Document: 475 U.S. 1 106 S.Ct. 903 89 L.Ed.2d PACIFIC GAS AND ELECTRIC COMPANY, Appellantv.PUBLIC UTILITIES COMMISSION OF CALIFORNIA et al. No. 84-1044. Argued Oct. 8, 1985. Decided Feb. 25, 1986. Rehearing Denied April 21, See 1133, 1667. Syllabus Appellant Pacific Gas and Electric Co. has distributed a newsletter in its monthly billing statements for many years. The included political editorials, feature stories on matters of public interest, tips energy conservation, information about utility services bills. Appellee Toward Utility Rate Normalization (TURN), ratemaking proceeding before appellee California Public Utilities Commission (Commission), urged the to forbid appellant use envelopes distribute ground that appellant's customer should not bear expense own speech. decided envelope space had used disseminate was ratepayers' property, defining this "extra space" as left over after including bill required notices. In an effort apportion between customers, permitted TURN four times year raise funds communicate with ratepayers no limitation except state messages were those appellant. Arguing it First Amendment right help spread message which disagrees, appealed Commission's order Supreme Court, denied discretionary review. Held: decision must be vacated. Remanded. Justice POWELL, joined by THE CHIEF JUSTICE, BRENNAN, O'CONNOR, concluded: 1. impermissibly burdens affirmative rights. Pp. 9-18. (a) awards access only persons or groups, such TURN, who disagree views expressed oppose proceedings. Such one-sidedness expression. contend fact whenever speaks out given issue, may forced hostile views. "might well conclude" that, under these circumstances, "the safe course is avoid controversy," thereby reducing free flow ideas. Miami Herald Publishing v. Tornillo, 418 241, 257, 94 2831, 2839, 41 730 (1974). 10, 12-15. 2 (b) also requires associate speech disagree. either appear agree TURN's respond. That kind response antithetical discussion fosters. For corporations individuals, choice speak includes within what say. supra, at 258, S.Ct., 2839. 10-11, 15-17. 3 (c) determination envelopes' belongs does correct order's constitutional deficiency. remain property. Under order, property disagrees. 17-18. 4 2. neither narrowly tailored means serving compelling interest nor permissible time, place, manner regulation. 19-20. 5 MARSHALL concluded State, pursuant redefined way achieve result—burdening one party's enhance another speech—that disallows. PruneYard Shopping Center Robins, 447 74, 100 2035, 64 741 (1980), distinguished. 21-26. 6 J., announced judgment Court delivered opinion, BURGER, C.J., BRENNAN JJ., joined. filed concurring post, p. 21. MARSHALL, opinion judgment, REHNQUIST, dissenting Part I WHITE STEVENS, joined, 26. 35. BLACKMUN, took part consideration case. 7 Robert L. Harris, San Francisco, Cal., 8 Mark Fogelman, appellees. 9 [Amicus Curiae Information from pages 3-4 intentionally omitted] 10 POWELL O'CONNOR join. 11 question case whether require privately owned company include third party 12 * past 62 years, Company envelope. Appellant's newsletter, called Progress, reaches three million customers. It straightforward App. Juris. Statement A-66, A-183 A-190.1 13 1980, intervenor California's Commission, appellee,2 customers Id., A-2. Progress ratepayers. A-2 A-3.3 This defined remaining envelope, inclusion any legal notices, other materials up total weight would result additional postage cost." Ibid. 14 next two During months, if pays extra postage. found represented interests "a significant group" residential id., A-15, aided performing regulatory function, A-49 A-50. Consequently, determined benefit permitting ratepayers: "Our goal . change present system uses more efficiently benefit. reasonable assume will exposure variety than they PG & E." A-17. could have excluding since fill. A-23.4 placed limitations say are A-17 A-18. reserved grant groups future.5 15 arguing see Wooley Maynard, 430 705, 97 1428, 51 752 (1977), infringes right. We noted probable jurisdiction, 470 1083, 105 1840, 85 140 (1985), now reverse. II 16 guarantee "serves societal interests" wholly apart speaker's self-expression. National Bank Boston Bellotti, 435 765, 776, 98 1407, 1415, 55 707 (1978). By protecting wish enter marketplace ideas government attack, protects public's receiving information. Thornhill Alabama, 310 88, 102, 60 736, 744, 84 L.Ed. 1093 (1940); Saxbe Washington Post Co., 417 843, 863-864, 2811, 2821-2822, 514 (1974) (POWELL, dissenting). identity speaker decisive determining protected. Corporations associations, like contribute "discussion, debate, dissemination ideas" seeks foster. U.S., 783, 1419 (citations omitted). Thus, we invalidated prohibition aimed sought influence outcome referendum. 