobilizing and that there is an elevated/increasing risk. Implementation of self-protective measures (if in Canada) so that they can develop a personal/family plan.
Stakeholders/partners: to communicate elevated/increasing risk signaling the need to start mobilizing their organizational plans. Alignment of response and messages.
Organizational: to demonstrate active leadership and alignment of risk minimization – morbidity, mortality and social disruption – and response activities (performance), while assuring readiness to act (in case of escalation). Alignment of response and messages.
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To alert provinces and territories of increased pandemic conditions so they can prepare to respond. | To inform provinces and territories of increased risk associated with current situation. | Direct. | Proactive. | Teleconference, email. Share communications products. Verify contact lists. |
To provide national spokesperson. | To provide information on national and international situation. To provide guidance. | Direct. | Proactive. | Train key spokespersons. |
To activate the communications plan for pandemic alert period. | To update and review communications plans and networks. To provide updates to key stakeholders. To inform the public. | Direct. | Proactive. | Preview and update plan as required. Inform media. Provide info to key national stakeholders (CMA and other health care provider groups). Provide statement to media from CPHO. Deliver media technical briefing. Launch website. Email message to key stakeholders, then statement to media. Share technical briefing materials with PIC Communications Subcommittee prior to technical briefing. Ensure web is updated frequently. Update toll-free line. Verify translation capacity. |
To broaden and intensify communications with ministers and MPs. | To ensure ministers across the government are briefed on the increased risk and the relevance for their departments. To ensure that MPs have accurate and consistent information to provide to their constituents. | Direct. | Proactive. | Update federal ministers. Brief provincial ministers on PHAC activities to facilitate coordinated messaging. Provide briefing updates, media lines through the PIC Communications Subcommittee to be adapted as background for P/T ministers. |
To share technical and scientific information. | To lead technical communications about the virus strain and the vaccine strategy. To interpret scientific, laboratory, statistical details. | Direct. | Proactive. | Update communications products: speaking points, factsheets, etc., regularly to reflect changes in scientific data. Deliver technical briefings, news conferences. |
To keep key national stakeholders informed (particularly health care provider organizations). | To ensure that key national stakeholders have accurate information to provide to their audiences/media. | Direct. | Proactive. | Inform key stakeholder groups of the current situation. Provide regular updates to key stakeholders to be shared with their specific audiences. Involve key stakeholders in discussions around communications with their stakeholders and audiences, and assessment of the effectiveness of that communication. Reinforce relationships developed through the planning process. Update stakeholder lists/database. Provide email/fax/phone updates. Post brief articles on stakeholder internal websites, or email to subscribers, etc. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To communicate elevated risk levels to First Nations and Inuit, in partnership with provinces, territories and partners (see Plan, Appendix B). | To ensure consistent messaging from all levels of government to First Nations and Inuit. To ensure federal messages regarding First Nations are communicated clearly to all partner agencies and stakeholders. | Direct, consultative, collaborative. | Work with communications to tailor messages. | Co-ordinate messages with Public Health Agency, provinces and territories. Share consistent and appropriate information with stakeholders and spokespersons. Develop additional communications material to complement provincial /territorial material. Update Web site. Inclusion of FN&I indicators in ongoing surveillance activities. |
To communicate elevation of emergency response capacity. | To engage those involved in the emergency response communications team. | Direct and consultative. | Proactive. | Identify surge capacity team, if required. Distribute email message widely to those involved in emergency response process (PIC Communications Subcommittee, key national stakeholders involved in response). |
To assess ongoing effectiveness of communications activities. | To monitor and analyze media coverage. To track and monitor effectiveness of communications and public needs (POR, 1-800, web, public enquiries). | NA | Proactive. | Share media coverage analysis summary with P/Ts. Regular media scans. Daily feedback to spokespersons. Media analysis to determine need for additional technical briefings, other forms of media relations. Detect, correct, align. Utilize analysis to determine information gaps and effectiveness of current communications methods and messages (POR, review of correspondence, summary of questions to web, 1-800, etc.). |
To communicate the elevation of pandemic risk to regional/local partners. | To inform regional/local partners of increased risk associated with current situation. | Direct. | Proactive. | Government email, intranet. Distribute message widely to those involved in emergency response process. |
