{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-659-22","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-659-22)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-23","fingerprint":"ewai:eu:b67bfc","proof":"sha256:0314c19e2b1e62d5a211affe47a516853386e4007b9a31c201dbef1367e89ace","jurisdiction":"eu","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"eu:c-659-22","jurisdiction":"eu","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures AB","permanent_url":"https://legal.exploreworldai.com/novacopilot","source":"Source: NovaCopilot","powered_by":"Powered by NovaCopilot","license":"https://legal.exploreworldai.com/licensvillkor"},"sections":[{"title":"62022CJ0659","paragraphs":[]},{"title":"JUDGMENT OF THE COURT (Eighth Chamber)","paragraphs":[]},{"title":"5 October 2023 (\n *1\n )","paragraphs":["para_4","para_5","para_6"]},{"title":"RK","paragraphs":["para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25"]},{"title":"Judgment","paragraphs":[]},{"title":"1","paragraphs":["para_28"]},{"title":"2","paragraphs":["para_30"]},{"title":"Legal context","paragraphs":[]},{"title":"The GDPR","paragraphs":[]},{"title":"3","paragraphs":["para_34"]},{"title":"4","paragraphs":[]},{"title":"Article 2 of that regulation, entitled ‘Material scope’, provides in paragraph 1:","paragraphs":["para_37"]},{"title":"5","paragraphs":["para_39"]},{"title":"6","paragraphs":[]},{"title":"Under Article 4 of that regulation:","paragraphs":["para_42"]},{"title":"(1)","paragraphs":["para_44"]},{"title":"(2)","paragraphs":["para_46","para_47"]},{"title":"7","paragraphs":["para_49"]},{"title":"Regulation (EU) 2021/953","paragraphs":[]},{"title":"8","paragraphs":["para_52","para_53"]},{"title":"9","paragraphs":[]},{"title":"Article 1 of that regulation, entitled ‘Subject matter’, provides:","paragraphs":["para_56","para_57"]},{"title":"10","paragraphs":["para_59"]},{"title":"11","paragraphs":["para_61"]},{"title":"12","paragraphs":["para_63","para_64","para_65","para_66","para_67"]},{"title":"The dispute in the main proceedings and the question referred for a preliminary ruling","paragraphs":[]},{"title":"13","paragraphs":["para_70"]},{"title":"14","paragraphs":["para_72"]},{"title":"15","paragraphs":["para_74"]},{"title":"16","paragraphs":["para_76"]},{"title":"17","paragraphs":["para_78"]},{"title":"18","paragraphs":["para_80"]},{"title":"19","paragraphs":["para_82"]},{"title":"20","paragraphs":["para_84"]},{"title":"21","paragraphs":["para_86"]},{"title":"22","paragraphs":["para_88"]},{"title":"23","paragraphs":["para_90","para_91"]},{"title":"Consideration of the question referred","paragraphs":[]},{"title":"24","paragraphs":["para_94"]},{"title":"25","paragraphs":["para_96"]},{"title":"26","paragraphs":["para_98"]},{"title":"27","paragraphs":["para_100"]},{"title":"28","paragraphs":["para_102"]},{"title":"29","paragraphs":["para_104"]},{"title":"30","paragraphs":["para_106"]},{"title":"31","paragraphs":["para_108"]},{"title":"32","paragraphs":["para_110"]},{"title":"33","paragraphs":["para_112"]},{"title":"Costs","paragraphs":[]},{"title":"34","paragraphs":["para_115"]},{"title":"On those grounds, the Court (Eighth Chamber) hereby rules:","paragraphs":["para_117","para_118","para_119","para_120"]}],"paragraphs":[{"text":"62022CJ0659","paragraph_id":"para_1"},{"text":"JUDGMENT OF THE COURT (Eighth Chamber)","paragraph_id":"para_2"},{"text":"5 October 2023 (\n *1\n )","paragraph_id":"para_3"},{"text":"(Reference for a preliminary ruling – Protection of natural persons with regard to the processing of personal data – Regulation (EU) 2016/679 – Article 4(2) – Concept of ‘processing’ of personal data – Mobile application – Verification of the validity of ‘EU Digital COVID Certificates’ issued pursuant to Regulation (EU) 2021/953)","paragraph_id":"para_4"},{"text":"In Case C‑659/22,","paragraph_id":"para_5"},{"text":"REQUEST for a preliminary ruling under Article 267 TFEU from the Nejvyšší správní soud (Supreme Administrative Court, Czech Republic), made by decision of 12 October 2022, received at the Court on 20 October 2022, in the proceedings","paragraph_id":"para_6"},{"text":"RK","paragraph_id":"para_7"},{"text":"v","paragraph_id":"para_8"},{"text":"Ministerstvo