795, 1426. Similarly, Consolidated Edison Service Comm'n N.Y., 530, 544, 2326, 2337, 65 319 prohibiting discussing controversial issues envelopes. both cases, critical considerations State abridge designed protect, prohibitions limited range exposed. 776-778, 781-783, 1415-1416, 1418-1419; 533-535, 2330-2332. 17 There doubt principles receives full protection Amendment. Lovell Griffin, 303 444, 452, 58 666, 669, 82 949 (1938). appearance different small newspaper, Progress' contents energy-saving wildlife recipes. A-190. thus extends beyond proposes business transaction, Zauderer Office Disciplinary Counsel, 471 626, 637, 2265, 2274, 652 (1985); Central Hudson Corp. 557, 561-563, 2343, 2348-2350, 341 "matters concern" fully implicitly encourages. 101, 743. 18 recognized much, but requiring did infringe upon reasoned remains mail months access. conclusion necessarily rests premises: (i) hitherto private forum speak; (ii) relevant therefore constitutionally protected restricting it. examine propositions. III 19 Compelled ordered penalizes expression particular points view forces speakers alter their conform agenda do set. These impermissible effects remedied definition A. 20 previously considered corporation provide corporation's freedom (1974); 85-88, 2042-2044, (1980); 98-100, 2049-2050 WHITE, judgment). Tornillo involved challenge Florida's right-ofreply statute. Florida law provided newspaper assailed candidate's character record, candidate demand print reply equal prominence space. 244-245, n. 2, 2833, 21 right-of-reply statute directly interfered newspaper's ways. 256, 2838. First, viewpoint triggered obligation permit speakers, whom disagreed, facilities message. purported advance discussion, effect deter newspapers speaking first instance: forcing opponents' views, penalized "[g]overnment-enforced inescapably 'dampens vigor limits debate.' " 2839 (emphasis added) (quoting New York Times Sullivan, 376 254, 279, 710, 725, 686 (1963).6 22 Second, "treatment officials—whether fair unfair—constitute[s] exercise editorial control judgment." 2840. "editorial judgment" tailor opponent's agenda, respond candidates' arguments where might prefer silent. Cf. 714, 1435; West Virginia Board Education Barnette, 624, 633-634, 63 1178, 1182-1183, 87 1628 (1943). Since all inherently involves choices leave unsaid, impermissible. As stated last Term: 'The essential thrust prohibit improper restraints voluntary concomitant publicly, serves same ultimate end aspect.' Harper Row Publishers, Inc. Nation Enterprises, 539, 559, 2218, 2230, 588 (1985) Estate Hemingway Random House, 23 N.Y.2d 341, 348, 296 N.Y.S.2d 771, 244 N.E.2d 250, 255 (1968)) original). PruneYard, 99-100, 2050 (opinion J.). concerns caused us invalidate compelled rule apply institutional press.7 782-784, 1418-1420. 669. Just "tell can cannot," Pittsburgh Press Human Relations Comm'n, 413 376, 400, 93 2553, 2566, 37 669 (1973) (Stewart, dissenting); 2044, restrict certain topics force others hold. 100, J.); Abood Detroit Education, 431 209, 1782, 1802, 52 261 (1977). accomplish purposes indirectly similarly forbidden. 24 Court's contrary. shopping center owner deny group students wished hand pamphlets center's common area. held students' Constitution; argued ruling violated his exclude pamphleteers area open large. 2044. Notably absent concern affect owner's speak: even allege he objected content pamphlets; based. undercut proposition associations burden impermissible.8 B 25 inconsistent principles. simply award large; rather, discriminates basis viewpoints selected speakers. Two acknowledged offer greater assist (such TURN) proceedings raising funds. A-16 Access neutral. foster cannot obtained whose agrees appellant's. perceived need finance participation exists represent diverge interests. TURN—who proceedings.9 26 illustrates point. based senses: category speech, awarded disagreed not, Tornillo's words, "content-based penalty" sense, because conditioned But interests, forced—at discretion—to promote. 