Agenda Packet - 1999-09-14 iil
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CITY. OF LAKE OSWECCO
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COUNCIL REPORT
WIEGON
TO: Doug Schmitz, City Manager
FROM: Ron Bunch, Long Range Planning Manager
SUBJECT: Old River Road Ad-Hoc Task Force Recommendations and Report
DATE: September 14, 1999
INTRODUCTION/PROPOSED ACTION
The action before Council is to consider,aaccepting the recommendations of Old River
Ad-Hoc Task Force.
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The following:
• Reviews the history of the Old River Road issue, and;
• Presents the Task Force's,key recommendations in a format to guide Council in
making decisions conceytiing specific design solutions and management proposals.
BACKGROUND/DISCUSSION
Past Efforts to Construct Pathways on Old River Road and Glenmorrie Drive
The use and char ter of Old River Road and Glenmorrie Drive has been a controversial
issue for sever ears. Glenmorrie Neighborhood residents have consistently expressed
concerns about/traffic problems and the impacts of developing pedestrian pathways on
Old River Ro&1 and Glenmorrie Drive. On the other hand, both pathways have remained
designated*ithin the Lake Oswego Transportation System and Public Facilities Plans.
In 1988, e City of Lake Oswego adopted a Pathways Master Plan, which was
subseq ently updated in 1992. The Master Plan included pathways on Old River Road
and enmorrie Drive as part of a larger Willamette River Loop System."In 1990 Lake
Osw go citizens voted to approve a property tax bond to fund construction of pathways,
p improvements and acquisition of open space. Subsequently, pursuant to the
P 7hways Master Plan, the City of Lake Oswego proposed to develop a pathway along
ld River Road. This proposed action met considerable opposition from Glenmorrie
residents. Consequently the City's Pathway Advisory Committee, passed a motion which
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stated, "Cease engineering drawings and terminate the work order for Old River Road,
but to continue an open line of communication with the community regarding the
pathway on Old River Road." However, the City has consistently maintained that
pathways are needed in the area. This was emphasized in November, 1997 when the City
Council adopted the Lake Oswego Public Facilities Plan which identified future pathways
to be built on both Glenmorrie Drive and Old River Road.
Glenmorrie Neighborhood Proposal to Close Old River Road and Subsequent
Council Action
In August 1998 Glenmorrie residents petitioned the City Council to close Old River Road
at or near Lake Oswego's boundary with West Linn. Associated with this action was an
expression of opposition by the Glenmorrie Neighborhood Association to the Lake
Oswego Transportation System Plan identifying future pathways on Old River Road and
Glenmorrie Drive.
In October 1998 at a regular meeting,the City Council addressed the issue of future
pathways and road closure. Council voted:
1. Not to close Old River Road;
2. Keep the Old River Road and Glenmorrie Drive pathways as part of the City's
Public Facility and Transportation System Plans, and;
3. Form a committee to, "pull people together to discuss the situation on Old River
Road, with the goal of reaching an agreeable solution for everybody."The
committee was to be,"comprised of representatives from the City of West Linn,
the two affected neighborhood associations, the residents of the area, Marylhurst
College, the Sisters of the Holy Names, and the City of Lake Oswego." The
Committee's charge was to, "develop a master plan to address the issues that have
come forward during the debate on the closure of Old River Road."
Subsequently, the mayor appointed the Old River Road Ad-Hoc Task Force and directed
it to fulfill its task pursuant to the appended Mission/Charge Statement.
Fulfillment of the Mayor's Charge
The Old River Road Task Force worked directly from its Charge Statement to
recommended both management and design solutions for Old River Road and Glenmorrie
Drive. Taken together, they represent a comprehensive solution to the following four
categories of issues/problems.
1. Traffic Management and Safety;
2. Environment and Aesthetics;
3. Recreation and Scenic Quality, and;
4. Security.
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Council Options for Action and Direction to Staff
The City Council's options fall into three categories. It may choose to:
1. Accept the report and recommendations of the Task Force it its entirety;
2. Accept a modified version of the Task Force's by making changes to the Task Force's
recommendations, or;
3. Not accept the Old River Road Report and decline to act.
If the City Council chooses either option 1 or 2, implementation will require direction to
staff to include improvements to Old River Road and/or Glenmorrie Drive within the
Capital Improvement Program and establish a schedule for implementation.