zdravotnictví,","paragraph_id":"para_9"},{"text":"THE COURT (Eighth Chamber),","paragraph_id":"para_10"},{"text":"composed of M. Safjan, President of the Chamber, N. Piçarra and M. Gavalec (Rapporteur), Judges,","paragraph_id":"para_11"},{"text":"Advocate General: L. Medina,","paragraph_id":"para_12"},{"text":"Registrar: A. Calot Escobar,","paragraph_id":"para_13"},{"text":"having regard to the written procedure,","paragraph_id":"para_14"},{"text":"after considering the observations submitted on behalf of:","paragraph_id":"para_15"},{"text":"–","paragraph_id":"para_16"},{"text":"RK, by D. Sudolská, advokátka,","paragraph_id":"para_17"},{"text":"–","paragraph_id":"para_18"},{"text":"the Czech Government, by M. Smolek, O. Serdula and J. Vláčil, acting as Agents,","paragraph_id":"para_19"},{"text":"–","paragraph_id":"para_20"},{"text":"the Netherlands Government, by K. Bulterman and A. Hanje, acting as Agents,","paragraph_id":"para_21"},{"text":"–","paragraph_id":"para_22"},{"text":"the European Commission, by A. Bouchagiar, H. Kranenborg and P. Ondrůšek, acting as Agents,","paragraph_id":"para_23"},{"text":"having decided, after hearing the Advocate General, to proceed to judgment without an Opinion,","paragraph_id":"para_24"},{"text":"gives the following","paragraph_id":"para_25"},{"text":"Judgment","paragraph_id":"para_26"},{"text":"1","paragraph_id":"para_27"},{"text":"This request for a preliminary ruling concerns the interpretation of Article 2(1) and Article 4(2) of Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons with regard to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data Protection Regulation) ( OJ 2016 L 119, p. 1 ; ‘the GDPR’).","paragraph_id":"para_28"},{"text":"2","paragraph_id":"para_29"},{"text":"The request has been made in proceedings between RK and the Ministerstvo zdravotnictví (Ministry of Health, Czech Republic; ‘the Ministry’) concerning the adoption by the latter of an extraordinary measure regulating access of persons to certain places and events in order to protect the population in the context of the spread of the COVID-19 epidemic.","paragraph_id":"para_30"},{"text":"Legal context","paragraph_id":"para_31"},{"text":"The GDPR","paragraph_id":"para_32"},{"text":"3","paragraph_id":"para_33"},{"text":"According to recital 1 of the GDPR, ‘the protection of natural persons in relation to the processing of personal data is a fundamental right. Article 8(1) of the Charter of Fundamental Rights of the European Union … and Article 16(1) of the Treaty on the Functioning of the European Union (TFEU) provide that everyone has the right to the protection of personal data concerning him or her’.","paragraph_id":"para_34"},{"text":"4","paragraph_id":"para_35"},{"text":"Article 2 of that regulation, entitled ‘Material scope’, provides in paragraph 1:","paragraph_id":"para_36"},{"text":"‘This Regulation applies to the processing of personal data wholly or partly by automated means and to the processing other than by automated means of personal data which form part of a filing system or are intended to form part of a filing system’.","paragraph_id":"para_37"},{"text":"5","paragraph_id":"para_38"},{"text":"Article 2(2) lists four scenarios in which the GDPR ‘does not apply to the processing of personal data’.","paragraph_id":"para_39"},{"text":"6","paragraph_id":"para_40"},{"text":"Under Article 4 of that regulation:","paragraph_id":"para_41"},{"text":"‘For the purposes of this Regulation:","paragraph_id":"para_42"},{"text":"(1)","paragraph_id":"para_43"},{"text":"“personal data” means any information relating to an identified or identifiable natural person (“data subject”); an identifiable natural person is one who can be identified, directly or indirectly, in particular by reference to an identifier such as a name, an identification number, location data, an online identifier or to one or more factors specific to the physical, physiological, genetic, mental, economic, cultural or social identity of that natural person;","paragraph_id":"para_44"},{"text":"(2)","paragraph_id":"para_45"},{"text":"“processing” means any