27 course, vigorous debate. restrictions rights "enhance relative voice" opponents. Buckley Valeo, 424 1, 49 55, 96 612, 649, 46 659 (1976). disseminating views; equally constrain sides debate regulation.10 favoritism goes fundamentally contentneutral subsidies sustained Regan Taxation With Representation, 461 540, 103 1997, 76 129 (1983). Buckley, 97-105, 672-675 (sustaining funding general election campaign expenses major candidates); Regan, 546-550, 2001-2003 tax deduction contributors veterans' organizations). Unlike identifies favored "based [the speaker] represent," 784, 1420, opponent taxpaying public—to requirement disfavored speaker. 28 face leaves discuss chooses.11 Should choose, example, urge vote slate legislative candidates, argue favor legislation seriously business, J.).12 pressure "is particularly apparent when taken position opposed being property." 2050. Especially been create multiplicity envelopes, there little feel allegations made 29 Row, 2230. 1435.13 And lose corporate 777, 1416; Edison, 533, 2330. Were freely able compel propound disagree, empty, affirm breath next. incorrect say, appellees, our decisions limit government's authority corporations. danger consequence coercive action proper object solicitude, itself Bellotti Edison. Where, case, arises content-based impose interest. C 30 emphasized A-64 A-66. According follows argument misperceives nature State's violation.14 31 expressly declined hold entire everything contained therein. A-3. ounce. themselves, bills, clearly vehicle spreading Hampshire citizens display slogan license plates "use 'mobile billboard' ideological message." 715, 1435. "private property" unwelcome automobile, plates. property—the another. so whoever deemed space." 32 A imply rested Herald's ownership replies. Nothing suggests needed replies readers, court inserts prepared candidates together newspapers. difficulty disagreed. depend paper printed belonged candidate. 33 Appellees' suffers defect. owns return address. association potentially risks Those "owns" space."15 IV 34 Notwithstanding valid 535, 2332; 786, 1421. Appellees further alternative, appellees restriction. consider turn. 35 identify assertedly said advance. furthers effective regular participant proceedings, task. permits continue assisting serve. 36 regulation compelling. appellees' serve through violate rights, awarding costs fees.16 justify imposing responsible "we find 'no substantially correlation governmental asserted effort' 1426 Shelton Tucker, 364 479, 485, 81 247, 231 (1960)). promoting making available 92-93, 127, 669-670, 127. above furthered Moreover, chosen tend inhibit promote TURN's. Our cases establish some burdening others. 785-786, 1420-1421; 48-49, 648-649. furthering 38 argue, finally, regulation, "serve[s] leave[s] ample alternative channels communication." Pharmacy Citizens Consumer Council, Inc., 425 748, 1817, 1830, 48 346 valid, neutral regulated. Clark Community Creative Non-Violence, 468 288, 293, 104 3065, 3069, 221 (1984); Erznoznik City Jacksonville, 422 205, 210-212, 95 2268, 2273-2274, 45 125 (1975). shown, exposing not—and purport be—content V 39 conclude selects viewpoints. 40 reasons, remanded opinion. ordered. 42 BLACKMUN 43 Chief concurring. 44 join POWELL's think go decide central presented infringement Pacific's rely (1974), holding violates voluntarily disseminate, just Maynard To distinguished carry trucks, buildings, conduct business. properties mailing acquired income resources. judgment. could, consistently Federal Constitution, using trespass peaceful expressive activity areas center. Concurring viewed abrogation traditional how Constitution ability redefine common-law 2046 (MARSHALL, concurring). Today similar question. property—its envelope—to wishes purposes. differences lead me barrier here earlier 47 difference degree intrusiveness PruneYard: "[T]he personal [its owner]. instead establishment come please." 87, challenged markedly intrusion onto encouraged, impair commercial value 83, 2041; 94, 2047 contrast, never opened public.1 abandoned done PruneYard. sort community billboard, regularly carrying parties, desire deserving lesser solicitude. stand, however, issued invitation purpose.2 bore strong resemblance streets parks forums. People routinely gathered there, invitation, engaged wide activities. Adding list activities great complexion true second give While unwanted expression, nowhere alleged hindered slightest. scope. appropriating, year, otherwise curtailed forum. therefore, mere silent, 32-35 (REHNQUIST, 50 interference is, concededly, very slight, justification—the subsidization State—is insufficient sustain minor burden. resources subsidization, Representation Washington, (1983), standing alone, 648-649, (1976) (per curiam); 790-792, 1423-1424, (1978).3 instant identified ensuring "expos[ed] views," A-17, most complete understanding possible energy-related issues," A-22. individual expenditures supra. Even assuming assert in, curbing actual abuses process, demonstrated Indeed, disclaims duty make showing, "own" issue here, differs significantly Securities Exchange proxy cited 39. generally abrogate 'to attain object.' 