Policy Issues and Summary of Decision Process
If Council wishes to implement all or part of the Task Force's recommendations, it is
recommend that this be done through a decision process that considers the following six
broad policy categories.
1. Designation of Old River Road as a Recreational Resource;
2. Use of Traffic Management Devices on Old River Road and Glemorrie Drive;
3. The Extent and Type of Pedestrian Improvements;
4. The Type and Extent of General Maintenance, Aesthetic and Environmental
Enhancements;
5. The Type and Extent of Needed Traffic Safety and Private Property Security
Measures;
6. Phasing and Scheduling of Improvements.
Attachment"A" is a"Decision Process Work Book" which presents issues/choices
associated with each of the above policy categories. Associated with each decision
process is a brief summary of the background of the issue, the Task Force Findings, its
recommendations and documentation of need for the proposed improvements and/or
management measures.
Attachments: A. Old River Road Decision Process Work Book
B. October 20, 1998 City Council Minutes(Old River Road
Discussion
C. October 27, 1998 Charge Statement to the Old River Road
Task Force
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ATTACHMENT "A"
OLD RIVER ROAD DECSION PROCESS WORK BOOK
POLICY ISSUE #1: SHOULD OLD RIVER ROAD BE DESIGNATED AS A
RECREATIONAL RESOURCE
Authorization by the City Council Charge Statement: The Mayor authorized the Old
River Road Ad-hoc Task Force in the October 27, 1998 charge statement to reach a
general consensus regarding the road's future character and the level and type of
improvements necessary to ensure, "the preservation of River Road's character as a
recreational resource for walking, biking and sightseeing."
Task Force Findings
The Task Force has conveyed to Council its findings that:
• Future improvements and management measures should ensure a natural park-like
experience for walkers with special concern given to residents/property owners'
concerns about congregation and security.
Task Force Recommendation(s)
1. Old River Road and its right-of-way should be designated as recreational resource,
such as a linear walking park and managed to ensure the safety of recreational users
and the quality of life of area residents.
Documentation of Need
1. Pedestrian counts showing many hundreds of person's walk, bike or jog on Old River
Road on a weekly basis.
2. Old River Road is both within and abuts the Willamette River Greenway.
DECISION PROCESS
Decision A: Should the City council designate Old River Road as a recreational
resource, such as a linear walking park and direct that it be managed to ensure the safety
of recreational users and the quality of life of area residents. Yes No
Staff Recommendation/Notes: The practical implication of designating Old River Road as a recreational
resource is that parks and open space funds could be utilized to in addition to transportation funds to
implement needed improvements. It is recommended that,if Council decides to designate Old River Road
as a recreational resource that it direct staff to incorporate it in any future update of the Lake Oswego Parks
and Recreation Master Plan.
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POLICY ISSUE #2: USE OF TRAFFIC MANAGEMENT DEVICES ON OLD
RIVER ROAD AND GLENMORRIE DRIVE.
Authorization by City Council Charge Statement: The Mayor authorized the Old
River Road Ad-hoc Task Force the October 27, 1998 charge statement to "investigate the
use of traffic management devices, to direct and calm traffic, and make recommendation
to the City Council.
Task Force Findings
The Task Force has conveyed to Council its findings that:
• There is the potential for significant and dangerous conflicts between automobiles,
pedestrians and recreation users of Old River Road.
• Once traffic is slowed on Old River Road by traffic management measures, it should
continued to be slowed on Glenmorrie Drive. The tendency of drivers would be to
increase speed on Glenmorrie Drive if they have been forced to drive slowly on Old
River Road.