operation or set of operations which is performed on personal data or on sets of personal data, whether or not by automated means, such as collection, recording, organisation, structuring, storage, adaptation or alteration, retrieval, consultation, use, disclosure by transmission, dissemination or otherwise making available, alignment or combination, restriction, erasure or destruction;","paragraph_id":"para_46"},{"text":"…’","paragraph_id":"para_47"},{"text":"7","paragraph_id":"para_48"},{"text":"Articles 5 and 6 of that regulation deal respectively with ‘principles relating to processing of personal data’ and ‘lawfulness of processing’.","paragraph_id":"para_49"},{"text":"Regulation (EU) 2021/953","paragraph_id":"para_50"},{"text":"8","paragraph_id":"para_51"},{"text":"Recital 48 of Regulation (EU) 2021/953 of the European Parliament and of the Council of 14 June 2021 on a framework for the issuance, verification and acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU Digital COVID Certificate) to facilitate free movement during the COVID-19 pandemic ( OJ 2021 L 211, p. 1 ) states as follows:","paragraph_id":"para_52"},{"text":"‘[The GDPR] applies to the processing of personal data carried out when implementing this Regulation. This Regulation establishes the legal ground for the processing of personal data within the meaning of point (c) of Article 6(1) and point (g) of Article 9(2) of [the GDPR], necessary for the issuan …","paragraph_id":"para_53"},{"text":"9","paragraph_id":"para_54"},{"text":"Article 1 of that regulation, entitled ‘Subject matter’, provides:","paragraph_id":"para_55"},{"text":"‘This Regulation lays down a framework for the issuance, verification and acceptance of interoperable COVID-19 vaccination, test and recovery certificates (EU Digital COVID Certificate) for the purpose of facilitating the holders’ exercise of their right to free movement during the COVID-19 pandemic …","paragraph_id":"para_56"},{"text":"It provides for the legal ground to process the personal data necessary to issue such certificates and to process the information necessary to verify and confirm the authenticity and validity of such certificates in full compliance with [the GDPR].’","paragraph_id":"para_57"},{"text":"10","paragraph_id":"para_58"},{"text":"Article 3 of that regulation, entitled ‘EU Digital COVID Certificate’, provides in paragraph 1 that the EU Digital COVID Certificate framework allows for the issuance, cross-border verification and acceptance of vaccination, test and recovery certificates. Article 3(2) provides that ‘Member States, …","paragraph_id":"para_59"},{"text":"11","paragraph_id":"para_60"},{"text":"Article 5(2)(a) and Article 6(2)(a), as well as Article 7(2)(a) of that regulation, provide respectively that a vaccination, test and recovery certificate is to contain the identity of its holder.","paragraph_id":"para_61"},{"text":"12","paragraph_id":"para_62"},{"text":"Article 10 of that same regulation, entitled ‘Protection of personal data’, provides in its first four paragraphs:","paragraph_id":"para_63"},{"text":"‘1.   [The GDPR] shall apply to the processing of personal data carried out when implementing this Regulation.","paragraph_id":"para_64"},{"text":"2.   For the purpose of this Regulation, the personal data contained in the certificates issued pursuant to this Regulation shall be processed only for the purpose of accessing and verifying the information included in the certificate in order to facilitate the exercise of the right of free movement within the Union during the COVID-19 pandemic. After the end of period of the application of this Regulation, no further processing shall occur.","paragraph_id":"para_65"},{"text":"3.   The personal data included in the certificates referred to in Article 3(1) shall be processed by the competent authorities of the Member State of destination or transit, or by the cross-border passenger transport services operators required by national law to implement certain public health mea …","paragraph_id":"para_66"},{"text":"4.   