92, Silver Silver, 280 117, 122, 57, 58, 74 (1929)). another—that doing so, moreover, sanctioned exceeds slight incursion believe crossed boundary redefinitions reaching conclusion, mean suggest hold, contrary precedents, coextensive enjoys protections essentially instances, transactions mandate prevent deception protect health welfare. extent interfere offends Constitution. believe, falls side line. Accordingly, 53 STEVENS I, dissenting. 54 plurality concludes state-created, utility's unconstitutionally express though matter law. justifies grounds (1) saying things trigger adverse response, (2) induce subjects violation established noticeable deterrent effect. Nor negative applicable individuals perhaps media, extended generally. indistinguishable approved dissent.1 (1978), prohibits suppressing publishing implicated penalty much direct suppression. squared, remotely affects contribution overall mix society. 56 Several illustrate curiam), upheld contributions despite likely "to mute voices affluent process equalize elections." 25-26, 638. explained potential limiting insignificant availability forums, 26, 638, integrity representative democracy quid pro quos corruption, 26-27, provision granting levels Presidential campaigns depending subsidy major, minor, new party. 87-88, 667. "not abridge, restrict, censor rather money facilitate enlarge discussion." 669-670. yet others, served statutory undeniable enhancing Congress subsidize 548, 2002. 57 point today. interpreted afford centers petitioning. 78, 2039. acknowledging 80-81, 2040, state-created against challenge. 2042-2044. taking advantage owners, dictating specific message, owners disavow connection posting disclaimers. (1943), stating belief orthodoxy, them publicly dissociate themselves Finally, constitute 'dampe[n] limi[t] quoting Of affecting approximates suppression while allowed disparate various struck down "impose far association." 44, 647.2 Government's equalizing outcomes overcome Amendment, encourage widest diverse 44-45, 646-647. suggested dangerous pass muster. 550, 2003. 59 governmentally imposed "penalty" sufficiently heightened scrutiny. time criticized them. 244, 2832. "exact[ed] newspaper," 'dampe[ning] limi[ting] 1412 (1964). Although draws deterrence rationale attempt characterize "penalty"; indeed, Procrustean doomed failure. Instead, stretches stand deters engaging behavior. empirical degree. When remote speculative, subject 27-29, adequately explain immediate warrant strict penalty, scrutiny, E's incentives speak. 61 record support inference PUC penalize E place. future wishes. vitality reason order—to ratepayer voice—would vary importance ceased distributing tomorrow. existence quite probably brought attention possibility requesting cognizable risk deterring expressing candid fashion. discrete instances bears relationship conduct. silent avoiding subjects. suggests, minimizing undesirable adopt strategy hopes address own. extremely implausible prediction. success reactive organization. eventually spite silence. incentive conservative strategy. scrutiny somehow argues, implicates triggering plurality's plausibility prediction depends ineffectiveness disclaimer absence consumer sufficient eliminate If communication exists, anyway. retains inserts, qualitatively prescription "what shall orthodox opinion." 642, 1187. fundamental flaw analysis. natural enjoy self-expression; individual's component broader conscience. compulsory flag salute sphere intellect spirit purpose reserve official control." displayed "freedom mind." 714 234-235, 1799, Most recently, 524, rejected figure exception copyright law, reasoning author's profit inhibits 555-559, 2227-2230, author countervailing thought [that] 'includes refrain all.' 2230 added), without discussion. deterred "fail[ed] clear barriers into function editors." creates peril liberty press 'what newspaper.' Ibid., 24, Z. Chafee, Government Mass Communications 633 (1947). elaborate justification holding. 66 Extension conscience strains breaking ascribe artificial entities "intellect" "mind" confuse metaphor reality. played historic role conveyers extending positive corporations, drew distinction persons. 