Task Force Recommendations
1. Ensure vehicle speeds are maintained at 25 m.p.h. or less on all parts of the Old River
Road and Glenmorrie Drive consistent with the designation of the local residential
streets in the Comprehensive Plan. This can be accomplished by installing 12 traffic
management devices, (seven speed bumps and five pinch points) along the 4,800 feet
of Old River Road from its intersection with Glenmorrie Drive to the West Linn City
limits.
2. Install speed bumps where possible on Glenmorrie Drive
Documentation of Need
1. Pedestrian counts showing many hundreds of persons use Old River Road to bike,
walk or jog on a weekly basis;
2. Traffic counts and speed studies indicating much of the automobile traffic exceeds the
designated speed limit of 25 m.p.h.;
3. Observation of walkers, neighborhood residents, and those who drive the road;
4. Consultant's report indicating traffic management devices spaced between 400 and
500 feet are necessary to ensure vehicle speeds of 25 m.p.h. or less.
5. Physical characteristics of the Road--narrow and bordered by a steep bank requiring
slower speeds to minimize the conflicts between cars,pedestrians and bicyclists.
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DECISION PROCESS
Decision A: Should Traffic Management Devices be Used on Old River Road and
Glenmorrie Drive ?
Option 1: Accept the Task Force's recommendations that traffic management devices
are needed to the extent necessary to slow traffic to 25 m.p.h. on Old River Road and
Glenmorrie Drive. Yes No 1
Option 2: Reject the Task Force findings that any traffic management devices are
needed on Old River Road and Glemorrie Drive. Yes No
Option 3: Modify the Task Force's recommendation that it is not necessary to slow
traffic to 25 m.p.h. and fewer traffic management devices are needed. Yes No
Staff Recommendation/Notes: It is recommended that if Council determines that it is not necessary to
ensure that 25 m.p.h.speeds on Old River Road and consequently fewer traffic management devices are
needed then the Engineering Division conduct an analysis and report back to Council. In the case
Glenmorrie Drive, it is recommended that an Engineering analysis be done, if traffic management devices
are approved to ensure the appropriate location in relationship to the road's grade and sight-distance.
Decision B: If traffic management devices are approved, what kind of devices should
they be?:
Option 1. Accept the Task Force's recommendation that traffic management devices be
a combination of speed bumps and pinch points. Yes No
Option 2. Modify the Task Force's recommendation and utilize speed bumps only.
Yes No
Staff Recommendation/Notes:Pinch-points are intended to play a dual role—to 1) slow traffic, and 2)
allow room to construct a pathway away from environmentally sensitive areas or steep slopes. If pinch-
points are not used in areas indicated on the plan then either:
1. Retaining walls or other engineered structures would be required in some areas along with removal of
significant vegetation,or;
2. Pedestrians would have to share the roadway with cars in some areas as they do now. In this case it
would be necessary to demarcate the pedestrian portion with paint.
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Decision C: If the Council approves the use traffic management devices, should it
rescind its previous policy of not paying for traffic management devices, in the case of
this comprehensive project for Old River Road and Glenmorrie Drive, and utilize public
funds for testing and subsequent installation?Yes_ No_
Staff Recommendation/Notes: The City Council on August 3, 1999 voted five to three to authorize
testing of traffic management devices on Old River Road and Glenmorrie Drive,provided that the adjacent
property owners and parties of interests pay the costs. It should be noted that that the Task Force charge
statement did not direct it to ascertain the level of property owner/neighborhood funding for improvements
to Old River Road. If Council wishes to continue to seek property owner/neighborhood funds then it is
recommended that it direct the neighborhood/property owner representatives to determine if this funding
source is viable and report back to at a specific date.
POLICY ISSUE#3: THE EXTENT AND TYPE OF PEDESTRIAN
IMPROVEMENTS
Authorization by the City Council Charge Statement: The Mayor authorized the Old
River Road Ad-hoc Task Force in the October 27, 1998 charge statement to, "reach a
general consensus regarding the road's future character and the level and type of
improvements necessary to ensure:
1. The preservation of River Road's character as a recreational resource for walking,
biking and sightseeing;
2. Safety of neighborhood residents,pedestrians, bicyclists and automobile drivers;
3. Old River Road's continued function as a residential street consistent with the
Comprehensive Plan
In the above context, the Charge Statement directed the Task Force to, "recommend
alignment of shoulder pathways and propose mitigation, as necessary, of negative
impacts on the Willamette River Greenway and other natural resources such as tree
groves and stream corridors."
