NINETEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
SENATE
S. No. 802
of tiii* £:>f CfCi?5j.v>
*22 JUL25 A10 31
RI:.CI:!VlD BY:
Introduced by Senator Jinggoy Ejercito Estrada
AN ACT
TO ERADICATE MOBILE PHONE-AIDED TERRORISM AND CRIMINAL 
ACTIVITIES, MANDATING FOR THIS PURPOSE OWNERSHIP REGISRATION 
OF ALL SIM CARDS FOR CELLULAR PHONES
EXPLANATORY NOTE
The importance of communication and connectivity cannot be denied in a 
country where 10.4 million or 10 percent (10%) of the population is based 
overseas1, but their importance was put into sharper focus due to COVID-19. As 
societies dealt with the pandemic, connectivity became crucial for businesses to stay 
afloat and for families to get in touch with each other and to avail of their needs 
during the longest and most intensive of lockdowns. The Philippines has been 
dubbed the Short Messaging System (SMS) capital of the world due to the volume of 
SMS traffic exchange in the country. As of February 2022, 98.8% of Filipinos aged 
16 to 64 own any kind of mobile phone2.
While the value and role of communication and connectivity cannot be 
denied, especially with regard to accelerating digital adoption and e-commerce and 
rebuilding economies, there is a pressing need to create a space where the 
fundamental rights and protection of users are upheld. Along with mobile adoption 
came text scams ranging from winning a prize from a foundation to offering
1 Department of Foreign Affairs Report to Congress July to December 2022
2 Digital 2022: The Philippines (2022) https://datareportal.com/reports/digital-2022-phiiippines, 
Accessed on 05 July 2022


nonexistent jobs, the latter taking advantage of the number of individuals desperate 
for Income after losing their jobs due to the pandemic. Known as smishing, this Is 
considered a cybersecurity attack carried out over SMS wherein the recipient will be 
manipulated into giving personal information that perpetrators can use to commit 
fraud or other cybercrimes, typically Involving stealing money.
In a GSM Association (GMSA) study on SIM Registration 157 countries have 
mandatory SIM registration, and within the Association of Southeast Asian Nations 
(ASEAN), the Philippines remains the only member state that has not mandated SIM 
Registration. The same study shows that 72% of all mobile SIM Cards used globally 
are prepaid.
At a time of rapid digital adoption driven by COVID-19, it is important to 
ensure that legislation evolves with developments and changes particularly in the 
ways Filipinos communicate, work, engage in e-commerce, and access information 
and healthcare.
This version of the bill is essentially the Committee Report version reported 
out by the Committee on Public Services in the 18th Congress which was authored 
and sponsored by Senator Grace Poe.
In view of the foregoing, the passage of this bill is earnestly sought.
JING^OY EJERCITO ESTRADA


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NINETEENTH CONGRESS OF THE 
REPUBLIC OF THE PHILIPPINES 
First Regular Session
)
SENATE
s.No. 802
72 JUL25 A10 31
RtCEiVED BV:,
Introduced by Senator Jinggoy Ejercito Estrada
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AN ACT
TO ERADICATE MOBILE PHONE-AIDED TERRORISM AND CRIMINAL 
ACTIVITIES, MANDATING FOR THIS PURPOSE OWNERSHIP REGISRATION 
OF ALL SIM CARDS FOR CELLULAR PHONES
Be it enacted by the Senate and House of Representatives of the Philippines in 
Congress assembled:
Section 1. Short Title. - This Act shall be known as the "5/A/ Card Registration
Act'.
Sec. 2. Declaration of Policy. - The State recognizes the vital role of 
communication and information in nation building and as such, it shall implement 
measures that will provide programs suitable to the needs of the country in the face 
of rapid acceleration of information and communications telecommunications 
technology. In recognition of the possible risks with digital adoption, the State 
ensures that Filipinos are accorded protection from potential mobile phone-aided 
criminal activities.
Towards this end, the State shall regulate the use and sale of prepaid SIM 
cards for users of cellular phones and other mobile devices only to persons who shall 
comply with the requirements set forth in this Act.
Sec. 3. Definition of Terms. - For purposes of this Act, the following terms 
shall mean:
a) Public Telecommunications Entity or PTE shall refer to any person, firm, 
partnership or corporation, government or private, engaged in the 
provision of telecommunications services to the public for compensation.