1415; 534-535, 2331-2332, (1980). arise 12, 1416, 12; 534, 2331, instrumental fostering broad self-government. 1419; 67 isolated declining all, divorced "broad forum" constitutes discussion; abridges values. 558, 2229; "[b]ecause extension justified principally consumers provides, [the] providing factual [a business'] advertising minimal." 651, 2282 (citation Likewise, ideas, presentation distinct de minimis. especially E, regulated utility. Any claim autonomy largely surrendered extensive granted monopoly status. 68 bolstered liberties closely analogous speaking—the Fifth privacy—have 'purely personal' guarantees unavailable organizations," 779, 14, "corporations measure Amendment." 1416.3 69 publisher; insistence treating identically demonstrably jurisprudential sin differently same. Because governed Wooley, California. 70 71 concerned questions answered case,1 important care. narrow commission fundraising solicitation advocacy carried concedes courier my view, regulations applied daily communications rarely challenged—and knowledge invalidated—on grounds. 72 summarized ruling: "[T]his grants, modified form, complaint (TURN) proposing Company's (PG E) organizations soliciting representation involving A-1. Accord, A-4.2 select among competing yearning reach envelope; "no A-24. 73 propagandizing sloganeering feared authorized paragraph 5(b) provides "PG each determine [its] material." A-32. context, afforded confined insert explains program, sets forth pending anticipated applications customers' rates services, (3) invites donations [TURN] behalf Commission. collection transmittal [TURN]." A-4, A-5. unrealistic suppose adopting program detailed prescribe freewheeling presupposes. Far creating postal equivalent soapbox park, "order[ed] proposal 3" "Consumer Advocacy Checkoff" alternatives listed "be implemented." A-31. proposal, marked contrast typically prayers relief complaints, requested described above, A-78, illustrative exhibit, A-85, A-86. Simply construing agency difficult understand preference abstract form. surely presuming acted indiscriminately, insensitively, regard raised requirement. presumption invoked, regularity constitutionality action, construed consequence. format bill, warnings type size provisos disclaimers.3 too credit card loan forms, media advertising. See, e.g., U.S.C. §§ 1632(a), 1663; CFR 226.6-226.8, 226.10 (1985).4 notices hearings written ante, 15-16, (attempting distinguish notices).5 differ mandating disclosure itself, recognizes.6 75 Given seems step acknowledge act conduit group's close envelope.7 An analog appears securities law: incumbent board directors transmit proposals dissident shareholders opposes.8 Presumably SEC's yet—although analogy perfect—it performs accessible audience, investing utility, demonstrable audience buildings vehicles propaganda purposes, discrimination desirous sending via concerned. nothing presents problems resembling portending ones mentioned. wisely forestall serious future, am convinced review today threshold unconstitutionality. respectfully dissent. December 1984 story "automatic payment" "balanced plans, article instructing weatherstrip homes, recipes holiday dishes, efforts bald eagles Pit River addressed exclusive discussed merits recently passed Congress. addition five appellees: Consumers Union, Federation California, Common Cause Interest Research Group, Association Shareholders. Only claims case; intervenors case's precedential effects. follows: "[E]nvelope bills necessary service customer. However, due Mindful artifact generated funds, intended item rate base, treatment unjustly enrich simultaneously deprive space, 'is properly property.' Commissioners Bagley Calvo dissented Commissioner sweeping consequences kinds interests: "The every utility-owned dam, building, surface gas holder rising cities, bumpers vehicle—to name few examples—have 'excess space' 'economic value.' Some place bumper-strip vehicles. Buses trucks messages. words majority page decision, 'It .' Is postulate flowing decision's premise socially desirable excess valuable space?" A-40. forbidden distinctions allocate A-41. contended, first, infringed and, second, unnecessary "TURN opportunities audience." A-56. often fees presumably separate mailings. already least application taxpayer group—the Committee More One Million Taxpayers Save Proposition 13—on participate improve A-157 A-164. reveal government-enforced broadcast media. Red Lion Broadcasting FCC, 395 367, 1794, 371 (1969). Columbia System, Democratic Committee, 412 2080, 772 (1973). constraints Lion: "[A] broadcaster communicates scarce, resource. No person license, whereas send correspondence homes mails." 