Task Force Findings
The Task Force has conveyed to the Council its findings that:
• There is the potential for significant and dangerous conflicts between automobiles,
pedestrians and recreational users of Old River Road.
• Because of physical constraints, including width of pavement, location of driveways,
proximity to steep banks and the presence of significant trees, a pedestrian pathway is
not, at this time appropriate for Glenmorrie Drive.
• It is important to provide a natural park-like experience for walkers with special
concern given to residents/property owners' concerns about congregation and
security.
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• The use of Old River Road changes character during different times of the day.
During weekday a.m. and p.m. travel peak it is a potential hazard for pedestrians.
During low traffic times it is a pleasant walking experience.
• Parts of the right-of-way are also people's yards. Some landscape encroachments have
occurred.
Task Force Recommendations
1. Separate vehicular and pedestrian/bike traffic at the intersection of Glenmorrie Drive,
Old River Road and the George Rogers Park trail.
2. The amount of new asphalt should be minimized. A walking pathway is appropriate
only on some sections of the road—on the east side along the Sisters of the Holy
Names and the Marylhurst University property. The walker should have an
opportunity to move out of the traffic lane when necessary along the remaining
portions of the road. This can be accommodated on a three-foot wide gravel shoulder
also on the east side. If it is necessary for pedestrians to cross the road, then the
crossing should occur at pinch points on an elevated "pedestrian table."
Documentation of Need
1. Pedestrian counts showing many hundreds of people' walk,jog or bike on Old River
Road on a weekly basis.
Right-of-Way Issues
Some members of the Glenmorrie Neighborhood have consistently maintained that the
right-of-way of Old River Road is 30 feet wide. The City's position is that the 1914
County Order that created Old River Road provides for a 60-foot right-of-way. A recent
Review by an independent surveyor of the 1914 Order that created Old River Road does
recognize the uncertainty of the actual right-of—way width. A legal interpretation is
currently underway.
Regardless of right-of-way width, the Task Force recommendations have been developed
to minimize the width of actual improvements with the goal of constructing pathways
within a dimension of 30 feet.
DECSION PROCESS
Decision A: Should improvements be made at the intersection of Old River Road and
Glenmorrie Drive to separate pedestrian and bicycle traffic from automobile traffic.
Yes No
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Decision B: Should the City Council not proceed to develop a pathway on Glenrnorrie
Drive at this time? Yes No
Staff Recommendation/Notes: If the City Council decides not to develop a pathway on Glenmorrie Drive
at this time, it may either:
• Leave the pathway on the Long Term I I-20 years(Unfunded)Transportation Improvement Program
List in the TSP,or;
• Propose a Comprehensive Plan Amendment to delete the pathway from the TSP.
Decision C: Should the City Council accept the Task Force's Recommendation that:
a. A five to six foot pathway be developed along the east side of Old River road only
along the Sisters of the Holy Names and Marylhurst University Properties; Yes ,
No
b. The walker should have an opportunity to move out of the traffic lane when necessary
along the remaining portions of the road. This can be accommodated on a three-foot
wide gravel shoulder(pathway) also on the east side of the road. Yes_ No_
c. If it is necessary for pedestrians to cross the road, then crossings should occur at pinch
points on an elevated"pedestrian table(s)?" Yes_ No_
Staff Recommendation/Notes: If the City Council votes no on"a"and/or"b"above then it is
recommended that it provide direction as to the width of a desired pathway. The Council may wish to also
consider that if it does approve of the principal of"pinch-points"to retain the concept of a demarcating
crossing point(s)with an elevated pedestrian table as is done currently on Waluga Drive.