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as defined under Republic Act No. 7925 or the Public
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Telecommunications Policy Act of the Philippines;
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b) Subscriber Identity Moduie or Subscriber Identification Moduie (SIM)
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CardshdW refer to an integrated circuit chip that is intended to securely
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store the international mobile subscriber identity or IMSI number and its
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related key, which are used to identify and authenticate subscribers on
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mobile telephony devices;
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c) Spoofing shall refer to the act of transmitting misleading or inaccurate
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information about the source of the phone call or text message, with the
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intent to defraud, cause harm, or wrongfully obtain anything of value;
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d) Subscriber shall refer to any person, natural or juridical, who avails of
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mobile telecommunications service from a mobile service provider; and
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e) Third-party Reseller shall refer to agents, dealers, or anyone who sells
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SIM cards other than the PTEs themselves.
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Sec. 4. Sim Card Registration. - In order to deter the proliferation of SIM
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card-aided crimes, such as but not limited to terrorism, text scams, unsolicited,
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indecent or obscene messages, bank fraud, and massive disinformation which cause
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chaos and disorder, ail PTEs shall require 
the registration of SIM cards 
as pre-
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requisite to the sale thereof, in accordance 
with the guidelines set forth under 
this
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Act.
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All existing SIM cards subscribers with active services shall register with their
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respective PTEs with a year from the effectivity of this Act. Failure to register within
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the prescribed period shall authorize the PTEs to automatically deactivate or retire
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the SIM card number.
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Sec. 5. Saie and Registration Guidelines. - The National Telecommunications
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Commission (NTC), in close coordination with the PTEs, the concerned agencies of
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government including but not limited to the Department of Trade and Industry
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(DTI), Department of Information and Communications Technology (DICT), National
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Privacy Commission (NPC), and in consultation with major consumer groups, shall
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formulate the necessary guidelines in the proper implementation of the SIM card
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registration process based on the following parameters:


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a. Submission of duly accomplished control-numbered owner's registration
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form. The registration form shall include an attestation by the SIM card
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buyer that the person personally appearing before the direct seller and the
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identification documents presented are true and correct, and that said
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person is the one who has accomplished and signed the registration form;
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b. Presentation of valid government-issued identification cards or other
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similar forms of documents that will verify the identity of the SIM card
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buyer, or a valid passport in the case of aliens;
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c. Active SIM cards acquired prior to the implementation of this Act that fail
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to be registered within thirty (30) days from Its intended credit reload shall
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automatically be deactivated by the concerned PTE.
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d. A buyer who fails to comply with the requirements for registration shall be
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refused the sale of a SIM card by the seller; and
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e. The sale of a SIM card to a minor shall not be prohibited: Provided^ That
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said minor is accompanied by a parent or legal guardian at the time of its
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purchase and registration.
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Sec. 6. SIM Card Registry. - The registration form required under this Act
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shall be accomplished electronically and shall be forwarded by the concerned PTE to
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a centralized database accessible to the NTC and the DICT. The successful
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submission of the required registration form shall serve as the certification of
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legitimate purchase by the SIM card buyer and the duly appointed agents of the PTE
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or third-party reseller, as the case may be.
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The NTC shall ensure that the recordkeeping of such Information is in
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accordance with the provisions of the Data Privacy Act of 2012.
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In case of loss or any change in the information after the registration of the
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SIM card, the subscriber must update said registration in the database through the
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PTE's facility within seven (7) days from such loss or change.
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Sec. 7. Submission of Verified List of Third-Party Reseiiers. - The PTEs shall
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submit to the NTC, within ninety (90) days from the date of the effectivity of this
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Act, a verified list of all their current authorized third-party resellers. Thereafter, the
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PTEs shall submit to the NTC, every quarter of each year, an updated list of the
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same.