To activate the Communications Annex of the provincial plan. To encourage coordination. | To update and review communications plans and networks. Through pre-developed communications networks, to encourage coordinated health region/district plan activation. To provide updates to key stakeholders. To inform the public. | Direct. | Proactive. | Review and update as required throughout this phase. Inform key provincial stakeholders (prior to media). Provide info to key provincial stakeholders. Conduct media technical briefings. Update website frequently. Email message to key stakeholders, then statement to media. Share technical briefing materials with health region/authorities. Provide an interactive website for stakeholders. |
To coordinate with other departments on the provincial/territorial communications response to a pandemic. | To ensure a coordinated communications response for the entire government. To identify Government spokespersons and their areas of expertise. | Direct and consultative. | Proactive. | Matrix, meetings, workshops. Key spokespersons coached to communicate technical messages to the public. Risk communications training. Key experts list established/shared with media. |
To alert municipalities of increased pandemic conditions so they can prepare to respond. | To inform municipalities of increased risk associated with current situation. | Direct. | Proactive. | Teleconference, email. Share communications products. Verify contact lists. |
To identify media spokespersons/experts. | To coach key spokespersons to effectively communicate technical messages to the public. To provide information on provincial situation | Direct. | Proactive. | Provide media and risk communications skills training sessions and/or mock interviews for spokespersons and key experts. |
To assess effectiveness of communications activities. | To monitor and analyze media coverage. To set standards, guidelines and criteria for analyzing communications activities. | Indirect. | Proactive. | Utilize media analysis to determine whether further technical briefings or other forms of media relations are necessary. |
To broaden and intensify communications with ministers. To inform key provincial stakeholders. | To ensure regular briefing updates for Premier's Office and minister(s). To ensure that caucus offices (MLAs) have accurate information to provide to their constituents. To ensure that key provincial stakeholders have accurate information to provide to their audiences/media. | Direct. | Proactive. | Use briefing updates, media lines provided through the PIC Communications Subcommittee as background for P/T ministers. Combine federal updates with provincial/territorial information to provide a complete picture for ministers. Updated stakeholder lists/ database. Email/fax/phone updates. Brief articles to be posted on stakeholder internal websites or emailed to membership, etc. Meetings/conference calls to determine information gaps, next steps. |
To share technical and scientific information with health regions/authorities. To encourage coordination of provincial/health region or authority/key stakeholder plan activation. | To provide technical communications about the virus strain and the vaccine strategy received from PHAC to health regions/authorities. To provide the public with consistent and accurate messaging. | Link from provincial website to technical details on PHAC/ national pandemic site. Direct. | Proactive. | Technical briefings, news conferences (daily briefings as required). Web. In-depth interviews by experts with provincial health reporters or radio news magazines. Update communications products: speaking points, fact sheets, etc., regularly to reflect changes in scientific data. Discussions through pre-developed communications networks. Regular meetings/networked conference calls to discuss next steps in plan roll-out. |
To design and test public education campaign. | To prepare a public education campaign that resonates with provincial residents. | Direct. | Proactive. | Research, focus groups, one-on-one interviews. |
Citizen: | to promote implementation of family/personal plans and encourage people to seek and follow direction from authorities. |
Stakeholders/partners: | to mobilize their plan fully and to follow direction from authorities. Alignment of response and messages. |
Organizational: | to demonstrate ongoing and effective management. Alignment of response and messages. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To implement Pandemic Phase of National Plan. | To review and update communications plan and make sure it is actionable. To update key stakeholders. To inform the public. | Direct. | Proactive. | Teleconference, emails, web updates, sharing of communications materials. |
To inform other government departments of global pandemic activity. To inform other government departments of the health portfolio response. | To provide updates on global pandemic situation. To coordinate HC/PHAC response with OGDs. | Direct, consultative. | Proactive. | Tleconference, emails, web updates. |
To inform NGOs of global pandemic activity and health portfolio response. | To provide updates on global pandemic situation. To coordinate health portfolio response with NGOs. | Direct. | Consultative. | Teleconferences, email, sharing of communications products. |
To inform provinces and territories of global and Canadian pandemic activity. To inform provinces and territories of health portfolio response. | To provide updates on situation. To coordinate health portfolio response with provinces and territories. | Direct. | Consultative. | Teleconferences, email, sharing of communications products. |
To inform ministers and MPs of health portfolio response. | To provide updates on current activities. | Direct. | Proactive. | Briefing materials, media lines, Qs and As. |
To fully implement very high profile nationwide public education/ awareness campaign. | To inform public and stakeholders of actions needed to protect themselves. | Direct. | Proactive. | Print ads, national radio ads, national television ads, outlining what to do/what not to do/where to get vaccine, web ads. |