POLICY ISSUE 4: THE TYPE AND EXTENT OF GENERAL MAINTENANCE,
AESTHETIC AND ENVIRONMENTAL ENHANCEMENTS
Authorization by the City Council Charge Statement: The Mayor authorized the Old
River Road Ad-hoc Task Force in the October 27, 1998 charge statement to, "reach a
general consensus regarding the road's future character and the level and type of
improvements necessary to ensure:
1. Maintenance and where possible enhancement of the Willamette River Greenway and
other natural resources per the City's Sensitive Lands Ordinance, Comprehensive
Plan and Statewide Planning Goal 15: Willamette River Greenway.
2. The preservation of River Road's character as a recreational resource for walking,
biking and sightseeing.
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In this context the Task Force was directed to evaluate:
1. Road maintenance (pavement, shoulder, clear vision requirements, and storm
drainage);
2. Mitigation, as necessary, of negative impacts on the Willamette River Greenway and
other natural resources such as tree groves and stream corridors, and
3. Potential tree planting and other landscape enhancements within the public right-of-
way and Willamette River Greenway to enhance scenic quality and neighborhood
character.
Task Force Findings/Documentation of Need
The Task Force has conveyed to Council its findings that:
• Aesthetics and environmental quality are very important to those who live along these
roads and to all other users. It is essential that the quality of life currently enjoyed by
existing residents not be compromised by future improvements.
• Glenmorrie Drive and especially Old River Road and their right-of-ways exist within
a complex and highly regulated natural environment. This includes the Willamette
River Greenway,which includes portions of Old River Road and the west bank of the
Willamette River.
Task Force Recommendations/Council Choices
The following are divided into two categories—recommended physical improvements to
Glenmorrie Drive and Old River Road and their rights-of-ways and management
measures. A choice of"agree" or"disagree" is provided with each.
DECISION PROCESS
Recommended Physical Improvements
1. Install monument type entry signs at the Lake Oswego/West Linn City limits to
inform people that they are entering a recreational area and to be considerate of
private property on both sides of the road. Agree_ Disagree_
2. Fix damaged and deteriorated guard rails and replace where possible with more
aesthetic barriers consistent with the natural character of the area. Agree
Disagree
3. Improve the appearance of the sewer pump station at the intersection of Glenmorrie
and Old River Road. Agree Disagree
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4. When required, ensure pavement management (overlays) and drainage improvements
are done in conjunction with installation of traffic management devices and other
improvements to address pedestrian safety. Agree_ Disagree_
Recommended Management Measures
1. Tree preservation is essential and where possible, native landscaping particularly, tree
planting should occur within the right-of-way and be sensitive to the views of area
residents and walkers. Agree_ Disagree_
2. Maintain the "country lane quality/rural street quality of the road by ensuring that the
amount of new hard surface(asphalt) for pathways is the minimum necessary to
address the above conflicts between automobiles and other users. Minimize the use
of paint and signage. Agree Disagree
3. Ensure that all future improvements are designed consistent with the City's public
improvement design guidelines and with all applicable City, state and federal
regulations. Agree Disagree
4. Work with all property owners, especially the major landholders, Sisters of the Holy
Names and Marylhurst University to enhance the natural resources of the Willamette
River Greenway and protect native plants and wildlife. Agree Disagree
5. Enforce the Municipal Code relating to the storage or vehicles, boats and equipment
and other items within the public right-of-way. Agree Disagree
6. Educate the public regarding living and recreating within the Willamette River
Greenway. Agree Disagree
7. Ensure all future improvements to Old River Road and Glenmorrie Drive are
consistent with Willamette Greenway requirements, surface water and flood plain
regulations, Lake Oswego's sensitive lands and tree cutting ordinances and other
applicable regulations and standards Agree Disagree
8. Future maintenance and improvements to Old River and Glenmorrie Drive should
seek to minimize disturbance of established yards and landscaping. Agree
Disagree
9. Do not install streetlights or other lighting along Old River Road. Agree
Disagree
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POLICY ISSUE#5: THE TYPE AND EXTENT OF NEEDED TRAFFIC SAFETY
AND PRIVATE PROPERTY SECURITY MEASURES
Authorization by the City Council Charge Statement: The Mayor authorized the Old
River Road Ad-hoc Task Force in the October 27, 1998 charge statement to, "reach a
general consensus regarding the road's future character and the level and type of
improvements necessary to ensure:
1. Safety of neighborhood residents,pedestrians, bicyclists and automobile drivers;
2. The recognition of the multi-use function of neighborhood streets for walking,
bicycling and social interaction which preserves the privacy, quiet and safety of
neighborhood living;
Task Force Findings
The Task Force has conveyed to Council its findings that:
• The ability to park on the road's shoulders poses security problems, because of
drinking parties and a few burglaries. This situation also results in littering and
destruction of natural resources because of fires and trampling.