The personal data processed for the purpose of issuing the certificates referred to in Article 3(1), including the issuance of a new certificate, shall not be retained by the issuer longer than is strictly necessary for its purpose and in no case longer than the period for which the certificates may be used to exercise the right to free movement.’","paragraph_id":"para_67"},{"text":"The dispute in the main proceedings and the question referred for a preliminary ruling","paragraph_id":"para_68"},{"text":"13","paragraph_id":"para_69"},{"text":"By extraordinary measure of 29 December 2021 (‘the extraordinary measure’), adopted in order to protect the population in the context of the spread of the COVID-19 pandemic, the Ministry made access for persons to certain indoor and outdoor premises, as well as their participation in mass-organised …","paragraph_id":"para_70"},{"text":"14","paragraph_id":"para_71"},{"text":"The extraordinary measure obliged clients (spectators, participants) to provide proof of compliance with those conditions and required operators (organisers) to conduct compliance checks using the Ministry’s mobile application ‘čTečka’. If the client failed to show compliance with those conditions, …","paragraph_id":"para_72"},{"text":"15","paragraph_id":"para_73"},{"text":"In order to rule on the action for annulment of the extraordinary measure brought by RK on 20 January 2022, the Nejvyšší správní soud (Supreme Administrative Court, Czech Republic), the referring court, considers it necessary to begin by examining whether the review of the ‘infection-free’ condition …","paragraph_id":"para_74"},{"text":"16","paragraph_id":"para_75"},{"text":"The referring court explains that the ‘čTečka’ application makes it possible to check and verify the validity of the EU Digital COVID Certificates issued pursuant to Regulation 2021/953. The application scans the QR code of the certificate using the camera of the mobile telephone of the person condu …","paragraph_id":"para_76"},{"text":"17","paragraph_id":"para_77"},{"text":"The referring court states that, in order to verify the validity of an EU Digital COVID Certificate, the application downloads, once every 24 hours or upon request, public keys of Member States’ certificates and the Member States’ validation rules from the Ministry’s interface. That process may run …","paragraph_id":"para_78"},{"text":"18","paragraph_id":"para_79"},{"text":"The referring court further observes that, under Article 3(2) of Regulation 2021/953, certificates issued by a Member State must contain an interoperable barcode allowing for the verification of their authenticity, validity and integrity. It states that the conversion of personal data referred to in …","paragraph_id":"para_80"},{"text":"19","paragraph_id":"para_81"},{"text":"The referring court has some doubts, however, as to whether the simple conversion and display operation of those data on a mobile telephone constitutes ‘processing’ within the meaning of that provision, especially since the two operations do not entail any risk of misuse of the personal data and nor do they interfere with the right of protection of those data, since the application does not send the data thus obtained anywhere.","paragraph_id":"para_82"},{"text":"20","paragraph_id":"para_83"},{"text":"The referring court also considers that the verification of the validity of the certificate using the ‘čTečka’ application could potentially also constitute processing of personal data, since that operation entails the use of personal data contained in that certificate relating to the health of the …","paragraph_id":"para_84"},{"text":"21","paragraph_id":"para_85"},{"text":"Lastly, the referring court takes the view that the combination of the processes that take place during the check of the certificates using the ‘čTečka’ application, namely the conversion of the personal data from the QR code into a human-readable format, their display on a mobile telephone, the con …","paragraph_id":"para_86"},{"text":"22","paragraph_id":"para_87"},{"text":"Having viewed the matter in that light, the referring court observes that Article 10(1) and (3) of Regulation 2021/953 provides expressly that, for the purposes of exercise of the right to free movement within