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Sec. 8. Obligation and Liabiiities of Third-Party Reseiiers. - Any third-party
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reseller that will engage in the sale of fraudulently-registered or stolen SIM cards
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shall be held criminally liable under this Act.
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Sec. 9. Confidentiaiity Ciause. - Any information obtained in the SIM card
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registration process shall be treated as absolutely confidential, in accordance with
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the provisions of the Data Privacy Act of 2012, and cannot be disclosed to
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unauthorized persons, except upon the written consent of the subscriber: Provided,
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That the waiver of absolute confidentiality shall not be made as a condition for the
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approval of subscription agreements with the mobile phone service providers.
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Sec. 10. Disciosure of Information. - Notwithstanding the provisions on
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confidentiality, the PTEs shall be required to provide information obtained in the SIM
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card registration process only upon the order of a competent court and upon finding
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of probable cause that a specific mobile number was or is being used in the
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commission of a crime or that it was utilized as a means to commit a malicious,
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fraudulent, or unlawful act: Provided, That such written order shall only be granted
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upon application in writing of any law enforcement agency and/or officer, and only
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upon examination under oath or affirmation of the applicant and the witnesses he
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may produce and upon the court being satisfied that:
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1. There is reasonably ground to believe that the SIM card has been used in
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the commission of a crime or for a malicious, fraudulent, or unlawful
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purpose;
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2. That there is reasonable ground to believe that the registered owner of
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the said SIM card is probably the perpetrator of the same; and
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3. There is no other speedy and adequate means readily available to obtain
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such facts and information.
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Sec. 11. Penaities. - The following penalties shall be imposed for violation of
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any provision of this Act:
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a) For faiiure to compiy with the registration requirement - The NTC is
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hereby authorized to Impose the following fines on any PTE or third-
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party reseller who shall fail to comply with the SIM card registration
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requirement under this Act:


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i. A fine of ten thousand pesos (P10/000.00) in the case of a 
third-party reseller; and
ii. A fine of one hundred thousand pesos (P100,000.00) in the 
case of a PTE.
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For breach of confidentiality. - A fine of two hundred thousand
pesos (P200a000,00) shall be imposed upon the PTE, or its agent or 
employee, or third-party reseller who shall reveal or disclose any 
information of a subscriber obtained during the SIM card registration 
process.
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For using fictitious identities to register SIM cards. - The pena Ity of 
imprisonment ranging from six (6) months and one (1) day to twelve 
(12) years, or a fine of up to two hundred thousand pesos 
(P200,000.00), or both, shall be imposed upon anyone who uses a 
fictitious identity to purchase and register a SIM card.
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For spoofing registered SIM cards. - The penalty of imprisonment 
ranging from six (6) months and one (1) day to twelve (12) years, or a 
fine of up to two hundred thousand pesos (P200,000.00), or both, shall 
be Imposed upon anyone who causes to transmit misleading or 
inaccurate information about the source of the phone call or text 
message, with the intent to defraud, cause harm, or wrongfully obtain 
anything of value, unless such transmission is exempted in connection 
with:
i. Authorized activities of law enforcement agencies; or
ii. A court order specifically authorizing the use of caller ID 
manipulation.
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Unauthorized sale of registered SIM cards. - The pena Ity of 
imprisonment ranging from six (6) months and one (1) day to twelve 
(12) years, or a fine of two hundred thousand pesos (P200,000.00), or 
both, shall be Imposed upon third-party resellers or anyone who sells 
or offers for sale a registered SIM card about being authorized to do 
so.


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Sec. 12. Other Offenses. - Any person who willfully attempts to commit or
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abets or aids in the commission of any of the offenses enumerated in this Act shall
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be held liable.
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Sec. 13. Liability under Other Laws. - A prosecution under this Act shall be
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without prejudice to any liability for violation of any provision of the Revised Penal
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Code, as amended, or special laws.
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Sec. 14. Implementing Rules and Regulations and Reportorial Requirement -
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The NTC, in 
close coordination with the DICT, DTI, NPC, and major consumer
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groups, shall set the guidelines for the monitoring and proper implementation of this
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Act and shall issue the necessary implementing rules and regulations within sixty
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(60) days upon the effectivity of this Act.
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All PTEs are required to submit to the NTC, DICT, and to both Houses of
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Congress an annual report on the implementation of the provisions of this Act.
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Sec. 15. Interpretation. - Any doubt in the interpretation of any provision of
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this Act and its implementing rules and regulations shall be construed In a manner
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that accords the highest respect for privacy, and liberally interpreted in a manner
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mindful of the rights and Interests of SIM card subscribers.
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Sec. 16. Repealing Clause. ~ AH laws, decrees, orders, rules and regulations
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or other issuances or parts thereof inconsistent with the provisions of this Act are
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hereby repealed and modified accordingly.
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Sec. 17. Separability Clause. - If any portion or provision of this Act is
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declared unconstitutional, the remainder of this Act or any provision not affected
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thereby shall remain in force and in effect.
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Sec. 18. Effectivity Clause. - This Act shall take effect fifteen (15) days after
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its publication in the Official Gazette or at least two (2) newspapers of general
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circulation.
Approved,