543, 2336, newsletter. year. Like Herald, still emphasizes 256-257, 2838-2839. independent invalidating editors' allocation scarce 22, 22. long invaded. addition, invited. was, almost definition, peculiarly nature. 2041, correspondingly aspect 22-23 borne appeal. entity receive purports customers: A-14. plausibly assumes conflict appeals lessen 36-37 (STEVENS, "disavowed intention looking solicits funds," leaving "speak advocate best can" inserts. Tr.Oral Arg. 31-32, convincing donations, open-ended scope Heffron International Society Krishna Consciousness, 452 640, 647, 101 2559, 2563, 298 (1981). analogizes management minority shareholder Post, 39-40. inappropriate. cites shareholders. Management derives shareholders; management's shareholders' govern itself. corporations' informational Supra, 8. Rules define presence messages, 7, suffice giving readers mistaken impression really 99, reduce disagreement substance readily distinguishable orders upcoming changes calculated. substantial leeway appropriate requirements 2281-2282, (1985). biased "[a] secures proselytize religious, political, causes decline concepts." 714. status lessens argument. ("Consolidated Edison's decrease informative opinions matters"). 566-568, 2351-2352, correctly noted, 4, logically implies "Extra billboards, bulletin boards, motor reasoning, proprietors items proprietor opposes. At fora speakers' viewpoints, nullify derives. this. supra (discussing Calvo's dissent). seizes base demonstrates "belong" public, paid purchases food grocery store "paying" store's rent, heat, electricity, wages, etc., acquires store. passes overhead fixed market utilities. Having keep utilities hands, arbitrarily parties "paid" paying hasten add nor, it, addresses cost base. 2337 costs. argues frequently concerning consumers. infra, 24-25. Somewhat analogously, agents home monitor compliance safety regulations, Camara Municipal 387 523, 1727, 930 (1967), nongovernmental REHNQUIST's dissent "indirectly remotely" mix. 27. accept proposition, small, indirect. during own—and physically limited—forum chooses element contribution—the candidate—was related contribution. 635. then, affected indirectly. likewise distinguishable. preferred anyone else's less indirect interference. involve Hudgens NLRB, 507, 1029, 196 (1976); Marsh 326 501, 276, 90 265 (1946). cf. (1973); expenditure limitations, worth respective "compelling" one, examined survive "heightened scrutiny." satisfied minimal rational basis. treat important. relatively longer cast (1969), suggestion (1976), employees employer picketing, 521-523, 1037-1038. plurality, "may disagrees." Ante, 4. harbinger institutions banners self-interest. Henceforth, company's signs stickers proclaiming benefits lower rates, ownership. 6-7, plainly fund-raising appeal: Subsections (f) received solicitation, sense solicit A-32, A-33. denial failed 5. 1919 predecessor electric reprint "regarding payment disputed discontinuance service." Decisions Railroad 143, 147 (1919). Other States requirements. "Numerous examples offending exchange securities, SEC Texas Gulf Sulphur 401 F.2d 833 (CA2 1968), cert. denied, 394 976, 1454, 756 statements, Mills Auto-Lite 396 375, 616, 593 (1970), [and] price production competitors, American Column Lumber United States, 257 377, 114, 284 (1921)." Ohralik Ohio Bar Assn., 436 447, 456, 1912, 1918, 444 "explai[n] reasons behind [a] increase," P.U.C.2d 82, (1982), "describ[e] components costs," Diego 410 (1982). 349, 518 (1981) ("By March 1982, describes sent Appendix G decision. Its form Executive Director writing prior customer's bill"). enacted notify increases. "shall amount proposed increase dollar percentage terms, brief statement sought, inquiries directed." Cal. Code Ann. § 454(a) (West 1975). service-related (the appeared proper). 11, 7. fight increases, appeal which, contains. 240.14a-8 communication, Rule propagate purely proposals. Medical Rights SEC, 139 U.S.App.D.C. 226, 229, 432 659, 662 (1970) (shareholder stop sale napalm Vietnam), vacated moot, 973, 91 1191, 322 (1971). Weiss, Proxy Voting Social Issues: Growth Industry, Bus. Soc'y Rev. (Autumn 1974). irrelevant disseminates unquestionably objections impact obtain factors abridgment legitimate adequate

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