the European Union, the GDPR applies to the processing of personal data contained in the EU Digital COVID Certificates. Moreover, recital 48 of Regulation 2021/953 states that the processing of personal data should be subject to uniform legal rules.","paragraph_id":"para_88"},{"text":"23","paragraph_id":"para_89"},{"text":"In those circumstances, the Nejvyšší správní soud (Supreme Administrative Court) decided to stay the proceedings and to refer the following question to the Court of Justice for a preliminary ruling:","paragraph_id":"para_90"},{"text":"‘Does the verification, using the national “čTečka” application, of the validity of interoperable COVID-19 vaccination, test, or recovery certificates, issued pursuant to [Regulation 2021/953], which are used by the Czech Republic for national purposes, amount to automated processing of personal data pursuant to [Article 4(2) of the GDPR], and hence, is the material scope of [that regulation] thus established, pursuant to Article 2(1) of that regulation?’","paragraph_id":"para_91"},{"text":"Consideration of the question referred","paragraph_id":"para_92"},{"text":"24","paragraph_id":"para_93"},{"text":"By its question, the referring court asks, in essence, whether the concept of ‘processing’ of personal data referred to in Article 4(2) of the GDPR must be interpreted as including the verification, using a national mobile application, of the validity of interoperable COVID-19 vaccination, test and recovery certificates issued pursuant to Regulation 2021/953 and used by a Member State for national purposes.","paragraph_id":"para_94"},{"text":"25","paragraph_id":"para_95"},{"text":"It is common ground that a number of the pieces of information to which the person conducting the check obtains access during the check of the validity of an EU Digital COVID Certificate, such as those referred to in paragraph 16 of the present judgment, are ‘personal data’ within the meaning of Art …","paragraph_id":"para_96"},{"text":"26","paragraph_id":"para_97"},{"text":"On that latter point, suffice it to observe that Article 5(2)(a) and Article 6(2)(a), as well as Article 7(2)(a), of Regulation 2021/953 provide respectively that a vaccination, test and recovery certificate is to contain the identity of its holder.","paragraph_id":"para_98"},{"text":"27","paragraph_id":"para_99"},{"text":"That being so, it should be noted that Article 4(2) of the GDPR defines the concept of ‘processing’ as ‘any operation or set of operations which is performed on personal data or on sets of personal data, whether or not by automated means’. In a non-exhaustive enumeration, beginning with the wording …","paragraph_id":"para_100"},{"text":"28","paragraph_id":"para_101"},{"text":"That broad interpretation of ‘personal data’ and ‘processing’ is consistent with the objective of guaranteeing the effectiveness of the fundamental right of protection of natural persons with regard to the processing of personal data, referred to in recital 1 of the GDPR, which sets the tone for the application of that regulation.","paragraph_id":"para_102"},{"text":"29","paragraph_id":"para_103"},{"text":"In the present case, a national mobile application such as the ‘čTečka’ application, scans the QR code on the EU Digital COVID Certificate in order to convert the personal data contained in that code into a format that can be read by the person conducting the check. In doing so, such an application …","paragraph_id":"para_104"},{"text":"30","paragraph_id":"para_105"},{"text":"The Court accordingly finds that the verification done using the ‘čTečka’ application of the validity of interoperable COVID-19 vaccination, test and recovery certificates issued pursuant to Regulation 2021/953 constitutes ‘processing’ within the meaning of Article 4(2) of the GDPR and, pursuant to Article 2(1) of that regulation, comes within the material scope thereof.","paragraph_id":"para_106"},{"text":"31","paragraph_id":"para_107"},{"text":"The interpretation referred to in paragraph 30 of the present judgment is corroborated by Regulation 2021/953, which provides that the implementation of the EU Digital COVID Certificate constitutes