To ensure consistency in messaging with provinces, international community and stakeholders. | To explain, clarify and demystify the crisis. To inform people of self-care steps, progress of pandemic situation (anti-viral/vaccine, etc), and steps taken by the federal government and its stakeholders to provide necessary services to maintain population health/social stability. To keep stakeholders/ partners up-to-date with the latest information, and aware of their roles/ responsibilities. | Direct. | Proactive. | Frequent updating of PHAC website – public and provider pages (fact sheets, Qs and As etc.; educational videos on hand washing.) Relevant links to other sites. Operationalize call center and publicize toll-free numbers where public and providers can call for information or assistance. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To inform First Nations communities of pandemic activity within Canada and actions needed to protect themselves. | To coordinate response with the Public Health Agency, provinces, territories and First Nations communities. | Direct, collaborative and through First Nations and Inuit Health Branch regions. | Proactive | More intensive communications with partners and stakeholders. Increased co-ordination on public information campaigns with Public Health Agency and partners. Distribution of materials through stakeholders and partners. |
Authorizing the sale of drugs and vaccines for flu and flu related illnesses, monitoring their safety, and reporting the appropriate information to the public and stakeholders. | To inform health professionals and general public of the authorization of | Direct | Proactive | The use of Notices to Hospitals, Dear Healthcare Professional Letters and Public Advisories and Warnings as well as other communications vehicles. |
Primary Communications Roles | Primary Communications Responsibilities | Communications Options | Communications Strategies | Methods and Tools |
To implement pandemic phase of provincial/ territorial plan. | To mobilize provincial spokespersons (preferably media trained). To ensure they have appropriate training and skills. | Direct. | Proactive. | Daily news conferences. Make technical experts available for media technical interviews/ briefings, local media events, etc. |
To ensure timely four-way communications sharing with fed. gov. and agencies, municipalities, stakeholders and providers. | To present a united front with international, federal, municipal and health care partners. To provide updates on situation. | Direct. | Proactive. | Teleconferences, email, sharing of communications products. Joint news conferences with local municipalities, fed. gov. and agencies. Compassionate, caring, empathetic, hard-hitting and forthright communications. |
To fully implement very high profile province-wide public education/awareness campaign, aligned with national campaign. | To inform public and stakeholders of actions needed to protect themselves. | Direct. | Proactive. | P/Ts to consider use of: � print ads � local radio ads � television ads outlining what to do/what not to do/where to get vaccine � web ads. |
To inform ministers and MPPs of health portfolio response. | To provide updates on current activities. | Direct. | Proactive. | Briefing materials, media lines, Qs and As. |
To ensure consistency in messaging with other provinces (use fed. gov. as point of contact), international community and local bodies. | To explain, clarify and demystify the crisis. To keep people informed of self-care steps, the progress of pandemic situation (anti-viral/vaccine, etc), and the steps taken by the provincial government/stakeholders to provide necessary services to maintain population health/social stability. To keep stakeholders/partners up-to-date with the latest information, and aware of their roles/responsibilities. | Mobilize press relations centre. P/T websites. | Frequent updating of ministry website – public and provider pages (fact sheets, Qs and As etc., educational videos on hand washing). Establish relevant links to other sites. Operationalize call center and publicize toll-free numbers where public and providers can call for information or assistance. | |
To ensure consistency (continued). | To ensure the media has up-to-date information. To demonstrate transparency and accessibility. To select appropriate (trained) spokespersons. | Direct. Public and commercial radio stations as well as community radio stations to transmit messages to specific audiences (regions most affected by the pandemic, etc.). Where applicable, broadcast information on radio networks specializing in health. Amateur radio broadcasters (members can relay information). |
Proactive. | Information specific to health and social services workers via websites, intranets, extranets and special bulletins/newsletters. Press releases and press conferences (regular or ad hoc), according to the severity of the pandemic. Translation of public information tools. Choice of spokespersons based on situation severity (from communications advisor to CMOH/CPHO or minister). Fast activation of a telephone line to answer questions from the public and provide reassurance. Leaflets and posters widely distributed. Print and electronic media, through media placements and via public relations (bookings on information programs). Church bulletins. National media. Community television and print media. Mobilize network of those relaying information – as defined in previous phase – through a variety of media identified in the previous phase. Briefing sessions to disseminate specific information. Pre-recorded health advice (what to do) on telephone lines (while callers are on hold) of establishments in the health and social services network. |
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