• In particular, car access to the wide spot at the Glenmorrie/Old River Road
intersection, along the Sisters of the Holy Names property and at the West Linn City
limits are problems.
• The presence of a large older population at the future Mary's Woods project (Sisters
of the Holy Names) poses special security issues/concerns.
Task Force Recommendations/Council Choices
The following are divided into two categories—recommended physical improvements to
Glenmorrie Drive and Old River Road and their rights-of-ways and management
measures. A choice of"agree" or"disagree" is provided with each.
DECISION PROCESS
Recommended Physical Improvements
1. Install aesthetic barriers to prevent parking along the road's shoulder in those
locations identified to be problems. Agree Disagree
2. Judiciously utilize signage that is aesthetic and creative that states laws are enforced
pertaining to trespass, blocking driveways, dumping garbage, etc. Agree
Disagree
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Management Measures
1. Involve the neighborhoods in an active program to promote driving safety and to
report any unauthorized access to private property. Agree Disagree
2. Enforce the law at every opportunity to address security issues such as trespass.
Agree Disagree
Recommended Management Measures
2. A law/regulation enforcement effort and ongoing public safety education effort
should be developed and implemented germane to the road and the types of uses it
receives, especially if it is designated as a recreational resource(linear park).
Agree Disagree _
1. Design all improvements and any associated amenities, if possible, to address
neighborhood concerns about congregation and security. Agree Disagree
POLICY ISSUE #6: PHASING AND SCHEDULING OF IMPROVEMENTS.
The Task Force has recommended to the Council that:
"The proposed Traffic Management Devices must be tested thoroughly. A phased and
judicious approach is needed to ensure implementation of the project is successful. There
is not the need to do the whole project at once, but to do those things that will most
improve the safety and comfort of recreational users, drivers and residents who live along
the road."
As schedule was recommended as part of the Task Force report that began with testing of
traffic management devices in the summer of 1999. The reason was to determine the
effectiveness of these measures when use of the road was at its seasonal peak. However,
since summer is now past the following schedule is recommended.
I. Fall/Summer, 1999 -2000: Traffic Management Testing
II. Summer, 2000: Permanent acceptance of Tested and Workable Traffic
Management Devices along the part of Old River Road and Glenmorrie Drive not
Scheduled for Pavement Management.
III. Summer, 2000: Pavement Management Project on South Portion of the Project
Area(Sisters of the Holy Names and Marlyhurst University)
IV. Late Summer/Early Fall, 2000: Traffic Management Testing Within the
Southern Portion of the Project Following Pavement Management Project.
V. Summer, 2001:Permanent Acceptance of Traffic Management Devices Within
the Southern Portion of the Project. This May Coincide with Construction of
the Pathway Associated with Development of Mary's Woods.
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DECISION PROCESS
The Council may:
a. Accept the above schedule and direct staff to incorporate the same within the Capital
Improvement Program. Yes_No
b. Modify the schedule and direct staff to incorporate the same within the Capital
Improvement Program. Yes_ No
c. Choose not to accept a schedule at this time. Yes No
Staff Recommendation/Notes: If the City Council decides to not accept a schedule at this time, it is
recommended that it direct staff to evaluate the extent of improvements and management measures
approved for Old River Road and return at a later date with a revised schedule/phasing program.
CCORRRPT5
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