processing within the meaning of Article 4(2) of the GDPR. The second paragraph of Article 1 of Regula …","paragraph_id":"para_108"},{"text":"32","paragraph_id":"para_109"},{"text":"Consequently, it will be for the referring court to ascertain whether the processing introduced by the extraordinary measure, first, observes the principles relating to the processing of data laid down in Article 5 of the GDPR and, second, observes one of the principles relating to the lawfulness of …","paragraph_id":"para_110"},{"text":"33","paragraph_id":"para_111"},{"text":"In the light of the foregoing, the concept of ‘processing’ of personal data referred to in Article 4(2) of the GDPR must be interpreted as including the verification, using a national mobile application, of the validity of interoperable COVID-19 vaccination, test and recovery certificates issued pursuant to Regulation 2021/953 and used by a Member State for national purposes.","paragraph_id":"para_112"},{"text":"Costs","paragraph_id":"para_113"},{"text":"34","paragraph_id":"para_114"},{"text":"Since these proceedings are, for the parties to the main proceedings, a step in the action pending before the national court, the decision on costs is a matter for that court. Costs incurred in submitting observations to the Court, other than the costs of those parties, are not recoverable.","paragraph_id":"para_115"},{"text":"On those grounds, the Court (Eighth Chamber) hereby rules:","paragraph_id":"para_116"},{"text":"The concept of ‘processing’ personal data referred to in Article 4(2) of Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons with regard to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data Protection Regulation)","paragraph_id":"para_117"},{"text":"must be interpreted as including the verification, using a national mobile application, of the validity of interoperable COVID-19 vaccination, test and recovery certificates issued pursuant to Regulation (EU) 2021/953 of the European Parliament and of the Council of 14 June 2021 on a framework for t …","paragraph_id":"para_118"},{"text":"[Signatures]","paragraph_id":"para_119"},{"text":"(\n *1\n ) Language of the case: Czech.","paragraph_id":"para_120"}],"word_count":3861,"cites":["C-175/20","C-439/19","C-60/22"],"sha256":"9ace8b900ca5ca2f784a29f61d3f7c2d3ea5c37dc74c82d43d5cd5827cdaeec3","source_url":"https://publications.europa.eu/resource/celex/62022CJ0659.ENG.xhtml.ECR_62022CJ0659_EN_01.html","fetched_at":"2026-10-01T14:44:53.919+00:00","canonical":"https://legal.exploreworldai.com/ai/judgments/eu/c-659-22","risk_graph":"https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-659-22","relations_graph":"https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-659-22","changes":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/changes","agent":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-659-22"},"hash":"sha256:0314c19e2b1e62d5a211affe47a516853386e4007b9a31c201dbef1367e89ace","version":"legal-2026-10-23","expires":"2026-10-25T00:00:00.000Z","dependency":{"index_version":"legal-2026-10-23+legal-2026-10-23+2026-10-23T14:34:08","content_hash":"sha256:0314c19e2b1e62d5a211affe47a516853386e4007b9a31c201dbef1367e89ace","revalidate_after":"2026-10-24T01:06:32.929Z","max_copy_age_seconds":3600,"policy":"revalidate-required; attribution-preferred","changelog":"https://legal.exploreworldai.com/api/public/v1/dependency","verify":"https://legal.exploreworldai.com/api/public/v1/verify","stale_copy_invalid":true},"canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=eu:c-659-22","follow":[{"rel":"risk","href":"https://legal.exploreworldai.com/api/public/v1/risk?id=eu:c-659-22"},{"rel":"relations","href":"https://legal.exploreworldai.com/api/public/v1/relations?id=eu:c-659-22"},{"rel":"agent","href":"https://legal.exploreworldai.com/api/public/v1/eu-praxis/agent?id=eu:c-659-22"},{"rel":"obligations","href":"https://legal.exploreworldai.com/api/public/v1/obligation-chain"},{"rel":"changes","href":"https://legal.exploreworldai.com/api/public/v1/whats-new?jurisdiction=eu"}],"disclaimer":"Source reference with official identifier. 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